Prof. dr Petar Teofilović:Prof. dr Petar Teofilović: Main Elements of the Main Elements of the CoConcept ncept of Aof Autonomutonomyy

Autonomy = Self-governance - independent Autonomy = Self-governance - independent decision making in, organization and decision making in, organization and management of certain affairs; management of certain affairs; highest level highest level of decentralization after federal states. of decentralization after federal states.

Vertical division of powers between different Vertical division of powers between different state levels; often a way to provide state levels; often a way to provide mechanisms for the protection of identity mechanisms for the protection of identity and participation in public affairs to minority and participation in public affairs to minority groupsgroups

Classical theory: key difference between state Classical theory: key difference between state and autonomous units: the latter have no and autonomous units: the latter have no sovereignty (as a necessary element of a sovereignty (as a necessary element of a statehood) – Issue: what are sovereign statehood) – Issue: what are sovereign functions? (defence; int’l trade, int’l functions? (defence; int’l trade, int’l relations; - What about taxes, relations; - What about taxes, legislation/normative powers, judiciary, legislation/normative powers, judiciary, internal affairs, symbols...?)internal affairs, symbols...?)

May relate to certain part of state territory, May relate to certain part of state territory, grgrooupupss, or , or functions functions – variations in respect of the – variations in respect of the way the autonomous units are incorporated in way the autonomous units are incorporated in the state, the scope and type of their authorities, the state, the scope and type of their authorities, relations to central state...relations to central state...

There is no autonomy without defined territory, There is no autonomy without defined territory, some some original authoritiesoriginal authorities (including certain (including certain ((limited) independent regulatory powers/ limited) independent regulatory powers/ legislation), administrative functions legislation), administrative functions ((independent execution by autonomous unitsindependent execution by autonomous units), ), property and finances.property and finances.

(Serbia: Constitution of 2006 formally declares autonomy (Serbia: Constitution of 2006 formally declares autonomy of provinces, but the contents of such autonomy is not of provinces, but the contents of such autonomy is not defined – thus, in today Serbia autonomy is a facade defined – thus, in today Serbia autonomy is a facade autonomy - indeterminate, unsettled and subject to autonomy - indeterminate, unsettled and subject to interpretations)interpretations)

Some important elements of autonomy:Some important elements of autonomy:

1.1. Right of the citizens to autonomyRight of the citizens to autonomy

2.2. Unified, or different types of autonomy?Unified, or different types of autonomy?

3.3. Way of creating autonomous unitsWay of creating autonomous units

4.4. Possibility to abolish or merge autonomous Possibility to abolish or merge autonomous unitsunits

5.5. TerritoryTerritory

6.6. AuthoritiesAuthorities

7.7. Legal acts of autonomous units, and their statusLegal acts of autonomous units, and their status

8.8. Organs/Bodies of autonomous unitsOrgans/Bodies of autonomous units

9.9. Financial autonomy and the property of Financial autonomy and the property of autonomous unitsautonomous units

1. Is there a right of citizens to autonomy1. Is there a right of citizens to autonomy

May be explicitly proclaimed by the May be explicitly proclaimed by the constitution - not a human right, but constitution - not a human right, but as a as a constitutional rightconstitutional right it must enjoy it must enjoy special protection.special protection.

May be contained in a statute – must be May be contained in a statute – must be protected by legal mechanisms, too.protected by legal mechanisms, too.

Open issue: If the constitution provides that existing Open issue: If the constitution provides that existing autonomous units may be abolished, it essentially autonomous units may be abolished, it essentially may be deemed a violation of a constitutional right may be deemed a violation of a constitutional right to autonomy (case of Serbia)to autonomy (case of Serbia)

2. One or several types of autonomy?2. One or several types of autonomy?

Normally, all APs of the same kind have Normally, all APs of the same kind have the same status and same set of basic the same status and same set of basic competences. However, generally no competences. However, generally no obstacles to establish different types of obstacles to establish different types of autonomy in one state (Spain, Russia). autonomy in one state (Spain, Russia).

Serbia – 1. wording of the constitution declares Serbia – 1. wording of the constitution declares “substantial /essential autonomy” of Kosovo “substantial /essential autonomy” of Kosovo (with no further explication what such (with no further explication what such autonomy comprises) which is to be defined autonomy comprises) which is to be defined by a separate statute, and only “autonomy” by a separate statute, and only “autonomy” to Vojvodinato Vojvodina

Main issue: If not substantial, is it autonomy at Main issue: If not substantial, is it autonomy at all? (it exists, or not)all? (it exists, or not)

Besides, it implicitly states that Vojvodina, the Besides, it implicitly states that Vojvodina, the only AP currently existing in Serbia, does not only AP currently existing in Serbia, does not enjoy “substantial” but some kind of enjoy “substantial” but some kind of “unsubstantial”, defficient and formal “unsubstantial”, defficient and formal autonomy (same shall apply to any new autonomy (same shall apply to any new autonomous unit, if created)autonomous unit, if created)

Creation of different types of autonomy, of Creation of different types of autonomy, of which only one unit has unclear and vague which only one unit has unclear and vague guarantees of “substantial” autonomyguarantees of “substantial” autonomy

2. Constitution contains a provision that relates 2. Constitution contains a provision that relates only to the budget of AP of Vojvodina only to the budget of AP of Vojvodina (The budget (The budget of Vojvodina is min. of Vojvodina is min. 7% 7% of the total budget of Serbiaof the total budget of Serbia((Vojvodina Vojvodina contributes to the state budget between 32-40% annually)contributes to the state budget between 32-40% annually); ; limits on its use: 3/7limits on its use: 3/7 o off the provincial the provincial budbudggetet must be used to must be used to finance “cfinance “capitalapital costs” – no explanation what those costs are); costs” – no explanation what those costs are); No other AP (if created) may have such No other AP (if created) may have such guarantee (unless the constitution is guarantee (unless the constitution is amended), so this provision establishes a amended), so this provision establishes a unique status of one AP among all in Serbia in unique status of one AP among all in Serbia in this respect.this respect.

(In reality, this provision was violated each year (In reality, this provision was violated each year since the adoption of the constitution (only since the adoption of the constitution (only futile political attempts to address the issue) – futile political attempts to address the issue) – consequence: constant obstacle to the consequence: constant obstacle to the performance of provincial authorities by the performance of provincial authorities by the central state; indirect informal limitation of the central state; indirect informal limitation of the autonomy; impowerishment of Vojvodinaautonomy; impowerishment of Vojvodina

3. If new autonomous units were created, a 3. If new autonomous units were created, a new separate law should be adopted for new separate law should be adopted for each of themeach of them

According to Serbian constitution, there are According to Serbian constitution, there are currently 2 completely differently defined currently 2 completely differently defined autonomous units ( “essential” autonomy autonomous units ( “essential” autonomy reserved for one unit, and “non-essential” reserved for one unit, and “non-essential” for the other), whereas potential new for the other), whereas potential new autonomous units would be unique in autonomous units would be unique in comparison to those two – each comparison to those two – each autonomous unit in Serbia is and will be a autonomous unit in Serbia is and will be a sui generissui generis unit in respect of the scope and unit in respect of the scope and contents of autonomycontents of autonomy

3. Creation of autonomous units3. Creation of autonomous units

Important for their status; usually by the constitution Important for their status; usually by the constitution (if created for the first time), or the constitution (if created for the first time), or the constitution confirms their status if they existed earlier confirms their status if they existed earlier (continuity). Continuity important - without it the (continuity). Continuity important - without it the path to abolish autonomous units becomes path to abolish autonomous units becomes easier.easier.

If created by an act of lower legal force the contents If created by an act of lower legal force the contents of autonomy is fragile and changeable, its status of autonomy is fragile and changeable, its status may be easily changed and restricted in every may be easily changed and restricted in every possible area (statutes may be amended or possible area (statutes may be amended or abolished much easier than constitution).abolished much easier than constitution).

Besides creation of autonomous units the Besides creation of autonomous units the constitution should also, at least in general terms, constitution should also, at least in general terms, introduce mechanisms for the protection of introduce mechanisms for the protection of autonomy.autonomy.

Serbian constitution: “Autonomous provinces Serbian constitution: “Autonomous provinces are autonomous territorial units created by are autonomous territorial units created by the constitution.”the constitution.”

This provision defines provinces as territorial This provision defines provinces as territorial units, but sais nothing about what is units, but sais nothing about what is autonomy.autonomy.

This article states an untrue fact in respect of AP of This article states an untrue fact in respect of AP of Vojvodina: it had autonomous status even before it Vojvodina: it had autonomous status even before it was included into Serbia in 1918., and also in was included into Serbia in 1918., and also in Yugoslavia since 1945. Its highest level was in the Yugoslavia since 1945. Its highest level was in the period 1974-1989, and although reduced after 1989 period 1974-1989, and although reduced after 1989 it has never been abolished formally, so it existed in it has never been abolished formally, so it existed in continuity until 2006; so, it may not be created continuity until 2006; so, it may not be created again in 2006 by a new constitution (something that again in 2006 by a new constitution (something that already exists cannot be created)already exists cannot be created)

Such a fiction in the constitution enabled inserting Such a fiction in the constitution enabled inserting another provision according to which the existing another provision according to which the existing APs may be abolished, or merged with each other APs may be abolished, or merged with each other (first time in history – no previous constitution, not (first time in history – no previous constitution, not even the notorious Milosevic constitution of 1990 even the notorious Milosevic constitution of 1990 which formally reduced the previous high level of which formally reduced the previous high level of autonomy to mere declaration, allowed abolishment autonomy to mere declaration, allowed abolishment of APs!)of APs!)

This way the status of AP is additionally weakened - This way the status of AP is additionally weakened - there is even no basic guarantee for the existence of there is even no basic guarantee for the existence of AP (even if it has existed before) - Vojvodina is AP (even if it has existed before) - Vojvodina is currently the only existing AP in Serbia, but although currently the only existing AP in Serbia, but although the constitution guarantees the right of citizens to the constitution guarantees the right of citizens to autonomy there are no guarantees that the autonomy there are no guarantees that the autonomy shall survive.autonomy shall survive.

5. Territory of AP5. Territory of APBasic precondition to territorial autonomy: defined Basic precondition to territorial autonomy: defined

territory where autonomous powers apply. Generally, territory where autonomous powers apply. Generally, territory of an autonomous unit is defined by the territory of an autonomous unit is defined by the constitution, as well as rules and procedures for any constitution, as well as rules and procedures for any kind of change of territory.kind of change of territory.

If the territory is defined by a statute, it undermines If the territory is defined by a statute, it undermines one of the foundations of autonomy – statutes may one of the foundations of autonomy – statutes may be changed easier than constitutions, and so the be changed easier than constitutions, and so the territory of an autonomous unit may be reduced.territory of an autonomous unit may be reduced.

Serbia: Territory of Vojvodina unspecified and changeable – not Serbia: Territory of Vojvodina unspecified and changeable – not defined by the constitution, but it states that the territory of AP defined by the constitution, but it states that the territory of AP shall be regulated by statute. Current Serbian Law on Territorial shall be regulated by statute. Current Serbian Law on Territorial organization states that the territory of Vojvodina consists of organization states that the territory of Vojvodina consists of territories of 45 local units enumerated in the Law. It is possible territories of 45 local units enumerated in the Law. It is possible to change (reduce) the territory of AP by simple amendments to change (reduce) the territory of AP by simple amendments to this law (by adding or removing territories of certain local to this law (by adding or removing territories of certain local communities from the list of those that make the AP, e.g. communities from the list of those that make the AP, e.g. adding local units from Vojvodina to the city of Belgrade, which adding local units from Vojvodina to the city of Belgrade, which is not a part of Vojvodina but a territorial unit with a special is not a part of Vojvodina but a territorial unit with a special status – so those parts of the AP no longer make its territory).status – so those parts of the AP no longer make its territory).

6. Competences of autonomous units6. Competences of autonomous units

One of the key elements of autonomyOne of the key elements of autonomy

Criteria for the distribution of competences Criteria for the distribution of competences between autonomous units and central state between autonomous units and central state vary. One possible criterion: principle of vary. One possible criterion: principle of subsidiarity (each level of state power should subsidiarity (each level of state power should have competences that are best exercised by have competences that are best exercised by that level)that level)

Original (exclusive) or delegated (may be Original (exclusive) or delegated (may be removed)removed)

Competences or at least some of them (original Competences or at least some of them (original ones) should be enumerated by the ones) should be enumerated by the constitution; if defined by a statute, no constitution; if defined by a statute, no guarantees – easy to change/abolish themguarantees – easy to change/abolish them

Competences may be defined by constitution as: Competences may be defined by constitution as: - Exclusive ones of the central state, and exclusive Exclusive ones of the central state, and exclusive

ones of autonomous unitsones of autonomous units- Exclusive competences of autonomous units, all Exclusive competences of autonomous units, all

the rest are central state competencesthe rest are central state competences- Exclusive central competences, some exclusive Exclusive central competences, some exclusive

autonomous c. in certain areas; others to be autonomous c. in certain areas; others to be enumerated by statute(s) – less certaintyenumerated by statute(s) – less certainty

- Exclusive central c., no autonomous (only areas, Exclusive central c., no autonomous (only areas, to be defined by statute(s) – case of Serbia to be defined by statute(s) – case of Serbia (formal)(formal)

- Units may choose to perform autonomously some Units may choose to perform autonomously some competences in certain areas, or to leave their competences in certain areas, or to leave their execution to the central state (Spain - high level)execution to the central state (Spain - high level)

Possibility of concurrent competences / mechanisms Possibility of concurrent competences / mechanisms to distribute themto distribute them

Serbia: In general terms, APs have Serbia: In general terms, APs have competences which may be fully exercised competences which may be fully exercised within the AP (issues of provincial within the AP (issues of provincial importance), which are not explicitly vested importance), which are not explicitly vested to the central state. The constitution does not to the central state. The constitution does not state any issue of provincial importance - state any issue of provincial importance - issues of state i.e. provincial importance are issues of state i.e. provincial importance are defined by statutes.defined by statutes.

Constitution only enumerates the areas of Constitution only enumerates the areas of social life in which AP may have competences social life in which AP may have competences under those circumstances; practically, under those circumstances; practically, competences of APs must be defined by each competences of APs must be defined by each concrete statute that regulates the areas in concrete statute that regulates the areas in which AP may have competences under the which AP may have competences under the constitution. Thus the scope of provincial constitution. Thus the scope of provincial competences may be altered (reduced) with competences may be altered (reduced) with every amendment to any of those statutesevery amendment to any of those statutes

Even if an issue is of provincial importance, AP may Even if an issue is of provincial importance, AP may have competences only if it is not explicitly have competences only if it is not explicitly enumerated as an issue of exclusive state enumerated as an issue of exclusive state competence in some other article of the constitution competence in some other article of the constitution (this norm enables further reduction of APs (this norm enables further reduction of APs competences by amendments to the article of the competences by amendments to the article of the constitution which defines exclusive state constitution which defines exclusive state competences.)competences.)

The constitution does not enumerate even one original The constitution does not enumerate even one original competence of APs. Consequently, the scope of competence of APs. Consequently, the scope of provincial competences may be changed even with provincial competences may be changed even with every new statute or amendments to existing ones every new statute or amendments to existing ones that regulate any of the areas where APs may have that regulate any of the areas where APs may have competences. APs competences must always be competences. APs competences must always be explicitly enumerated in a statute, explicitly enumerated in a statute, (in practice the (in practice the state parliament regularly „forgets” to include state parliament regularly „forgets” to include provincial competences in new statutes related to provincial competences in new statutes related to those areas)those areas)

Even those competences of autonomous units that are Even those competences of autonomous units that are explicitly enumerated are either restricted by some explicitly enumerated are either restricted by some other constitutional norm(s), or no mechanisms for other constitutional norm(s), or no mechanisms for their efficient and effective exercise is foreseen in their efficient and effective exercise is foreseen in the constitution (right of autonomous units to the constitution (right of autonomous units to autonomously regulate their organs, institutions and autonomously regulate their organs, institutions and symbols; the duty to take care of the exercise of symbols; the duty to take care of the exercise of human rights on its territory is not supported by any human rights on its territory is not supported by any concrete competence necessary for that task (APs concrete competence necessary for that task (APs have no police, prosecutors, judiciary...)have no police, prosecutors, judiciary...)

Conclusion: In Serbia APs have almost no predefined Conclusion: In Serbia APs have almost no predefined competences, while those that may be given to APs competences, while those that may be given to APs by a statute may be easily taken away – thus, the by a statute may be easily taken away – thus, the status of APs in this respect is indetermined, subject status of APs in this respect is indetermined, subject to arbitrary interpretations, and there are no to arbitrary interpretations, and there are no guarantees that even the issues of provincial guarantees that even the issues of provincial importance shall be within APs competences.importance shall be within APs competences.

7. Legal acts of APs and their status7. Legal acts of APs and their statusThe highest ranking provincial act (its Statute), The highest ranking provincial act (its Statute),

which defines the organization of the AP, its which defines the organization of the AP, its symbols, organs and their competences has symbols, organs and their competences has only the status of a by-law even though it only the status of a by-law even though it regulates important constitutional matter. regulates important constitutional matter. Because of its importance it should have a Because of its importance it should have a higher rank in the hierarchy of legal acts (e.g. higher rank in the hierarchy of legal acts (e.g. the rank of a constitutional law which is the rank of a constitutional law which is above “simple” laws, or at least a rank of a above “simple” laws, or at least a rank of a regular law).regular law).

APs assemblies may not adopt statutes, but only APs assemblies may not adopt statutes, but only by-laws, even in matters that under the law by-laws, even in matters that under the law have the status of an issue of provincial have the status of an issue of provincial importance – in practice it means that state importance – in practice it means that state statutes (which are of higher rank in the statutes (which are of higher rank in the hierarchy) may indirectly completely regulate hierarchy) may indirectly completely regulate the issues that should be regulated by APs the issues that should be regulated by APs by-laws, or limit the APs competences in this by-laws, or limit the APs competences in this respectrespect

8. Organs of autonomous units8. Organs of autonomous units

Autonomous units must have their own Autonomous units must have their own bodies for the execution of their bodies for the execution of their competences, and should competences, and should independently regulate the distribution independently regulate the distribution of competences among them, their of competences among them, their election, organization and procedures.election, organization and procedures.

Serbia: the constitution states that assembly is Serbia: the constitution states that assembly is the highest ranking organ of autonomous the highest ranking organ of autonomous units, thus limiting the scope of another units, thus limiting the scope of another provision which states that APs provision which states that APs autonomously regulate their organs and their autonomously regulate their organs and their competences.competences.

AP has no judiciary or constitutional court, the AP has no judiciary or constitutional court, the executive is limited to undefined issues in areas executive is limited to undefined issues in areas enumerated by the constitution (relative), while enumerated by the constitution (relative), while provincial ombudsman’s competences were severaly provincial ombudsman’s competences were severaly restricted by an article of a state statute on the restricted by an article of a state statute on the Protector of Citizens. The (political) decision of the Protector of Citizens. The (political) decision of the Constitutional court (2014) reduced even the scope Constitutional court (2014) reduced even the scope of constitutional provisions related to APs of constitutional provisions related to APs competences in this respect (government of AP was competences in this respect (government of AP was found to be unconstitutional).found to be unconstitutional).

Conclusion: Constitutional provision about AP’s Conclusion: Constitutional provision about AP’s autonomy in regulating their own organs and autonomy in regulating their own organs and institutions and their competences is institutions and their competences is derogated by some other constitutional derogated by some other constitutional provisions or their interpretations – these provisions or their interpretations – these matters are in most parts already indirectly matters are in most parts already indirectly regulated by the constitution or by state regulated by the constitution or by state statutes.statutes.

9. Financial autonomy and property of APs9. Financial autonomy and property of APs

Autonomous units as an independent level and holder Autonomous units as an independent level and holder of certain state powers must have their own property of certain state powers must have their own property (buildings, furniture, equipment, vehicles), and their (buildings, furniture, equipment, vehicles), and their own incomes (certain original resources to collect own incomes (certain original resources to collect their own financial means, or apportionments in the their own financial means, or apportionments in the state budget) in order to be able to exercise their state budget) in order to be able to exercise their competences. Without original incomes and financial competences. Without original incomes and financial independence, and some exclusive property APs independence, and some exclusive property APs remain only deconcentrated (not decentralized) remain only deconcentrated (not decentralized) branches of the state.branches of the state.

Serbia: APs manage their property in accordance with Serbia: APs manage their property in accordance with state statutes. They finance their competences state statutes. They finance their competences partly from original incomes the type and amount of partly from original incomes the type and amount of which are set by statutes, and partly from the which are set by statutes, and partly from the incomes of the state which are also set by statutes.incomes of the state which are also set by statutes.

In respect of the AP of Vojvodina, the In respect of the AP of Vojvodina, the constitution explicitly states that its constitution explicitly states that its budget shall be at least 7% of the total budget shall be at least 7% of the total state budget, providing that the AP has to state budget, providing that the AP has to use at least 3/7 of that amoung to finance use at least 3/7 of that amoung to finance the (undefined) „capital costs”the (undefined) „capital costs”

Therefore, APs are restricted even in Therefore, APs are restricted even in respect of the distribution and use of respect of the distribution and use of property and original incomes that property and original incomes that are at its disposal.are at its disposal.

Conclusive remarks on the concept of autonomy in Conclusive remarks on the concept of autonomy in Serbia:Serbia:

The constitution of Serbia does not The constitution of Serbia does not establish some particular type of establish some particular type of autonomy for all APs that may emerge– autonomy for all APs that may emerge– each autonomous unit is a separate case.each autonomous unit is a separate case.

The constitution contains no guarantees of The constitution contains no guarantees of any fundamental element of autonomy (it any fundamental element of autonomy (it does not recognize the continuity of does not recognize the continuity of existing AP; APs may be abolished; they existing AP; APs may be abolished; they do not have a defined territory, and have do not have a defined territory, and have almost no original competences; they almost no original competences; they may adopt only by-laws, and have no may adopt only by-laws, and have no autonomy in issues related to their autonomy in issues related to their property of incomes.property of incomes.

Thus, Serbian constitution only formally Thus, Serbian constitution only formally declares autonomy to its provinces, but declares autonomy to its provinces, but in fact it restricts the autonomy in all in fact it restricts the autonomy in all important respects, or reduces it to a important respects, or reduces it to a mere formality. mere formality.

There is practically no autonomy under the There is practically no autonomy under the current constitution of Serbia – its scope current constitution of Serbia – its scope and contents are undefined, they may be and contents are undefined, they may be easily altered and reduced (by statutes), easily altered and reduced (by statutes), and there are no guarantees for any and there are no guarantees for any concrete autonomous competence. Thus, concrete autonomous competence. Thus, it is an issue that should be significantly it is an issue that should be significantly altered and improved through the altered and improved through the changes of the constitution.changes of the constitution.

3. Nastanak autonomne pokrajine (AP)3. Nastanak autonomne pokrajine (AP)

AP (pa i AP Vojvodina) su autonomne AP (pa i AP Vojvodina) su autonomne teritorijalne jedinice osnovane ustavom (čl. teritorijalne jedinice osnovane ustavom (čl. 182. st.1.)182. st.1.)..

Formulacija ovog člana nije u skladu sa Formulacija ovog člana nije u skladu sa istorijskim činjenicama u odnosu na APV: istorijskim činjenicama u odnosu na APV: autonomija Vojvodine postojala je i dok ona autonomija Vojvodine postojala je i dok ona nije bila u sastavu Kraljevine SHS 1918. g., nije bila u sastavu Kraljevine SHS 1918. g., kao i u socijalističkoj Jugoslaviji od 1945., pa kao i u socijalističkoj Jugoslaviji od 1945., pa ne može biti osnovana ovim ustavom.ne može biti osnovana ovim ustavom.

Ako je APV “osnovana” 1945. i postojala u Ako je APV “osnovana” 1945. i postojala u kontinuitetu do 2006. (formalno nikada nije kontinuitetu do 2006. (formalno nikada nije bila ukinuta), ne može ponovo biti osnovana bila ukinuta), ne može ponovo biti osnovana 2006.g.2006.g.

4. Osnivanje, ukidanje i spajanje AP4. Osnivanje, ukidanje i spajanje AP

Osim osnivanja novih AP, Ustav daje i Osim osnivanja novih AP, Ustav daje i mogućnost mogućnost ukidanja ili spajanja ukidanja ili spajanja postojećihpostojećih. Takva mogućnost nije . Takva mogućnost nije postojala u ustavu RS iz 1990. postojala u ustavu RS iz 1990.

– – Položaj AP oslabljen u odnosu na raniji Položaj AP oslabljen u odnosu na raniji jer ne postoji garancija da će postojeće jer ne postoji garancija da će postojeće AP opstati (uopšte, ili u slučaju spajanja AP opstati (uopšte, ili u slučaju spajanja – u prvobitnom obliku). Dakle, Ustav i – u prvobitnom obliku). Dakle, Ustav i pored prava građana na autonomiju ne pored prava građana na autonomiju ne jemči čak ni postojanje AP (ni onih koje jemči čak ni postojanje AP (ni onih koje već postoje kao takve).već postoje kao takve).

5. Teritorija AP5. Teritorija AP

Neodređena i promenljiva. Nije garantovana i Neodređena i promenljiva. Nije garantovana i definisana ustavom, već samo propisano da definisana ustavom, već samo propisano da se ona utvrđuje zakonom (čl.182. st.4).se ona utvrđuje zakonom (čl.182. st.4).

Po sadašnjem Zakonu o teritorijalnoj Po sadašnjem Zakonu o teritorijalnoj organizaciji RS (čl.27) teritoriju AP čine organizaciji RS (čl.27) teritoriju AP čine teritorije 45 jedinica lokalnih samouprava teritorije 45 jedinica lokalnih samouprava nabrojanih u zakonu. Izmenama zakona je nabrojanih u zakonu. Izmenama zakona je moguće menjati, pa i smanjiti, teritoriju AP, moguće menjati, pa i smanjiti, teritoriju AP, pripajanjem ili oduzimanjem od AP teritorije pripajanjem ili oduzimanjem od AP teritorije pojedinih jedinica lokalne samouprave (npr. pojedinih jedinica lokalne samouprave (npr. pripajanjem jedinica lokalne samouprave na pripajanjem jedinica lokalne samouprave na teritoriji Srema gradu Beogradu, čime one teritoriji Srema gradu Beogradu, čime one prestaju da budu deo teritorije AP).prestaju da budu deo teritorije AP).

6. Nadležnosti AP6. Nadležnosti AP AP su nadležne u pitanjima koja se, na AP su nadležne u pitanjima koja se, na

svrsishodan način, mogu ostvarivati unutar svrsishodan način, mogu ostvarivati unutar AP, a u kojima nije nadležna RS; koja su AP, a u kojima nije nadležna RS; koja su pitanja od republičkog, a koja od pitanja od republičkog, a koja od pokrajinskog značaja određuje se zakonom pokrajinskog značaja određuje se zakonom (čl. 177)(čl. 177)

Ustav ne navodi ni jedno konkretno pitanje od Ustav ne navodi ni jedno konkretno pitanje od pokrajinskog značaja, niti dapokrajinskog značaja, niti dajeje kriterijume zakriterijume za utvrđivanje koja su pitanja od pokrajinskog utvrđivanje koja su pitanja od pokrajinskog značaja, već se to praktiznačaja, već se to praktičnočno mora definisati mora definisati svakim pojedinim novim zakonom koji se svakim pojedinim novim zakonom koji se odnosi na oblasti u kojima AP po Ustavu odnosi na oblasti u kojima AP po Ustavu može imati nadležnosti (čl. 183)može imati nadležnosti (čl. 183)

Čak i kada se radi o pitanjima od Čak i kada se radi o pitanjima od pokrajinskog značaja, AP će biti pokrajinskog značaja, AP će biti nadležna za njih nadležna za njih samo ako ona nisu samo ako ona nisu propisana kao nadležnost RSpropisana kao nadležnost RS ((čl. 97čl. 97)) - - ovaj deo norme omogućava dodatno ovaj deo norme omogućava dodatno sužavanje nadležnosti AP, koje su sužavanje nadležnosti AP, koje su ionako postavljene sasvim relativno; ionako postavljene sasvim relativno; njih je lako promeniti ili oduzeti od AP njih je lako promeniti ili oduzeti od AP jednostavnim promenama zakona jednostavnim promenama zakona kojima se umesto pokrajinskih organa kojima se umesto pokrajinskih organa utvrđuje nadležnost republičkih i u utvrđuje nadležnost republičkih i u pitanjima od pokrajinskog značaja.pitanjima od pokrajinskog značaja.

Ustav ne propisuje gotovo nikakve konkretne Ustav ne propisuje gotovo nikakve konkretne nadležnosti AP; u čl. 183. nabrajaju se oblasti u nadležnosti AP; u čl. 183. nabrajaju se oblasti u kojima se, zakonom, mogu definisati pitanja od kojima se, zakonom, mogu definisati pitanja od pokrajinskog značaja – međutim, tu nije navedena pokrajinskog značaja – međutim, tu nije navedena nijedna izvorna nadležnost AP. Dakle, prilikom nijedna izvorna nadležnost AP. Dakle, prilikom donošenja bilo kog novog ili izmene važećeg donošenja bilo kog novog ili izmene važećeg zakona u nabrojanim oblastima mora se svaki put zakona u nabrojanim oblastima mora se svaki put definisati i taksativno nabrojati da li AP ima kakve definisati i taksativno nabrojati da li AP ima kakve nadležnosti u toj oblasti (odn. da li postoje pitanja nadležnosti u toj oblasti (odn. da li postoje pitanja od pokrajinskog značaja koja neće biti u od pokrajinskog značaja koja neće biti u nadležnosti RS, jer samo u tim pitanjima bi se nadležnosti RS, jer samo u tim pitanjima bi se mogla uspostavljati nadležnost AP) – Teoretski mogla uspostavljati nadležnost AP) – Teoretski moguće da AP nema ni jednu nadležnost u tim moguće da AP nema ni jednu nadležnost u tim oblastima; u praksi moguće stalno menjanje oblastima; u praksi moguće stalno menjanje nadležnosti AP izmenama zakona.nadležnosti AP izmenama zakona.

Čak su i izričito navedene nadležnosti AP Čak su i izričito navedene nadležnosti AP sužene ili relativizovane drugim odredbama sužene ili relativizovane drugim odredbama Ustava, ili ne postoje mehanizmi za njihovo Ustava, ili ne postoje mehanizmi za njihovo efikasno i efektivno vršenje od strane AP:efikasno i efektivno vršenje od strane AP:

- Pravo na samostalno uređivanje organa APPravo na samostalno uređivanje organa AP- Obaveza staranja AP o ostvarivanju ljudskih Obaveza staranja AP o ostvarivanju ljudskih

i manjinskih prava u skladu sa zakonom, a i manjinskih prava u skladu sa zakonom, a AP nema ovlašćenja i organe za njihovu AP nema ovlašćenja i organe za njihovu zaštitu i unapređenje (nema policiju, zaštitu i unapređenje (nema policiju, tužilaštva, redovne ni prekršajne sudove...)tužilaštva, redovne ni prekršajne sudove...)

- Konkretne nadležnosti malobrojne (simboli, Konkretne nadležnosti malobrojne (simboli, upravljanje pokrajinskom imovinom u upravljanje pokrajinskom imovinom u skladu sa zakonom...)skladu sa zakonom...)

Zaključak:Zaključak:

AP gotovo da nema nikakve unapred AP gotovo da nema nikakve unapred definisane konkretne nadležnosti, a one definisane konkretne nadležnosti, a one koje joj mogu biti određene zakonom koje joj mogu biti određene zakonom isto tako mogu biti i ukinute bez isto tako mogu biti i ukinute bez posebnih formalnih teškoća – i u ovom posebnih formalnih teškoća – i u ovom pogledu položaj AP je neodređen, pogledu položaj AP je neodređen, podložan proizvoljnim tumačenjima, i podložan proizvoljnim tumačenjima, i nema ni minimalnih garancija da će AP nema ni minimalnih garancija da će AP biti nadležna čak i za uređivanje pitanja biti nadležna čak i za uređivanje pitanja od značaja za AP.od značaja za AP.

7. Akti AP i njihov status7. Akti AP i njihov status

Statut AP, iako uređuje važnu ustavnu materiju, Statut AP, iako uređuje važnu ustavnu materiju, ima status podzakonskog akta (čl.195). Zbog ima status podzakonskog akta (čl.195). Zbog značaja materije trebao bi da ima viši položaj značaja materije trebao bi da ima viši položaj u hijerarhiji pravnih akata, odn. da ima rang u hijerarhiji pravnih akata, odn. da ima rang ustavnog zakona ili bar zakona.ustavnog zakona ili bar zakona.

Skupština nema zakonodavnu, već normativnu Skupština nema zakonodavnu, već normativnu nadležnost - ne donosi zakone, već samo nadležnost - ne donosi zakone, već samo podzakonske akte (odluke), čak i u materiji podzakonske akte (odluke), čak i u materiji koja je zakonom utvrđena kao pitanje od koja je zakonom utvrđena kao pitanje od pokrajinskog značaja – republičkim zakonima pokrajinskog značaja – republičkim zakonima može se u potpunosti urediti materija koju bi može se u potpunosti urediti materija koju bi formalno trebala da uređuje AP svojim formalno trebala da uređuje AP svojim odlukama, pa se republičkim zakonima akti odlukama, pa se republičkim zakonima akti AP mogu i obesnažiti.AP mogu i obesnažiti.

8. Pokrajinski organi8. Pokrajinski organi

Ustav izričito utvrđuje da AP samostalnoUstav izričito utvrđuje da AP samostalno, u skladu , u skladu sa Ustavom i svojim statutom, propisuju sa Ustavom i svojim statutom, propisuju uređenje i nadležnost svojih organa i javnih uređenje i nadležnost svojih organa i javnih službislužbi (čl.179), odn. (čl.179), odn. da AP u skladu sa Ustavom da AP u skladu sa Ustavom i svojim statutom, uredjuju nadležnost, izbor, i svojim statutom, uredjuju nadležnost, izbor, organizaciju i rad organa i službi koje osnivajuorganizaciju i rad organa i službi koje osnivaju (čl. 183.). (čl. 183.).

Međutim, Ustav (čl.180) utvrđuje i da je najviši Međutim, Ustav (čl.180) utvrđuje i da je najviši organ AP Skupština, i tako obezvređuje organ AP Skupština, i tako obezvređuje odredbu o samostalnom uređenju organa.odredbu o samostalnom uređenju organa.

AP nema svoj pravosudni sistem, izvršna vlast je AP nema svoj pravosudni sistem, izvršna vlast je ograničena na neke oblasti, a Odlukom ograničena na neke oblasti, a Odlukom Ustavnog suda je i postojanje Vlade APV Ustavnog suda je i postojanje Vlade APV proglašeno neustavnim (skupštinski sistem)proglašeno neustavnim (skupštinski sistem)

Zaključak:Zaključak:

Ustavna odredba o samostalnom Ustavna odredba o samostalnom propisivanju uređenja i nadležnosti propisivanju uređenja i nadležnosti organa i javnih službi AP je drugim organa i javnih službi AP je drugim odredbama ustava i njihovim odredbama ustava i njihovim tumačenjem faktički derogirana, jer su tumačenjem faktički derogirana, jer su i jedno i drugo u najvećem delu već i jedno i drugo u najvećem delu već uređeni republičkim aktima.uređeni republičkim aktima.

9. Finansijska autonomija i imovina AP9. Finansijska autonomija i imovina AP

AP upravljaju pokrajinskom imovinom u AP upravljaju pokrajinskom imovinom u skladu sa zakonom (čl.183. st.5.). Za skladu sa zakonom (čl.183. st.5.). Za finansiranje svoje nadležnosti AP ima finansiranje svoje nadležnosti AP ima izvorne prihode čije se izvorne prihode čije se vrste i visina vrste i visina određuju zakonomodređuju zakonom, a zakonom se , a zakonom se određuje i njihovo određuje i njihovo učešće u delu učešće u delu prihoda RSprihoda RS. Ustav propisuje i da b. Ustav propisuje i da budžet udžet APV iznosi najmanje 7% u odnosu na APV iznosi najmanje 7% u odnosu na budžet RS, s tim što se 3/7 od budžeta budžet RS, s tim što se 3/7 od budžeta APV koristi za finansiranje kapitalnih APV koristi za finansiranje kapitalnih rashoda rashoda (čl.184).(čl.184).

Dakle, i u pogledu raspolaganja Dakle, i u pogledu raspolaganja imovinom i izvornim prihodima AP je imovinom i izvornim prihodima AP je ograničena. Ustav unapred utvrđuje i ograničena. Ustav unapred utvrđuje i namenu većeg dela namenu većeg dela (3/7)(3/7) budžeta AP. budžeta AP. Ni u oblasti finansija i imovine se stoga Ni u oblasti finansija i imovine se stoga ne može govoriti o postojanju prave ne može govoriti o postojanju prave autonomije po Ustavu RS.autonomije po Ustavu RS.

Zaključna razmatranjaZaključna razmatranja

Ustav RS ne uspostavlja neki koncept Ustav RS ne uspostavlja neki koncept autonomije kao osnovni – svaka AP autonomije kao osnovni – svaka AP slučaj za sebe.slučaj za sebe.

Ustavom nisu uspostavljene garancije ni Ustavom nisu uspostavljene garancije ni za jedan bitan element autonomnosti za jedan bitan element autonomnosti pokrajina – ne priznaje se kontinuitet pokrajina – ne priznaje se kontinuitet autonomije, AP su “osnovane” ovim autonomije, AP su “osnovane” ovim ustavom; one mogu biti i ukinute; ustavom; one mogu biti i ukinute; nemaju definisanu teritoriju, i gotovo nemaju definisanu teritoriju, i gotovo nemaju nikakve izvorne nadležnosti. nemaju nikakve izvorne nadležnosti. Donose samo podzakonske akte, a ni u Donose samo podzakonske akte, a ni u pitanjima vezanim za imovinu i finansije pitanjima vezanim za imovinu i finansije AP nemaju stvarnu autonomiju.AP nemaju stvarnu autonomiju.

Ustav RS deklarativno garantuje autonomiju Ustav RS deklarativno garantuje autonomiju pokrajina, ali je faktički ograničava u pokrajina, ali je faktički ograničava u svakom pogledu ili je svodi na puku svakom pogledu ili je svodi na puku formu. Ono što Ustav u jednom članu formu. Ono što Ustav u jednom članu naizgled daje, u nekom drugom članu naizgled daje, u nekom drugom članu ograničava ili faktički oduzima od AP. ograničava ili faktički oduzima od AP. Autonomija po sadašnjem ustavu RS Autonomija po sadašnjem ustavu RS praktično ne postoji – njen obim i sadržina praktično ne postoji – njen obim i sadržina su neodređeni, lako se mogu su neodređeni, lako se mogu promeniti/suziti (zakonom), i nema promeniti/suziti (zakonom), i nema nikakvih garancija minimuma nadležnosti.nikakvih garancija minimuma nadležnosti.

Stoga je to jedno od pitanja koje bi trebalo Stoga je to jedno od pitanja koje bi trebalo da bude drugačije rešeno novim ustavom da bude drugačije rešeno novim ustavom RS čije se donošenje očekuje u dogledno RS čije se donošenje očekuje u dogledno vreme.vreme.