Rating of Luhansk 2014:

41%

Publicity Index

48.3%

City Mayor publicity

40.4%

Executive bodies publicity

35.4%

Publicity of council deputies

Summary:

Activities of pro-Russian separatist groups in Luhansk degraded previous achievements of the local community in implementing good governance principles. The measurement results of all publicity parameters of local self-government bodies, Luhansk holds the 22nd position out of the 24 cities under measurement. Luhansk is classified as the city where a local self-government body performance is non-public. It must be noted that in 2013 Luhansk held the 6th position out of the 11 cities under measurement of Publicity Index for local self-government bodies.

By the publicity level of the City Mayor, Luhansk holds the 15th position in 2014. It must be noted that we only accounted for the activities of the City Mayor in January-July 2014, when Luhansk city head Serhiy Kravchenko was actually staying in the city and fulfilled his obligations. Luhansk city council deputies revealed worse results in 2014, too. While in 2013 the Luhansk city council deputy corps held the 4th position in the All-Ukrainian Publicity Index of local self-governance (11 regional centers were measured at that time), in 2014 the deputies dropped down to the 17th position out of the 24 cities.

Publicity parameters for Luhansk City Mayor, executive bodies and the council deputies are within 35-48 %. The highest publicity index is with the city head (48 %), while the lowest one belongs to the city council (only 35 %). It is indicative that in the pre-conflict time Luhansk city head used to annually report on his performance to local community even though the detailed procedure for reporting of the city head is not regulated in local legal regulatory acts. All executive bodies (of administration) also directly report on their performance to local community once in a year, but the written reports are not available. Similar situation is with the deputies who report on their work to the voters by their constituencies at least once a year. However, no personal current reports, or reports on the work of permanent deputy commissions are posted on the website (except for some cases). The drawbacks of the City Mayor performance lie in the fact that he is not active enough to interact with the media. There is no information available on assistants and advisors of the city head. Procedures for appointing to positions on a competitive basis are not made public. Besides, the procedure to make an appointment with the City Mayor is not established. The city council does not have any functioning ‘hot line’ for urgent requests from citizens.

As to publicity level of the activity of executive bodies, there are no biographical data for the deputy mayors of the city. The city does not have any practices for land auctions established. Executive bodies do not publicize information on all services rendered by municipal companies, as well as their cost. The website does not contain any information on privileges for different categories of citizens and by different types of services. Draft resolutions of executive committee are not publicized on the official website of the council, while citizens may freely attend executive committee meetings only upon receiving the permission (by submitting special written application and receiving the reply). The council website does not contain detailed information on procedures for public hearings, such as the way to initiate and hold them, as well as considering their results. There is no free access to exhaustive information on other mechanisms of public participation (local initiatives, general meeting of citizens).

The drawbacks of activities of Luhansk city council include the lack of schedule for appointments of deputies with citizens at the official website. It does not contain bios of deputies, either. The city council does not have electronic voting system. No data on registration of deputies at the plenary sessions is made public on the council website. Results of personal voting on every item of the agenda are not publicized, either.

The Publicity Index did not measure illegal activities of Luhansk city council officials during the occupation of Luhansk city. It only accounted for activities of elects and officials of Luhansk city council who acted pursuant to the acting law of Ukraine.

Military conflict in Luhansk had the gravest negative effect on the practical activities of city council deputies and the City Mayor. In other words, most deputies and the City Mayor literally seized any activity starting from July 2014, when the last session of the city council took place. The last implementing order by Luhansk city mayor is dated with July, 14, 2014. The city of Luhansk does not de facto have any city head, but de jure Serhiy Kravchenko is still the mayor. From July until October 2014, practical administration of the city is executed by the deputy mayor of Luhansk Manolis Pilavov.

While drawing the Law of Ukraine ‘On Special Procedures of Local Self-Governance in Separate Areas of Donetsk and Luhansk Regions’ legislators unfortunately failed to pay sufficient attention to the governance standards in Donbas, such as publicity requirements of local self-governance. New parliamentary coalition declared the need to implement a Constitutional reform and decentralization of power in Ukraine. Consolidation of strong local communities and establishment of public governance system should only be conducted by state authorities and local self-government bodies after control is regained over the temporary occupied areas in Luhansk region.

Transparency?

CITY MAYOR49%

Information on the On City Mayor and His Activities?42%

As based on the results of information content on Luhansk city mayor and Luhansk city council official website, it must be stated that municipal authorities failed to take into account the remarks of citizens in 2013 as to improving the website content. The Luhansk city council official website lacks information on location, mailing address, telephone numbers, and an email of the city mayor. Also, there is no information describing powers and functions of the city mayor. There are no detailed procedures on application for an appointment which makes it more complicated for Luhansk citizens to understand the application procedure and whether any prior application is required at all. Also, the council official website lacks up-to-date information on the schedule according to which the mayor meets citizens.

Another drawback is that the council official website does not offer income declaration of Luhansk city mayor. Moreover, according to experts’ estimates, Luhansk city mayor Serhiy Kravchenko is not active enough to communicate with mass media with the help of holding briefings, press conferences, live broadcasts or informal meetings with reporters. It makes it impossible for journalists and citizens to establish a dialogue with a feedback to local authorities and to immediately learn about mechanisms of work of authorities to tackle burning local problems.

Also, the official information portal of city authorities has biographical data (date of birth, educational background, work experience, family status, criminal record, a photo, political party affiliation) of the city mayor, and also relevant reports on performance of Luhansk City mayor over 2010-2013.

Information On the City Mayor Units and HR Policy?38%

The official website of Luhansk city council and Luhansk city mayor lacks information on assistants and advisors of the city mayor (full-staff – executive support services, and part-time ones) with contact details and their areas of responsibility. Another drawback is that in practice it is impossible to easily access minutes of meetings of competition commissions on the results of competitions for vacancies, with the number of candidates and a composition of competition commission indicated.

At the same time, the website has summarized contacts with the telephone numbers of major officials of the city council and the bodies within its administration.

Basic Strategic (Conceptual) Documents of Municipality?49%

Luhansk community has multiple times called on local authorities to adopt a strategic plan for the development of the city. However, the requests and calls from NGOs were left unattended. That is why the city of Luhansk lacks any development strategy for the city (or any similar document in contents and form) to contain the description of the goal, tasks, directions of strategic development of the city and the implementation plan. Also, the official website does not have any published short-term programme for social and economic development of the city (1 year). There are no up-to-date long-term programmes for social and economic development of the city (5 years), either. In the city of Luhansk, there is no implemented quality management system (ISO) or a certificate to confirm compliance with the quality standards ISO 9001:2001 (revealed in the result of external audit).

Regulatory Documents of Municipality?76%

The website has published a Master plan of the city which contains a descriptive part and main graphic materials such as the area zoning plan, and a current year budget adopted by Luhansk city mayor’s resolutions. The current Statute of Local Community is publicized on the website and in print.

All resolutions of the city mayor are timely publicized on the council website (within 5 working days from the day of signing). The website has an option for convenient document search by different criteria such as date, document title, words from the text, format, etc. The city mayor adopted and publicized a resolution to implement the Law of Ukraine ‘On Access to Public Information’ (there is a separate unit established / a specific person appointed; the implementation of the law is assigned to the functions of one of the units).

EXECUTIVE BODIES33%

Information on Executive Bodies and Their Heads?22%

The website lacks information on personnel composition of deputy mayors’ staff and members of executive bodies. It must be noted that in 2013 Luhansk city council website mentioned names of deputy mayors but in 2014 the information is not available any more. The council website does not have many details on all heads of executive bodies (full names, personal details and photos, office telephone numbers, or emails), on location of executive bodies, their emails. Full names and biographical data (date of birth, educational background, work experience, family status, criminal record, a photo) of deputy mayors are not available on the city council website. The council website lacks information on all companies, institutions and organizations (heads, contact details, areas of responsibility). Also, there is no information on social sphere institutions (educational, medical, social security, cultural establishments) administered by the city council.

A positive aspect is that official printed media of Luhansk city council publish declarations on property, income and expenditures of the deputy mayors which also contain data on property, income and expenditures of their family members. Also, the website has information on powers and functions of all executive bodies (departments and boards).

Information on the City Council Executive Committee?29%

На веб-сторінці ради є інформація про персональний склад виконкому, однак відсутня інформація про  повноваження виконкому та не оприлюднені біографічні відомості про членів виконкому (дата народження, освіта, досвід роботи, сімейний стан, судимість, фото). На офіційній веб-сторінці і дошках оголошень відсутня інформація про місцезнаходження (місце засідань) та електронної пошти виконавчого комітету. На веб-сайті ради вчасно оприлюднюється актуальна інформація про місце та час засідань виконавчого комітету.

Resolutions and Documentation of Executive Bodies?46%

Luhansk city council website lacks information on all services rendered by municipal companies, as well as their cost. Also, the website lacks information on privileges for different categories of population as to different kinds of services.

The council official website does not have full lists of all local special purpose programmes funded from the local budget as grouped in a separate section. Only some programmes can be found among council resolutions but it takes time to find them.

At the same time, the council official website publishes all resolutions of executive committee. The resolutions of executive committee are also published in printed media. The council website or printed media publicize plan of actions to prepare draft regulatory acts for the next calendar year. The plan includes all necessary information such as determining the kinds and titles for projects, goals for their adoption, deadlines for the projects, names of bodies and units in charge of drafting regulatory acts. Resolutions which empower regulatory acts and their contents are published in printed media. The website has a search system for contextual find by key words throughout all textual information available on the website. However, there is no advanced search option through the database of regulatory legal acts.

Municipal Property and Land of Municipality?0%

У місті Луганськ останній рік не відбуваються земельні торги і  рішення про проведення земельних торгів не оприлюднюються на веб-сайті ради.

DEPUTIES34%

Information on the City Council Deputies?48%

The council website lacks biographical details of all deputies (date of birth, educational background, work experience, family status, criminal record, a photo, political party affiliation). Besides, no declarations on property, income and expenditures of deputies are publicized (which would also contain relevant information on their family members). The council website lacks schedule for receiving citizens (days, hours, and place for meetings) by the city council deputies.

At the same time, there is information on location, mailing address, telephone numbers, and emails of the council deputies. Also, there is information on rights and duties of the city council deputies.

Structure and Work Organization of the Representative Body of Local Self-Government?45%

The regulations of work of the city council and provisions on the work of permanent commissions are available for the public on the council website. The website has up-to-date information on schedules of meetings of all permanent deputy commissions. There is also information on the composition of permanent deputy commissions and the changes thereto. The website hosts information on powers, receiving schedule of the council secretary and his biographical data. At the same time, declaration on property, income, expenditures and financial liabilities of the council secretary (with all relevant information of the family members) is not available at the website. The website has up-to-date information on the composition of deputy factions and the changes thereto. The council website contains lists and boundaries of majority based constituencies the city council deputies were elected from.

City Council Plenary Sessions?23%

The city council does not have an electronic voting system. Information on registration of deputies at plenary sessions is not published on the council website. Results of personal voting on each item of the agenda are not publicized on the council website, either. Another drawback is that all plenary sessions of the city council are not broadcast (or streamed online) on a regular basis. Resolutions on convening the council session are timely publicized on the council website and in printed media (within 10 days before the session). Draft agenda of the session is publicized in advance on the council website (pursuant to the regulations). At the same time, draft resolutions of the council are not always publicized on the council website on time (at least 20 days before the session).

Regulatory Legal Acts and Other Documents by the City Council?41%

Luhansk city council website does not publicize requests of city council deputies. Also, they do not have published resolution to regulate the amount of deputy funds for the fulfillment of deputies’ powers and the procedure of their use. The website lacks the plan for the deputies to fulfill voters’ mandate.

Openness?

CITY MAYOR49%

Public Participation?49%

The city council has no ‘hot line’ for immediate addresses from citizens, including also addresses to the city mayor. The city mayor rarely ever initiates any public discussions (public hearings, general meeting) on relevant issues to local self-governance, or holds consultations with the public (interest groups) on burning high-profile local problems.

Citizens can find on the official website the description of the procedure to submit a request online, including also how to address a city mayor. The city council structure does not provide for any unit to establish cooperation with civil society organizations. At the same time, there is another positive aspect since the city mayor has separate advisory consultancy bodies such as public council and specialized working groups. However, the last meeting of an advisory body took place back in April 2014.

EXECUTIVE BODIES56%

Public Participation?30%

The council website lacks detailed information on procedures for public hearings such as the procedure for initiating and holding the hearings, and also accounting for their results. Besides, there is no free access to detailed information on other public participation mechanisms (local initiative, general meeting of citizens). Citizens can freely attend the executive committee meetings only upon receiving a prior permission thereon (by submitting the respective written application and receiving the response thereon). At the same time, all announcements on holding public hearings are published at least two weeks in advance and contain detailed information on the subject under discussion (agenda, draft documents). Also, the website has detailed information (minutes/shorthand version) on the results of all public hearings held (at least for the last year).

However, there is no convenient navigation system throughout the website; the interface needs improvement to make it more user-friendly. Sections and chapters need better structuring. The interface is not overloaded with disordered textual and multimedia information. The website is not adjustable for disabled persons. The website, is not adjustable for visually impaired persons such as there is no contrast adjustment, font scaling, sound accompaniment of user actions, keyboard access, etc.

There are established functioning advisory consultancy bodies at executive bodies such as working groups and public councils. However, the last meeting of an advisory body took place back in April 2014.

Access to Public Information?58%

The council official website has a separate section ‘On Access to Public Information’. It contains all necessary information such as details on the procedures to file and submit requests for information. Also, the website has a functioning system for keeping record of public information. The website hosts request forms for public information to be obtained through different means and which can be submitted from different subjects. The council website has a published procedure for disputing resolutions (acts or inactivity) by information administrators. In fact, an information request can be submitted by all possible means such as by mail, by an email, by fax, via telephone, and in person. Also, the website has a special online form to submit a request for information.

Administrative Services?60%

ЦНАП м. Луганськ  має функціонуючий веб-сайт, що містить інформацію про порядок надання відповідних АП, режим доступу до приміщення, де здійснюється прийом суб’єктів звернень, наявність сполучення громадського транспорту, під’їзних шляхів та місць паркування. У Центрі проводиться прийом громадян – не менше 6 днів на тиждень та 7 годин на день, без перерви на обід; не менше двох днів на тиждень здійснюється прийом до двадцятої години. У ЦНАП організовано електронну чергу. У приміщенні ЦНАП безоплатно поширюються довідково-інформаційні матеріали про адміністративні послуги. Існує можливість отримати інформацію про послуги за допомогою засобів телекомунікації (телефону, електронної пошти, інших засобів зв’язку). У приміщенні ЦНАП облаштовані  інформаційні стенди із зразками відповідних документів та інформації в обсязі, достатньому для отримання адміністративної послуги без сторонньої допомоги. Наявні бланки для заповнення (зразки) з метою отримання адміністративних послуг.

DEPUTIES39%

Public Participation?39%

The city council has all necessary adjustments to allow access of disabled persons to the premises, including also to the plenary session halls. In order to attend city council plenary sessions, citizens need to register in advance. It makes it more complicated for the voters to follow the work of Luhansk city council. The website does not have any procedures for citizens to freely speak out at plenary sessions of the city council. The website does not have information on the procedure to regulate access of citizens to meetings of deputy commissions. Citizens may attend meetings of all deputy commissions only upon prior registration. Most city council deputies personally receive voters at a set time and in a fixed place.

Accountability?

CITY MAYOR45%

Financial Resources of Municipality?100%

The council website hosts an annual report on budget implementation adopted by the council. It contains information on the implementation status of the main financial document of the city.

Report on the City Mayor’s Performance?40%

The city mayor annually reports to the city council on the implementation of state regulatory policy by the council executive bodies. Also, printed media publish an annual report on the implementation of state regulatory policy by executive bodies. The city mayor annually reports to the council on the work of executive bodies. Full text of the city mayor’s report on the work of executive bodies is published on the council website or in the printed media. Moreover, the city mayor reports on his work to the public at an open meeting on an annual basis. A drawback is that a detailed reporting procedure of the city mayor is not stipulated in the Statute of Local Community or in any other provisions.

Once in a year, the city mayor informs the community at an open meeting on the implementation of programmes for social, economic and cultural development of the city, and also on the implementation of local special purpose programmes.

EXECUTIVE BODIES35%

Reporting on Performance of the Council Executive Bodies?20%

The council website lacks reports from all executive bodies (departments) for the last year. At the same time, information on place and time for reporting of all executive bodies is published in advance in all local media. The council website lacks detailed information on financial resources (structure and amounts of expenditures of local budget, procedures and mechanisms of their spending) that are spent to support the operations of a local self-government body, executive bodies in particular.

The council website publishes a report on implementing programmes of social, economic and cultural development. At the same time, interim reports on the implementation of special purpose programmes in the current year are not publicized. Nevertheless, final reports are published. Executive bodies submit to the council written reports on the course and outcomes of municipal property alienation.

Financial resources of Municipality?39%

The council website publishes detailed information (with budget funds administrators’ names) on the structure and scope of local budget expenditures. Also, the website publishes quarterly reports on local budget execution.

Regulatory Policy?100%

Усі звіти про відстеження результативності регуляторних актів публікуються на веб-сайті ради або в друкованих органах.

DEPUTIES34%

Reporting on Performance Results?34%

The procedure of deputies’ reporting to local community is not regulated in the Statute of Local Community or in any other separate provisions of the council. No resolution of the city council adopts any terms for deputies’ reporting to the voters or any schedule for deputies’ reporting are published on the website. Relevant up-to-date reports on the work of the city council deputies are not available at the council website. Also, the website lacks information (reports) on the amount of funds allocated for citizen needs. All permanent deputy commissions reported to the council. Not all deputies report on their work to the voters of the respective constituency at least once a year.

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