Srbija lošije rangirana po otvorenosti budžeta
Srbija je na novoj, danas objavljenoj listi, zauzela 60. mesto među 100 zemalja rangiranih po indeksu otvorenosti budžeta (Open budget index OBI). Prema rezultatima međunarodnog istraživanja, Srbija ima 39 od mogućih 100 bodova što je svrstava među zemlje koje pružaju svojim građanima „minimum informacija potrebnih za razumevanje i analiziranje budžeta“. To je znatno ispod proseka regiona (52 boda), ali i značajno lošije nego na prethodnom rangiranju, kada je imala 54 poena.
Glavni razlog za ovakav drastičan pad je činjenica da Vlada u procesu donošenja budžeta za 2012. godinu nije objavila fiskalnu strategiju[1] i da se o sadržaju nacrta tog dokumenta moglo suditi samo na osnovu kritika koje je izrekao Fiskalni savet. Na loš indeks uticala je i činjenica da za 2012. godinu nije postojao „građanski budžet“ - dokument u kojem bi predlog budžeta bio približen građanima, a koji se prvi put pojavljuje ove godine.
Povrh toga, postoji niz problema koji su uticali da ocena bude nezadovoljavajuća. Ti problemi bi mogli da se otklone ukoliko vlada ima nameru da vodi transparentnu budžetsku politiku.
Među ključnim potezima bilo bi povećanje broja ministarstava koja imaju programske budžete, kao i omogućavanje građanima, zainteresovanim grupama i stručnjacima da dobiju potpune i pravovremene informacije u toku pripreme budžeta i da kroz javne rasprave utiču na njegov sadržaj. Izmene Zakona o budžetskom sistemu iz septembra 2012, koje su uglavnom bile pozitivne, nisu rešile ovaj problem. Izmenama tog zakona bi takođe trebalo precizirati rokove za reviziju završnog računa budžeta. Indeks otvorenosti budžeta bio bi veći kada bi se poštovao budžetski kalendar, kada bi Vlada izveštavala šta je preduzela povodom preporuka Državne revizorske institucije, odnosno kada bi aktivnosti na ispunjenju tih preporuka pratili i parlament i DRI.
Indeks bi bio veći i kada bi predlog budžeta sadržao podatke o kvazifiskalnim aktivnostima (kao što je kontrolisanje cena koje su ispod tržišnog nivoa od strane Vlade), o prenetim obavezama i zaduženjima, kada bi se jasno videlo koliko deo budžeta se troši na poverljive nabavke i smanjila diskreciona ovlašćenja u trošenju budžetske rezerve.
Uključenje parlamenta u proces planiranja budžeta i otvaranje rasprave o budžetskoj politici pre utvrđivanja predloga budžeta doprinelo bi prema oceni Transparentnosti Srbija boljem rangiranju. Mesečne izveštaje o realizaciji budžeta (bilten javnih finansija) potrebno je objavljivati pravovremeno, odnosno ažurnije, kao i polugodišnji izveštaj o realizaciji budžeta.
Neophodno je u završnom računu budžeta pojasniti eventualna odstupanja prvobitnih makroekonomskih prognoza i ciljeva budžetske politike od ostvarenih rezultata. Većem indeksu bi doprinelo kada bi Državna revizorska institucija detaljno izveštavala kako su podaci dobijeni od javnosti i drugih institucija (kao što su, na primer, izveštaji Uprave za javne nabavke) uticali na izradu plana revizije.
Godišnji Izveštaj o indeksu otvorenosti budžeta organizacije International Budget Partnership donosi i niz primera dobre prakse u svetu: u Južnoj Africi zakonom je propisano da se fiskalni okvir obavezno razmatra u parlamentu na sednici tokom koje sve zainteresovane strane mogu da iznesu svoje stavove; u Nemačkoj budžetski odbor Bundestaga organizuje javna slušanja na kojima se o budžetskim dokumentima izjašnjavaju ekonomisti, sindikati, udruženja poslodavaca, privredne komore, predstavnici asocijacija javnih službi; konsultativni forumi, na kojima javnost ima priliku da učestvuje u procesu izrade budžeta organizuju se u Bocvani; na Filipinima Državna revizorska institucija ima mehanizam za prijavljivanje pronevera javnih sredstava i redovno objavljuje šta je preduzela povodom prijava. Prema oceni Transparentnosti Srbija bilo bi dobro razmisliti o prihvatanju nekih od ovih primera.
Na vrhu ovogodišnje liste, inače, nalaze se Novi Zeland (OBI 93) i Južna Afrika (90), slede Velika Britanija, Švedska, Norveška i Francuska sa indeksima iznad 80. Na samom začelju, sa indeksom nižim od pet su Zambia, Irak, Niger, Čad, Benin, Saudijska Arabija, Ekvatorijalna Gvineja, Mjanmar i Katar. Srbija deli 60. mesto sa Sijera Leoneom i Malezijom.
Od zemalja regiona, Slovenija je sa indeksom 74 u grupi zemalja u kojoj su SAD (79), Rusija (75), Nemačka (71), Bugarska (65) i Hrvatska (61). BiH ima indeks 50, Rumunija i Albanija 47, a Makedonija 35.
Srbija je sa indeksom 39 iznad proseka Podsaharske Afrike (31), ali zaostaje za Latinskom Amerikom (52), a posebno za zemljama Zapada (75).
Nadamo se da će objavljivanje ovih podataka uticati na to da se izmenama Zakona o budžetskom sistemu a posebno promenom prakse i striktnom primenom postojećih dobrih pravila ostvari napredak u otvorenosti, razumljivosti, sveobuhvatnosti i kontroli budžeta.
Transparentnost – Srbija
Beograd, 23. januar 2013.
Šta je Indeks otvorenosti budžeta?
Međunarodno istraživanje o otvorenosti budžeta, na osnovu kojeg se svake druge godine sačinjava Indeksa otvorenosti budžeta, osmislila je američka nevladina organizacija International Budget Partnership. Ovo istraživanje sprovode stručne i od vlasti zemalja u kojima rade nezavisne institucije širom sveta.
Kroz Indeks otvorenosti budžeta ispituje se da li u nekoj zemlji postoji osam ključnih budžetskih dokumenata, da li ti dokumenti sadrže sve podatke koje bi trebalo i u kojoj meri su dostupni javnosti. Drugi segment istraživanja je kvalitet pravnog okvira i delotvornost prakse nadzora parlamenta i vrhovne revizorske institucije nad izvršnom vlašću u vezi sa pripremom i trošenjem budžeta. Najzad, Indeks pokazuje i u kojoj meri građani mogu da utiču na donošenje odluka u vezi sa budžetom.
Indeks otvorenosti budžeta nije ni istraživanje o percepciji (utiscima), ni ispitivanje stavova. Nasuprot tome, ovo je istraživanje koje na osnovu unapred utvrđenih kriterijuma i precizne metodologije daje sliku o transparentnosti budžeta i postojanju javne odgovornosti u budžetskim procesima. Osnova za istraživanje je upitnik koji sadrži 95 pitanja. U okviru svakog pitanja postojeća regulativa ili praksa se ocenjuje u odnosu na stepen dostizanja visokih standarda jednom od pet ocena. Svaka ocena mora biti dokumentovana i obrazložena, a podleže i naknadnoj proveri od strane dvoje nezavisnih stručnjaka iz inostranstva i proveri IBP radi očuvanja konzistentnosti u primeni metodologije. Nakon toga se i predstavnicima vlasti zemlje na koju se istraživanje odnosi daje prilika da ukažu na eventualne propuste istraživača.
Rezultati IBP su prvi put objavljeni 2006, a Srbija je bila rangirana prvi put 2008. U Srbiji, kao partner na projektu, istraživanje sprovodi organizacija Transparentnost – Srbija.
Rangiranje za 2012. godinu načinjeno je na osnovu podataka koji su bili dostupni do 31. decembra 2011. godine.
Dodatne informacije o projektu, metodologiji i rezultatima istraživanja su dostupne na http://www.internationalbudget.org/
[1] Čitav niz pitanja iz istraživanja odnosi se na tzv. „pre-budget statement“, dokument koji se po međunarodnim standardima objavljuje najmanje mesec dana pre podnošenja predloga budžeta, u kojem se objašnjavaju politike koje zastupa Vlada, makroekonomske pretpostavke budžeta i budžetske projekcije. U istraživanjima za Srbiju iz ranijih godina je razmatrana sadržajnost i dostupnost Memoranduma o budžetu i ekonomskoj i fiskalnoj politici, koji je redovno objavljivan. Zakon o budžetskom sistemu iz 2009. je umesto Memoranduma o budžetu, predvideo donošenje Izveštaja o fiskalnoj strategiji, na koji daje mišljenje Fiskalni savet. Međutim, ni nacrt ni revidirana verzija ovog dokumenta nisu objavljeni.
News
Proposals for the implementation of ODIHR recommendations and improvement of election conditions
Transparency Serbia has used the opportunity to present to representatives of parliamentary parties and the Working Group of the Government of Serbia for Cooperation with ODIHR a number of specific proposals and priorities for improving election conditions, especially regarding the financing of the election campaign and preventing the misuse of…
... detaljnije ...TS submitted proposals to the Assembly for the implementation of recommendations from the ODIHR report
Transparency Serbia submitted to the Serbian Parliament and the Government Working Group for the Improvement of the Electoral Process proposals regarding the implementation of certain recommendations from the Final ODIHR report after the December 2023 elections and unfulfilled recommendations after the previous elections. TS informed the ODIHR Observation Mission, the citizens…
... detaljnije ...Ministry of Interior should publish data on migration of voters that it submitted to Prime Minister
The claim of the Prime Minister in the technical mandate, according to which "everyone can check" in how many cases citizens change their residence, not only does not correspond to the factual situation but is directly opposite to the official answer that Transparency Serbia received from the Ministry of Internal…
... detaljnije ...Corruption prevention in the executive branch - useful GRECO recommendations have not yet been implemented
If Serbia were to implement the recommendations it received in March 2022 from GRECO (Group of Countries for Combating Corruption) – a body established by the Council of Europe – it would significantly improve the mechanisms for combating corruption in the work of the executive. However, very little has been…
... detaljnije ...ODIHR calls for improvement of campaign finance rules and prevention of abuse of public resources "well in advance of the…
In the final Report on the December elections, the ODIHR observation mission confirmed some of the findings of Transparency Serbia's monitoring of the election campaign, and a large number of recommendations refer to unresolved issues of election campaign financing, misuse of public resources and participation of public officials in the…
... detaljnije ...The costs of the Belgrade local election campaign - what is shown and what is missing
Although there were 14 election lists in the Belgrade local elections, and the deadline for submitting the final financial reports expired six days ago, only nine lists have been published so far. According to the information published on the Agency for the Prevention of Corruption website, the report on the…
... detaljnije ...Procurement for EXPO 2027 - no minimum deadlines and no legal protection
The Government of Serbia adopted a decree which, in accordance with the lex specialis, prescribes how procurement will be carried out and jobs awarded for EXPO 2027. Nemanja Nenadić from Transparency Serbia for N1 says that the differences between the rules prescribed by the Law on Public Procurement and this…
... detaljnije ...Serbia continues to fall on global list of Transparency International's Corruption Perception Index
In Serbia, there is no political will to reduce corruption; the Government bypasses laws on public procurement, passes special laws for multimillion-projects that are important to it, does not adopt an anti-corruption strategy, and is increasingly distant from the rule of law. It was said at the Transparency of Serbia…
... detaljnije ...TS calls on MIA and HPPO to publish additional information on their actions regarding election irregularities
The information presented to the public by the Ministry of Internal Affairs (MIA), the Ministry of State Administration and Local Self-Government (MSALSG), as well as the Higher Public Prosecutor's Office (HPPO) in Belgrade, regarding allegations of illegality in the electoral list and vote buying, are not sufficient to dispel publicly…
... detaljnije ...Alarm over indications of serious election breaches
Transparency International urgently calls on the Serbian authorities to investigate potential abuses of public office and resources by the ruling party during the 17 December elections. It is also crucial to swiftly determine whether vote-buying took place. The prosecution and the Agency for Prevention of Corruption (APC) need to promptly…
... detaljnije ...
In the election campaign, blurred line between state and the party - a sharp and valuable report by ODIHR
The observation mission of the ODIHR already in the preliminary Report highlighted not only the shortcomings of legal solutions but also numerous severe violations of the law during the campaign and election day, among which are problems for which Transparency Serbia has been proposing concrete solutions for years. The International Election…
... detaljnije ...Unfulfilled obligations and priorities for the fight against corruption
The International Anti-Corruption Day, 9 December, is a good reason to call on the Parliament and the Government, which will be formed after the upcoming elections, to finally adopt one of the most effective mechanisms for the fight against corruption - the introduction of illegal enrichment, as a criminal offence…
... detaljnije ...EC report – benevolent conclusion on progress and numerous unresolved problems
The European Commission's assessment[1] of Serbia's "limited progress" in the fight against corruption is too benevolent. On the other hand, the EC report is significant, as it points to some of the most important unresolved issues, including direct contracting of procurement for infrastructure projects, illegal acting state in public administration…
... detaljnije ...The work of temporary bodies during the election campaign must be transparent
Transparency Serbia has indicated to the presidents and members of temporary working bodies in 65 cities and municipalities that they have an obligation to ensure the publicity of their work by allowing journalists to attend the sessions and publishing the explanations for the decisions they make. Based on the Law on…
... detaljnije ...Violations marked the introduction to local elections
Information about the fact that the leaders of around 70 cities and municipalities submitted their resignations – meaning their mandate ended – cannot be found on the Agency for the Prevention of Corruption website. It means that the assemblies of these cities and municipalities violated the legal obligation. An even bigger…
... detaljnije ...The amendment to the Law on Electronic Media does not solve the problem of "public officials' campaign"
The provision of the Law on Electronic Media, passed today, even with the amendment that was adopted by the Parliamentary Information Committee – allegedly to fulfil the ODIHR recommendation – does not solve the problems related to the promotional activities of public officials and does not represent the fulfilment of…
... detaljnije ...An amendment to prevent procurement for EXPO 2027 from being conducted without applying the Law on Public Procurement
Transparency Serbia has submitted to parliamentary groups in the Parliament of Serbia a proposal for an amendment to the Special Law on EXPO 2027 that would remove one of the significant corruption risks by obliging the special companies that will be formed for the implementation of the project to apply…
... detaljnije ...Novi Pazar, Sombor and Veliko Gradište the Most Transparent Local Governments in 2023
Novi Pazar, Sombor and Veliko Gradište are the most transparent local governments in 2023 according to the Local Transparency Index published today by Transparency Serbia, with support from the United States Agency for International Development (USAID). Since 2015, the Index has been measuring the transparency of all 145 local governments…
... detaljnije ...No public procurement for EXPO 2027 project
Works for the construction of the exhibition area for EXPO 2027, facilities for the accommodation of participants and visitors, the National Stadium and supporting infrastructure – the value of which could amount to one billion euros – will be contracted without the application of the Law on Public Procurement, which…
... detaljnije ...Which Local Governments Were the Most Transparent in Serbia in 2023?
On October 13, 2023, Transparency Serbia and the United States Agency for International Development (USAID) will present the results of the 2023 Local Transparency Index (LTI). The Index has been measuring the transparency of all 145 local governments and 25 city municipalities in Serbia each year since 2015 and tracks…
... detaljnije ...
EPS illegally withholds information
EPS AD (Electric Power Company of Serbia), joint stock company unlawfully withholds essential information from the public about its work and the possible disposing of the assets of great value. Transparency Serbia, since 26 May 2023, has been trying to verify with the Electric Power Company of Serbia the allegations…
... detaljnije ...On amendments to the Law on Prevention of Corruption
The draft amendments to the Law on the Prevention of Corruption[1], presented for public discussion, respond to the GRECO's recommendations for Serbia[2] to a limited extent. On the other hand, it does not contain measures to reduce the scope of the "official campaign" and to increase the capacity of control…
... detaljnije ...The new draft law on the management of state-owned enterprises still needs amendments
The new proposal of the Law on the Management of Public Enterprises Owned by the Republic of Serbia is better than the previously withdrawn one. Still, it also needs to be amended, primarily in the area related to preventing misuse of public resources during the election campaign, transitional provisions and…
... detaljnije ...Corrupt risks of free conversion not taken into account
Amendments to the Law on Planning and Construction carry a high corruption risk because the state is giving up potential public revenues in favour of individual companies and, at the same time, threatens legal certainty and equality before the law. The amendments provide for the free conversion of the "right of…
... detaljnije ...What needs to be fixed in the proposal of the law on the management of state enterprises
Transparency Serbia sent the Government of Serbia, the Ministry of Economy and the Agency for the Prevention of Corruption a detailed analysis of corruption risks and other shortcomings in the draft law on managing business companies owned by the Republic of Serbia (SOE). The proposal for a law on companies owned…
... detaljnije ...Directors of SOE outside the reach of anti-corruption regulations
The directors of the largest state-owned companies (SOE), which manage assets worth tens of billions of euros, will not have the obligations, restrictions or control provided for public officials in the Law on Prevention of Corruption if the deputies adopt the proposed Law on the Management of Companies Owned by…
... detaljnije ...One of the laws crumbling the public procurement system repealed
The repeal of the law on line infrastructure[1], which opened up a huge space for discretionary decision-making and had the potential for corruption, is good news after years of crumbling public procurement systems. However, it is essential to emphasize that by deleting this law, only one of the channels for…
... detaljnije ...Change the selection method for independent bodies' managers
The legal rules leave too much room for political parties to influence the election of heads of independent bodies, Transparency Serbia emphasises. Although the majority of MPs decide the election - which is inevitable - the parties also have the sole or decisive say in the candidacy phase. At today's session…
... detaljnije ...Harmful and unexplained amendments to the Statute of ”JP Elektroprivreda Srbije”
Amendments to the articles of founding act and the Statute of ”JP Elektroprivreda Srbije” will have very harmful consequences on the implementation of anti-corruption laws in the largest Serbian public company, Transparency Serbia warns. In addition, the key reasons for changes are not explained and the legal basis is disputed. The…
... detaljnije ...Prosecutor's Office should increase the transparency of its work and investigate all abuses in EPS
The Higher Public Prosecutor's Office (HPPO) in Belgrade, in response to a request for access to information sent by Transparency Serbia, confirmed[1] that there is no evidence that prosecutor Bojana Savović requested a transfer from the Special Department for the Fight against Corruption. At the same time, HPPO did not submit…
... detaljnije ...
- 1
- 2
- 3