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UDC: 351.329:336.58
DOI: https://doi.org/10.32689/2617-2224-2019-17-2-108-121
Kustova Svitlana Mykolayivna,
PhD student of the Department of Parliamentarism and Political Management of the National Academy of Public Administration under the President of Ukraine, Honored Lawyer of Ukraine, 02000, Ukraine, Kyiv, Str. Ezhena Potier, 20, tel.: +38 (066) 030 71 58, e-mail: pravoved1996@ukr.net
ORCID: 0000-0002-5387-222X Кустова Свтлана Миколагвна, асшрант кафедри парламентаризму та полтичного менеджменту, Нащональна академiя державного управлтня при Пре-зидентовi Украти, Заслужений юрист Украти. 02000, Украта, Knie, вул. Ежена Потье, 20, тел.:+38 (066) 030 71 58, е-mail: pravoved1996@ukr.net
ORCID: 0000-0002-5387-222X
Кустова Светлана Николаевна,
аспирант кафедры парламентаризма и политического менеджмента, Национальная академия государственного управления при Президенте Украины. Заслуженный юрист Украины. 02000, Украина, Киев, ул. Эжена Потье, 20, тел.:+38 (066) 030 71 58, е-mail: pravoved1996@ukr.net
ORCID: 0000-0002-5387-222X
MAIN PRiNCiPLES FOR REGULATiON OF PUBLiC FiNANCiNG OF POLiTiCAL PARTiES: EXPERiENCE OF DEVELOPED DEMOCRACY COUNTRIES AND uKRAiNE
Abstract. The article considers the generalized experience of developed democracies in relation to the legal foundations of state regulation of financing of political parties and the practical possibilities of using it in Ukraine. The article analyzes the provisions of the draft laws on changes in the system of state regulation of financing of political parties in Ukraine and suggests ways to improve it.
It has been shown that the experience of state funding of political parties in developed democracies, in particular, in European countries, is successful. It is noted that the efficiency and effectiveness of the system of financing political parties does not depend on the existence of a special law on financing. It is noted that such social relations can be regulated as separate legislative acts, as well as in the
form of a system of provisions in various laws — constitutions, party laws, electoral legislation, anti-corruption laws.
It is argued that state financing of political parties is one of the effective tools in the fight against political corruption and provision of parties with the necessary resources for statutory activities and their development.
The author draws attention to the European practice of state financing of the activities of political parties, which have a high rating, and those that only nominate candidates for elections. This can guarantee equality of opportunity for various political forces. So, public funding must be determined in proportion to the political support that the party has received. At the same time, the author is convinced that excessive dependence on state financing may lead to a weakening of ties between parties and their electorate.
The article also states that in the European experience state and private funding of political parties is allocated. Public financing takes place both by statutory activities and by campaign expenditures. It is direct (subsidizing) and indirect (benefits on a legislative basis). It is established that the state support of political parties in European countries ranges from more than 20 % to 85 % of the total budget of parties.
The author is convinced that the experience of developed democracies should be taken into account in Ukraine with the aim of solving existing problems and preventing them in the future, which will strengthen party competition, internal party democracy, and ensure the proper realization of the function of political parties as a connecting link between civil society and the state.
Keywords: financing of political parties, state regulation, state administration, financial reporting, concept of state financing of parties.
ОСНОВН1 ПРИНЦИПИ РЕГУЛЮВАННЯ ДЕРЖАВНОГО Ф1НАНСУВАННЯ ПОЛ1ТИЧНИХ ПАРТ1Й: ДОСВ1Д КРА1Н РОЗВИНЕНО1 ДЕМОКРАТЫ ТА УКРА1НА
Анотащя. Розглянуто узагальнений досвщ кра!н розвинено! демократа щодо правових засад державного регулювання фшансування пол^ичних партш та практичш можливосп використання його в Укра!ш. Проаналiзова-но положення законопроект щодо змш у OTcreMi державного регулювання фшансування полггичних партш в Укра!ш та запропоновано шляхи 11 вдо-сконалення.
Показано, що досввд державного фшансування полггичних партш в кра-1нах розвинено! демократа, зокрема в кра!нах бвропи, е устшним. Зазна-чено, що ефектившсть та дiевiсть системи фшансування пол^ичних партш не залежить вщ наявносп в нш спещального закону щодо фшансування. Наголошуеться, що таю сусшльш вщносини можуть бути врегульоваш як окремими законодавчими актами, так i у виглядi системи положень в рiзних законах — конститущях, законах про парти, виборчому законодавста, законах про боротьбу з корупщею.
Аргументуеться, що державне фiнансування полiтичних партш е одним iз дieвих шструменпв у боротьбi з полiтичною корупщею та забезпеченнi пар-тiй необхщними ресурсами для статутно! дiяльностi та розвитку. Наведено приклади европейського досвщу державного фшансування дiяльностi пол^ тичних партш, яю мають великий рейтинг, i тих, що тiльки висувають кан-дидатiв на виборах. Це може гарантувати рiвнiсть можливостей для рiзних полiтичних сил. Отже, державне фшансування мае визначатися пропорцшно до пол^ично! пiдтримки, яку партiя отримала. Разом з тим, надмiрна залеж-нiсть вiд державного фiнансування може призвести до послаблення зв'язюв мiж партiями та !хшм електоратом.
У европейському досвад виокремлюють державне та приватне фшансування пол^ичних партш. Державне вщбуваеться як фiнансування статутно! дiяльностi, та як фiнансування витрат на виборчi кампани. Воно бувае пряме (субсидшвання) та непряме (вигоди на законодавчш пiдставi). Встановлено, що державна шдтримка полiтичних партiй у крашах бвропи коливаеться вiд бшьш нiж 20 % до 85 % вщ загального бюджету партш.
Досвщ кра!н розвинено! демократа мае бути врахований в Укра!ш з метою виршення вже iснуючих проблем та уникнення !х у майбутньому, що поси-лить партiйну конкуренщю, внутрiшньопартiйну демократiю, забезпечить належну реалiзацiю функци полiтичних партiй як сполучно! ланки мiж гро-мадянським сустльством та державою.
Ключовi слова: фшансування пол^ичних партiй, державне регулювання, державне управлшня, фiнансова звiтнiсть, поняття державного фшансування партш.
ОСНОВНЫЕ ПРИНЦИПЫ РЕГУЛИРОВАНИЯ ГОСУДАРСТВЕННОГО ФИНАНСИРОВАНИЯ ПОЛИТИЧЕСКИХ ПАРТИЙ: ОПЫТ СТРАН РАЗВИТОЙ ДЕМОКРАТИИ И УКРАИНА
Аннотация. Рассмотрен обобщенный опыт стран развитой демократии относительно правовых основ государственного регулирования финансирования политических партий и практические возможности использования его в Украине. Проанализированы положения законопроектов об изменениях в системе государственного регулирования финансирования политических партий в Украине и предложены пути ее совершенствования.
Показано, что опыт государственного финансирования политических партий в странах развитой демократии, в частности в странах Европы, является успешным. Отмечено, что эффективность и действенность системы финансирования политических партий не зависит от наличия в ней специального закона о финансировании. Отмечается, что такие общественные отношения могут быть урегулированы как отдельными законодательными актами, так и в виде системы положений в различных законах — конституциях, законах о партиях, избирательном законодательстве, законах о борьбе с коррупцией.
Аргументируется, что государственное финансирование политических партий является одним из действенных инструментов в борьбе с политиче-
ской коррупцией и обеспечении партий необходимыми ресурсами для уставной деятельности, их развития.
Приводится пример европейской практики государственного финансирования деятельности политических партий, которые имеют большой рейтинг, и тех, что только выдвигают кандидатов на выборах. Это может гарантировать равенство возможностей для различных политических сил. Итак, государственное финансирование должно определяться пропорционально политической поддержкой, которую партия получила. Вместе с тем, чрезмерная зависимость от государственного финансирования может привести к ослаблению связей между партиями и их электоратом.
В европейском опыте выделяют государственное и частное финансирование политических партий. Государственное финансирование происходит как финансирование уставной деятельности, и как расходов на избирательные кампании. Оно бывает прямое (субсидирование) и косвенное (льготы на законодательной основе). Установлено, что государственная поддержка политических партий в странах Европы колеблется от более чем 20 % до 85 % от общего бюджета партий.
Опыт стран развитой демократии должен быть учтен в Украине с целью решения существующих проблем и предотвращения их в будущем, что усилит партийную конкуренцию, внутрипартийную демократию, обеспечит надлежащую реализацию функции политических партий в качестве связующего звена между гражданским обществом и государством.
Ключевые слова: финансирование политических партий, государственное регулирование, государственное управление, финансовая отчетность, понятие государственного финансирования партий.
Problem statement. For Ukraine, the study of the legal regulation of the financing of political parties is particularly relevant in the context of the still rather small experience of the rule in the Law of Ukraine "On political parties in Ukraine" [1], which entered into force on July 1, 2016 [2], which introduced state funding of political parties. Adaptation of foreign experience of state regulation of financing of political parties in Ukraine is of particular importance for the development of democracy and improving the efficiency of the government.
Analysis of recent publications on the subject and identification of previously unsolved parts of the overall problem. In the second half of the 20th century the issues of state funding of statutory activities of political parties were viewed mainly in the context of socio-political demarcation, structuring of society and its democratization (works of S. Bartolini [3], P. Meir [4], I. Baj [5], H. Keman [6], M. Lever [7], N. Shofild [8], V. Hunt [9] A. Nieder-meijer [10], K. Jandhi [9], R. Hermel [9], K. Edens [9], P. Goff [10], R. Delton [11-13], S. Flanagan [15], A. Vera [16],
L. Helms [17]). In Ukraine recently the issue of the funding of political parties has become the object of research of such scientists — L. Goniukova [18] O. Kotsiurba [19], S. Obushnyi [20], M. Prymush [21], R. Martyniuk [22], A. Romaniuk [23], Yu. Shweda [24] and O. Shumeld [25], both in the context of broader issues and problems of structuring societies, and in connection with questions of government accountability, efficiency and fair functioning of the mechanism of state regulation.
Formulation of the article objectives (problem statement). The purpose of the article is to study and highlight some features of foreign experience of state regulation of financing of political parties in the historical context and the possibilities of its adaptation in Ukraine. Based on this goal, the main objectives of the article are to analyze the principles and forms of state financing of political parties in the countries of developed democracy in the historical context and to propose ways to improve the mechanisms of state regulation regarding the financing of political parties in Ukraine.
Presentation of the main results. State funding contributes to the ideolo-gization of the newly created parties, in addition, parties can easily get used to it and can no longer do without it. But, in our opinion, the main advantages of budget support for political parties is to stimulate the development of political competition, increasing the intensity and quality of political struggle (by taking part in it hh less wealthy, but more ideological parties), makes those parties that already have a high level of support from citizens financially independent.
According to the definition used by V. V. Dzhugan, "financing of political parties is the activity of political parties, public authorities, individuals and legal entities carried out in the manner and within the limits established by the current legislation, which is aimed at providing political parties with financial and other resources that are amenable to financial assessment and that are necessary for political parties to realize their goals and objectives" [26].
The principles on which funding should be based have been the subject of scientific research since the beginning of this century. Thus, the basic principles of regulation of state financing of political parties are presented in L. Young's monograph "Regulation of political financing in liberal democratic societies" [27]. The author investigates the strengths and weaknesses of different approaches to the regulation of financial support of election campaigns and explores the theoretical issues that are the foundations of such funding. In scientific work edited by R. Williams "Party financing and political corruption" [28] an in-depth study of party financing and problems of political corruption was carried out. The author observes that "the sources, extent, shape, distribution of party funding have profound political consequences" [29, p. 5]. Therefore, this process should be regulated and based on clear principles.
The basic principles of state financing of political parties in the countries of developed democracy, in particular, in Europe, is now the object of study and domestic experts. Expert of the National Institute for strategic studies under the President of Ukraine S. Yani-shevskyi [30] for this purpose analyzed
the documents of the Venice Commission, PACE, Committee of Ministers of the Council of Europe [31; 32-34]. V. Dzhugan carried out a comparative analysis of the constitutional and legal basis for the financing of political parties in Ukraine and the EU [35]. In general, the consequences of state funding of political parties have been studied since the middle of the last century. The researchers' conclusions on this matter are ambiguous. For example, K. Strom [36] put forward a theory according to which state funding increases the independence of party leaders from activists, while J. Schlesinger [37] believes that it contributes to the bureaucrati-zation of parties. But the study of the mechanism of state subsidies to parties in Austria, Italy, Sweden and Germany conducted by K.-H. Nassmacher [38] shows that both conclusions have the right to exist.
The analysis of these sources allows us to establish that the state regulation of the financing of political parties is based on such principles as equality, diversity of funding sources, proportionality, reasonableness and validity of the balance between public and private financing, fairness of the distribution of state fixation between the parties, restrictions of private financing by nature and size, transparency of financing, and accountability. They mean that public funding should be allocated to each party represented in the parliament.
Public funding can be extended to political bodies that represent an important part of the electorate, as well as to those that nominate candidates in elections, which guarantees equal opportunities for different political forces. Public funding should be determined in
proportion to the political support that the party has received. It should also be based on objectivity, namely, funding based on calculations based on objective criteria such as the number of votes cast or seats obtained in Parliament and the ability of new parties to appear in the political arena, competing on fair terms with parties that have longstanding strong positions. Excessive reliance on public funding can weaken the links between parties and their electorate. A political party at the European level must annually publish its income, expenses and declaration on its assets and liabilities, declare its sources of funding by providing a list that indicates the donors and received from each donor that exceeds 500 euros. Regarding the forms of financing, public and private funding are allocated. The state takes place as the financing of the statutory activities, and the financing of the costs of election campaigns of political parties. Budget funding is divided into direct financing (subsidies) and indirect (convenience on a legislative basis), in particular, by covering postage and rental of premises for meetings, support of party media, youth organizations and research institutions, as well as by providing tax incentives, etc [39]. State funding is received by both parliamentary parties and parties that are not in the parliament. In general, state support for political parties in Europe ranges from more than 20 % to 85 % of the total budget of the parties [40].
In Ukrainian society, discussions about the financing of political parties from the state budget and the direction of expenditure of these funds by political parties often have negative content and little support. In 2015, only 15 %
of citizens supported the financing of parties from the budget, respectively 15,7 % — in 2016 and 9,9 % — in 2017 considered funding from the state budget acceptable. Thus, few citizens support state funding of political parties, because so few citizens trust them-before and after 2013, these institutions were trusted no more than by the fifth of the respondents [41].
As for the main drawbacks, in our opinion, this was noticed in the second half of the last century — there are certain problems regarding the sources of financing of parties, especially with respect to public financing, which are associated with political competition, transparency and accountability of parties, dependence of political and state power, corruption. Tsatsos D., Botha M., Blackman A. in the work "Financing of political parties: a comparative legal study" [42], having analyzed the legislation of Germany, Sweden, France, Great Britain, Italy and other countries, identified the need to develop state instruments for regulating the financing of political parties and showed the need to improve the legislation, noting that the imperfect mechanism of control over the financing of political parties, including public financing, is the cause of problems of public administration. In addition, P. Kopetski found that among the disadvantages of budget funding is that a lot of parties in southern European countries almost completely dependent on the state, and in other countries, public funding is "symbolic" in comparison with private and corporate donations [43, p. 262].
In Ukraine, public relations in the sphere of public administration and
administration regarding state funding of political parties are regulated by the Constitution of Ukraine [44], the laws of Ukraine "On political parties in Ukraine" [45], "On elections of people's deputies of Ukraine" [46]. The forms and amount of state funding of political parties, the procedure for allocation and distribution of funds between political parties to finance their statutory activities, the grounds for termination of state funding, and the like are determined. But since then, there is a number of separate issues on the practical implementation of the provisions of the Law of Ukraine "On political parties in Ukraine" in terms of the order of distribution of funds between political parties to finance their statutory activities, the amount of funding of political parties, the period of use of funds by political parties to Finance their statutory activities. In connection with 2016 (the time of the introduction of the rule on finance) in the legislature from time to time legislators register draft laws on improving the state regulation of the financing of political parties and even the abolition.
Please note that the generalized experience of state financing of political parties in the European Union indicates the need for a clear regulation at the legislative level of the procedure of state financial support of parties. Taking into account the experience of financing political parties in the countries of the European Union in Ukraine will improve the procedure of state financing of political parties, introduce a clear mechanism for the distribution of funds between political parties to finance their statutory activities, transparency of such financing and proper financial
control. To solve these problems bills № 5446 of 24.11.2016 and № 6026 of 03.02.2017 on amendments to the laws of Ukraine on the targeted use of state funding of the statutory activities of political parties are currently registered in the Verkhovna Rada of Ukraine.
Summary. The issue of expediency and necessity of financing of political parties at the expense of means of the state budget is actively debated not only in Ukraine, but also in many countries of the European Union where it successfully works for rather long period. The synthesis of the experience of state financing of political parties in the countries of developed democracy, in particular, in some European countries, at the highest level of European official institutions shows that, in general, with the exception of Italy, this experience is successful. The effectiveness and efficiency of the system of financing of political parties does not depend on the existence of a special law on financing, because, as the experience of European countries shows, these social relations can be regulated by separate legislative acts, and in the form of a system of provisions in different laws — constitutions, laws on parties, electoral legislation, anti-corruption laws, and the like. Public funding of political parties is an effective tool in the fight against political corruption and in providing parties with the necessary resources for statutory activities and development. The experience of developed democracy countries should be taken into account in Ukraine in order to solve existing problems and prevent them in the future, which will strengthen party competition, internal party democracy, ensure the proper implementation of the
function of political parties as a binding function.
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