Zakon o ratifikaciji Evropske listine lokalne samouprave (MELLS)

Ratificira se Evropska listina lokalne samouprave, ki je bila podpisana 15. oktobra 1985 v Strasbourgu v angleškem in francoskem jeziku.

Besedilo listine v angleškem izvirniku in slovenskem prevodu se glasi: The member States of the Council of Europe, signatory hereto, Considering that the aim of the Council of Europe is to achieve a greater unity between its members for the purpose of safeguarding and realising the ideals and principles which are their common heritage; Considering that one of the methods by which this aim is to be achieved is through agreements in the administrative field; Considering that the local authorities are one of the main foundations of any democratic regime; Considering that the right of citizens to participate in the conduct of public affairs is one of the democratic principles that are shared by all member States of the Council of Europe; Convinced that it is at local level that this right can be most directly exercised; Convinced that the existence of local authorities with real responsibilities can provide an administration which is both effective and close to the citizen; Aware that the safeguarding and reinforcement of local self-government in the different European countries is an important contribution to the construction of a Europe based on the principles of democracy and the decentralisation of power; Asserting that this entails the existence of local authorities endowed with democratically constituted decision-making bodies and possessing a wide degree of autonomy with regard to their responsibilities, the ways and means by which those responsibilities are exercised and the resources required for their fulfilment, Have agreed as follows: The Parties undertake to consider themselves bound by the following articles in the manner and to the extent prescribed in Article 12 of this Charter. The principle of local self-government shall be recognised in domestic legislation, and where practicable in the constitution. 1. Local self-government denotes the right and the ability of local authorities, within the limits of the law, to regulate and manage a substantial share of public affairs under their own responsibility and in the interests of the local population. 2. This right shall be exercised by councils or assemblies composed of members freely elected by secret ballot on the basis of direct, equal, universal suffrage, and which may possess executive organs responsible to them. This provision shall in no way affect recourse to assemblies of citizens, referendums or any other form of direct participation where it is permitted by statute. 1. The basic powers and responsibilities of local authorities shall be prescribed by the constitution or by statute. However, this provision shall not prevent the attribution to local authorities of powers and responsibilities for specific purposes in accordance with the law. 2. Local authorities shall, within the limits of the law, have full discretion to exercise their initiative with regard to any matter which is not excluded from their competence nor assigned to any other authority. 3. Public responsibilities shall generally be exercised, in preference, by those authorities which are closest to the citizen. Allocation of responsibility to another authority should weigh up the extent and nature of the task and requirements of efficiency and economy. 4. Powers given to local authorities shall normally be full and exclusive. They may not be undermined or limited by another, central or regional, authority except as provided for by the law. 5. Where powers are delegated to them by a central or regional authority, local authorities shall, insofar as possible, be allowed discretion in adapting their exercise to local conditions. 6. Local authorities shall be consulted, in so far as possible, in due time and in an appropriate way in the planning and decision-making processes for all matters which concern them directly. Changes in local authority boundaries shall not be made without prior consultation of the local communities concerned, possibly by means of a referendum where this is permitted by statute. 1. Without prejudice to more general statutory provisions, local authorities shall be able to determine their own internal administrative structures in order to adapt them to local needs and ensure effective management. 2. The conditions of service of local government employees shall be such as to permit the recruitment of high-quality staff on the basis of merit and competence; to this end adequate training opportunities, remuneration and career prospects shall be provided. 1. The conditions of office of local elected representatives shall provide for free exercise of their functions. 2. They shall allow for appropriate financial compensation for expenses incurred in the exercise of the office in question as well as, where appropriate, compensation for loss of earnings or remuneration for work done and corresponding welfare protection. 3. Any functions and activities which are deemed incompatible with the holding of local elective office shall be determined by statute or fundamental legal principles. 1. Any administrative supervision of local authorities may only be exercised according to such procedures and in such cases as are provided for by the constitution or by statute. 2. Any administrative supervision of the activities of the local authorities shall normally aim only at ensuring compliance with the law and with constitutional principles. Administrative supervision may however be exercised with regard to expediency by higher-level authorities in respect of tasks the execution of which is delegated to local authorities. 3. Administrative supervision of local authorities shall be exercised in such a way as to ensure that the intervention of the controlling authority is kept in proportion to the importance of the interests which it is intended to protect. 1. Local authorities shall be entitled, within national economic policy, to adequate financial resources of their own, of which they may dispose freely within the framework of their powers. 2. Local authorities’ financial resources shall be commensurate with the responsibilities provided for by the constitution and the law. 3. Part at least of the financial resources of local authorities shall derive from local taxes and charges of which, within the limits of statute, they have the power to determine the rate. 4. The financial systems on which resources available to local authorities are based shall be of a sufficiently diversified and buoyant nature to enable them to keep pace as far as practically possible with the real evolution of the cost of carrying out their tasks. 5. The protection of financially weaker local authorities calls for the institution of financial equalisation procedures or equivalent measures which are designed to correct the effects of the unequal distribution of potential sources of finance and of the financial burden they must support. Such procedures or measures shall not diminish the discretion local authorities may exercise within their own sphere of responsibility. 6. Local authorities shall be consulted, in an appropriate manner, on the way in which redistributed resources are to be allocated to them. 7. As far as possible, grants to local authorities shall not be earmarked for the financing of specific projects. The provision of grants shall not remove the basic freedom of local authorities to exercise policy discretion within their own jurisdiction. 8. For the purpose of borrowing for capital investment, local authorities shall have access to the national capital market within the limits of the law. 1. Local authorities shall be entitled, in exercising their powers, to co-operate and, within the framework of the law, to form consortia with other local authorities in order to carry out tasks of common interest. 2. The entitlement of local authorities to belong to an association for the protection and promotion of their common interests and to belong to an international association of local authorities shall be recognised in each State. 3. Local authorities shall be entitled, under such conditions as may be provided for by the law, to co-operate with their counterparts in other States. Local authorities have the right of recourse to a judicial remedy in order to secure free exercise of their powers and respect for such principles of local self-government as are enshrined in the constitution or domestic legislation. 1. Each Party undertakes to consider itself bound by at least twenty paragraphs of Part 1 of the Charter, at least ten of which shall be selected from among the following paragraphs: – Article 2, – Article 3, paragraphs 1 and 2, – Article 4, paragraphs 1, 2 and 4, – Article 5, – Article 7, paragraph 1 – Article 8, paragraph 2, – Article 9, paragraphs 1, 2 and 3, – Article 10, paragraph 1 – Article 11. 2. Each Contracting State, when depositing its instrument of ratification, acceptance or approval, shall notify the Secretary General of the Council of Europe of the paragraphs selected in accordance with the provisions of paragraph 1 of this Article. 3. Any party may, at any later time, notify to the Secretary General that it considers itself bound by any paragraphs of this Charter which it has not already accepted under the terms of paragraph 1 of this Article. Such undertakings subsequently given shall be deemed to be an integral part of the ratification, acceptance or approval of the Party so notifying, and shall have the same effect as from the first day of the month following the expiration of a period of three months after the date of the receipt of the notification by the Secretary General. The principles of local self-government contained in the present Charter apply to all the categories of local authorities existing within the territory of the Party. However, each Party may, when depositing its instrument of ratification, acceptance or approval, specify the categories of local or regional authorities to which it intends to confine the scope of the Charter or which it intends to exclude from its scope. It may also include further categories of local or regional authorities within the scope of the Charter by subsequent notification to the Secretary General of the Council of Europe. Each Party shall forward to the Secretary General of the Council of Europe all relevant information concerning legislative provisions and other measures taken by it for the purposes of complying with the terms of this Charter. 1. This Charter shall be open for signature by member States of the Council of Europe. It is subject to ratification, acceptance or approval. Instruments of ratification, acceptance or approval shall be deposited with the Secretary General of the Council of Europe. 2. This Charter shall enter into force on the first day of the month following the expiration of a period of three months after the date on which four member States of the Council of Europe have expressed their consent to be bound by the Charter in accordance with the provisions of the preceding paragraph. 3. In respect of any member State which subsequently expresses its consent to be bound by it, the Charter shall enter into force on the first day of the month following the expiration of a period of three months after the date of the deposit of the instrument of ratification, acceptance or approval. 1. Any State may at the time of signature or when depositing its instrument of ratification, acceptance, approval or accession, specify the territory or territories to which this Charter shall apply. 2. Any State may at a later date, by a declaration addressed to the Secretary General of the Council of Europe, extend the application of this Charter to any other territory specified in the declaration. In respect of such territory the Charter shall enter into force on the first day of the month following the expiration of a period of three months after the date of receipt of such declaration by the Secretary General. 3. Any declaration made under the two preceding paragraphs may, in respect of any territory specified in such declaration, be withdrawn by a notification addressed to the Secretary General. The withdrawal shall become effective on the first day of the month following the expiration of a period of six months after the date of receipt of such notification by the Secretary General. 1. Any Party may denounce this Charter at any time after the expiration of a period of five years from the date on which the Charter entered into force for it. Six months’ notice shall be given to the Secretary General of the Council of Europe. Such denunciation shall not affect the validity of the Charter in respect of the other Parties provided that at all times there are not less than four such Parties. 2. Any Party may, in accordance with the provisions set out in the preceding paragraph, denounce any paragraph of Part I of the Charter accepted by it provided that the Party remains bound by the number and type of paragraphs stipulated in Article 12, paragraph 1. Any Party which, upon denouncing a paragraph, no longer meets the requirements of Article 12, paragraph 1, shall be considered as also having denounced the Charter itself. The Secretary General of the Council of Europe shall notify the member States of the Council of Europe of: a. any signature; b. the deposit of any instrument of ratification, acceptance or approval; c. any date of entry into force of this Charter in accordance with Article 15; d. any notification received in application of the provisions of Article 12, paragraphs 2 and 3; e. any notification received in application of the provisions of Article 13; f. any other act, notification or communication relating to this Charter. In witness whereof the undersigned, being duly authorised thereto, have signed this Charter. Done at Strasbourg, this 15th day of October 1985, in English and French, both texts being equally authentic, in a single copy which shall be deposited in the archives of the Council of Europe. The Secretary General of the Council of Europe shall transmit certified copies to each member State of the Council of Europe. Države članice Sveta Evrope, podpisnice te listine, upoštevajo, da je cilj Sveta Evrope doseči večjo enotnost med njenimi članicami zaradi zaščite in uresničevanja idealov in načel, ki so njihova skupna dediščina; upoštevajo, da je eden od načinov za dosego tega cilja dogovarjanje na upravnem področju; upoštevajo, da so lokalne oblasti eden od glavnih temeljev vsake demokratične ureditve; upoštevajo, da je pravica državljanov sodelovati pri opravljanju javnih zadev eno od demokratičnih načel, ki so skupna vsem državam članicam Sveta Evrope; so prepričane, da se ta pravica lahko najneposredneje uresničuje na lokalni ravni; so prepričane, da obstoj lokalnih oblasti z dejanskimi nalogami lahko zagotovi upravo, ki je učinkovita in hkrati blizu državljanom; se zavedajo, da sta varovanje in ponovna uveljavitev lokalne samouprave v različnih evropskih državah pomemben prispevek h graditvi Evrope po načelih demokracije in decentralizacije oblasti; izjavljajo, da to terja obstoj lokalnih oblasti z demokratično postavljenimi telesi odločanja in z veliko stopnjo avtonomije glede njihovih pristojnosti, načine in sredstva za izvajanje teh pristojnosti ter potrebne vire za njihovo izpolnjevanje, in so se zato dogovorile, kot sledi:

Pogodbenice se zavezujejo, da se bodo ravnale po naslednjih členih na način in v obsegu, določenem v 12. členu te listine.

Načelo lokalne samouprave se priznava v domači zakonodaji in v ustavi, kjer je to mogoče.

1. Lokalna samouprava označuje pravico in sposobnost lokalnih oblasti, da v mejah zakona urejajo in opravljajo bistveni del javnih zadev v okviru svojih nalog in v korist lokalnega prebivalstva. 2. To pravico uresničujejo sveti ali skupščine, ki jih sestavljajo člani, izvoljeni s svobodnim in tajnim glasovanjem na podlagi neposredne, enakopravne in splošne volilne pravice, in imajo lahko izvršilne organe, ki so jim odgovorni. Te določbe na noben način ne vplivajo na reševanje zadev tudi na zborih državljanov, referendumih ali kakšni drugi obliki neposredne udeležbe državljanov, kjer to dopušča zakon.

1. Temeljna pooblastila in naloge lokalnih oblasti so predpisani z ustavo in zakonom. Ta določba pa ne preprečuje prenosa pooblastil in nalog za posebne namene v skladu z zakonom na lokalne oblasti. 2. Lokalne oblasti imajo v okviru zakona polno svobodo pri uresničevanju svojih pobud glede vsake stvari, ki ni izključena iz njihove pristojnosti ali ni v pristojnosti kakšne druge oblasti. 3. Javne naloge naj po možnosti izvajajo tiste oblasti, ki so državljanom najbližje. Dodelitev naloge drugi oblasti bi morala biti utemeljena z obsegom in naravo take naloge in zahtevami za učinkovitost in gospodarnost. 4. Pooblastila, dana lokalnim oblastem, morajo praviloma biti polna in izključna. Ne sme jih izpodkopavati ali omejevati druga, osrednja ali pokrajinska oblast, razen če zakon tako določa. 5. Pri pooblastilih, ki jih nanje prenaša osrednja ali pokrajinska oblast, je lokalnim oblastem, kolikor je mogoče, treba pustiti svobodo odločanja pri prilagajanju njihovega izvajanja krajevnim razmeram. 6. Kolikor je mogoče, je treba lokalne oblasti pravočasno in na primeren način vprašati za mnenje pri načrtovanju in odločanju v vseh stvareh, ki jih neposredno zadevajo.

Meje lokalne oblasti se ne spreminjajo brez predhodnega posvetovanja z lokalnimi skupnostmi, na katere se nanašajo, po možnosti z referendumom, kjer to dopušča zakon.

1. Brez vpliva na splošnejše zakonske določbe lahko lokalne oblasti določijo svoje lastne upravne strukture zaradi prilagoditve krajevnim potrebam in zagotovitve učinkovitega upravljanja. 2. Pogoji za opravljanje dela zaposlenih v lokalni upravi naj omogočajo zaposlovanje zelo kakovostnega osebja na temelju uspešnosti in sposobnosti; za to je treba zagotoviti primerne možnosti za usposabljanje, nagrajevanje in napredovanje v službi.

1. Pogoji za delovanje krajevno izvoljenih predstavnikov naj zagotavljajo svobodno opravljanje njihovih funkcij. 2. Omogočajo naj ustrezno denarno povračilo stroškov, ki jih imajo pri opravljanju svoje funkcije, kot tudi, kjer je to primerno, nadomestilo za izgubljeni zaslužek ali plačilo za opravljeno delo in ustrezno socialno varstvo. 3. Vse funkcije in dejavnosti, za katere se šteje, da so nezdružljive z delovanjem izvoljenega v lokalni upravi, so določene z zakonom ali temeljnimi pravnimi načeli.

1. Upravni nadzor nad lokalnimi oblastmi se lahko izvaja samo po postopkih in v primerih, ki jih predvideva ustava ali zakon. 2. Vsak upravni nadzor nad dejavnostmi lokalnih oblasti je praviloma usmerjen samo k zagotavljanju skladnosti z zakonom in ustavnimi načeli. Oblasti višje stopnje pa lahko izvajajo upravni nadzor tudi glede primernosti izvajanja nalog, ki so prenesene na lokalne oblasti. 3. Upravni nadzor nad lokalnimi oblastmi se opravlja na način, ki zagotavlja, da poseg nadzornih oblasti ostane v razmerju s pomembnostjo interesov, ki naj jih varuje.

1. Lokalne oblasti so v okvirih nacionalne gospodarske politike upravičene do ustreznih lastnih finančnih virov, s katerimi v okviru svojih pooblastil prosto razpolagajo. 2. Finančni viri lokalnih oblasti morajo biti v sorazmerju z nalogami, ki jih določata ustava in zakon. 3. Vsaj del finančnih virov lokalnih oblasti izvira iz krajevnih davkov in prispevkov, katerih višino v okviru zakona lahko določajo same. 4. Finančni sistemi, na katerih temeljijo viri, ki so na voljo lokalnim oblastem, naj bodo dovolj raznovrstni in prilagodljivi, da lahko, kolikor je praktično mogoče, sledijo dejanskemu gibanju stroškov opravljanja njihovih nalog. 5. Za zaščito finančno šibkejših lokalnih skupnosti je treba uvesti postopke za finančno izravnavo ali druge ustrezne ukrepe za popravo učinkov neenake porazdelitve možnih finančnih virov in finančnega bremena, ki ga nosijo. Taki postopki ali ukrepi ne smejo zmanjševati svobode odločanja lokalnih oblasti na področju njihovih nalog. 6. Lokalne oblasti je treba na primeren način vprašati za mnenje o tem, na kakšen način naj se jim dodelijo prerazporejeni viri. 7. Subvencije oziroma dotacije lokalnim oblastem naj, kolikor je to mogoče, ne bodo strogo namenske za financiranje določenih projektov. Zagotavljanje takih sredstev ne sme posegati v temeljno svoboščino lokalnih oblasti, da prosto odločajo v okviru svoje lastne pristojnosti. 8. Za najemanje posojil za večje investicije imajo lokalne oblasti v mejah zakona dostop do domačega trga kapitala.

1. Lokalne oblasti imajo pri izvajanju svojih pooblastil pravico sodelovati in v okviru zakona oblikovati konzorcije z drugimi lokalnimi oblastmi za izvajanje nalog skupnega pomena. 2. V vsaki državi se prizna pravica lokalnih skupnosti do združevanja za varstvo in pospeševanje skupnih koristi in do mednarodnega združevanja lokalnih skupnosti. 3. Pod pogoji, ki jih lahko določi zakon, imajo lokalne oblasti pravico do sodelovanja z ustreznimi organi v drugih državah.

Lokalne oblasti imajo pravico do sodnega varstva, da zagotovijo prosto izvajanje svojih pooblastil in spoštovanje takih načel lokalne samouprave, kot so zapisana v ustavi ali domači zakonodaji.

1. Vsaka pogodbenica se zaveže, da bo spoštovala vsaj dvajset odstavkov I. dela listine, od katerih jih bo izbrala najmanj deset, ki jih vsebujejo: – 2. člen, – prvi in drugi odstavek 3. člena, – prvi, drugi in četrti odstavek 4. člena, – 5. člen, – prvi odstavek 7. člena, – drugi odstavek 8. člena, – prvi, drugi in tretji odstavek 9. člena, – prvi odstavek 10. člena, – 11. člen. 2. Vsaka država pogodbenica ob deponiranju svoje listine o ratifikaciji, sprejemu ali odobritvi obvesti generalnega sekretarja Sveta Evrope o izbranih odstavkih v skladu z določbami prvega odstavka tega člena. 3. Vsaka pogodbenica lahko kadar koli pozneje generalnega sekretarja obvesti, da jo zavezuje kateri koli odstavek te listine, ki ga še ni sprejela po prvem odstavku tega člena. Taka kasneje izražena zavezanost se šteje za sestavni del ratifikacije, sprejema ali odobritve pogodbenice, ki pošlje tako obvestilo, in ima enak učinek od prvega dne meseca, ki sledi izteku treh mesecev od dneva, ko je generalni sekretar prejel notifikacijo.

Načela lokalne samouprave, ki jih vsebuje ta listina, se nanašajo na vse vrste lokalnih oblasti na ozemlju pogodbenice. Vendar pa lahko vsaka pogodbenica ob deponiranju svoje listine o ratifikaciji, sprejemu ali odobritvi posebej navede posamezne vrste lokalnih ali regionalnih oblasti, na katere namerava omejiti uporabo listine ali ki jih namerava izključiti iz njene uporabe. S kasnejšo notifikacijo generalnemu sekretarju Sveta Evrope lahko uporabo listine tudi razširi na nadaljnje vrste lokalnih ali regionalnih oblasti.

Vsaka pogodbenica pošlje generalnemu sekretarju Sveta Evrope vse ustrezne informacije, ki zadevajo zakonske določbe in druge ukrepe, sprejete zaradi uskladitve z določili te listine.

1. Ta listina je na voljo za podpis državam članicam Sveta Evrope. Treba jo je ratificirati, sprejeti ali odobriti. Listine o ratifikaciji, sprejemu ali odobritvi se deponirajo pri generalnem sekretarju Sveta Evrope. 2. Listina začne veljati prvi dan meseca, ki sledi izteku treh mesecev od dneva, ko so štiri države članice Sveta Evrope izrazile svoje soglasje, da jih listina zavezuje v skladu z določbami prejšnjega odstavka. 3. Za vsako državo članico, ki pozneje izrazi svoje soglasje, da jo listina zavezuje, začne listina veljati prvi dan meseca, ki sledi izteku treh mesecev od dneva deponiranja listine o ratifikaciji, sprejemu ali odobritvi.

1. Vsaka država lahko ob podpisu ali deponiranju svoje listine o ratifikaciji, sprejemu, odobritvi ali pristopu določi območje ali območja, za katera se ta listina uporablja. 2. Vsaka država lahko kadar koli pozneje z izjavo, naslovljeno na generalnega sekretarja Sveta Evrope, uporabo te listine razširi na katero koli drugo območje, navedeno v izjavi. Za tako območje listina začne veljati prvi dan meseca, ki sledi izteku treh mesecev od dneva, ko je tako izjavo prejel generalni sekretar. 3. Vsaka izjava, dana po prejšnjih dveh odstavkih, se lahko za vsako območje, navedeno v taki izjavi, umakne z notifikacijo, naslovljeno na generalnega sekretarja. Umik začne učinkovati prvi dan meseca, ki sledi izteku šestih mesecev od dneva, ko je tako notifikacijo prejel generalni sekretar.

1. Vsaka pogodbenica lahko to listino odpove kadar koli po izteku petih let od dneva, ko je začela veljati. Obvestilo o odpovedi je treba dati šest mesecev prej generalnemu sekretarju Sveta Evrope. Taka odpoved ne vpliva na veljavnost listine za druge pogodbenice pod pogojem, da število njenih pogodbenic ni nikoli manjše od štiri. 2. Vsaka pogodbenica lahko v skladu z določbami prejšnjega odstavka odpove tudi veljavnost vsakega odstavka I. dela te listine, ki jih je sprejela, pri čemer pogodbenico še vedno zavezujeta število in vrsta odstavkov, določenih v prvem odstavku 12. člena. Šteje se, da je vsaka pogodbenica, ki po odpovedi kakšnega odstavka ne izpolnjuje več zahtev prvega odstavka 12. člena, odpovedala tudi listino samo.

Generalni sekretar Sveta Evrope države članice Sveta Evrope obvesti o: a. vsakem podpisu; b. deponiranju vsake listine o ratifikaciji, sprejemu ali odobritvi; c. vsakem datumu začetka veljavnosti te listine v skladu s 15. členom; d. vsaki notifikaciji, prejeti glede uporabe določb drugega in tretjega odstavka 12. člena; e. vsaki notifikaciji, prejeti glede uporabe določb 13. člena; f. vsakem drugem dejanju, notifikaciji ali sporočilu, ki se nanaša na to listino. V potrditev tega so podpisani, ki so za to pravilno pooblaščeni, podpisali to listino. Sestavljeno v Strasbourgu 15. oktobra 1985 v angleščini in francoščini, pri čemer sta obe besedili enako verodostojni, v enem samem izvodu, ki se hrani v arhivu Sveta Evrope. Generalni sekretar Sveta Evrope vsaki državi članici Sveta Evrope dostavi overjene kopije.

Za izvajanje te listine skrbi Služba Vlade Republike Slovenije za reformo lokalne samouprave.

Ta zakon začne veljati naslednji dan po objavi v Uradnem listu Republike Slovenije – Mednarodne pogodbe. Št. 000-02/96-8/1 Ljubljana, dne 1. oktobra 1996 Predsednik Državnega zbora Republike Slovenije Jožef Školč l. r.