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STATE OF THE CIVIL SOCIETY
IN THE RUSSIAN FEDERATION
REPORT FOR 2019
www.oprf.ru
STATE OF THE CIVIL SOCIETY IN THE RUSSIAN FEDERATION REPORT FOR 2019
UDK [324/324+338]:328.181(470+571)’’2019’’
BBK 65.9(2Рос)+66.3(2Рос)+67.400.6(2Рос) Contents
Д63
INTRODUCTION 4
D63 Report on the state of civil society in the Russian Federation for 2019 — М.,
1. INSTITUTIONS OF PUBLIC CONTROL AND FORMATION OF
the Civic Chamber of the Russian Federation, 2019.
“PEOPLE’S AGENDA” 6
ISBN 978-5-89644-136-6
Citizens’ petitions as a tool to understand the “people’s agenda” 8
Regional civic chambers as public-state dialog sites 12
Public councils: new role in the work of authorities 21
Inter-commission working group to prepare the report L.Y. Mikheeva,
Civil society activists in the field of public control 27
V.A. Fadeev, M.S. Anichkin, V.I. Vinnitsky, V.V. Grib, N.A. Daikhes, N.M. Ignatenko,
E.A. Istyagina-Yeliseeva, A.N. Kovalchuk, S.A. Kuznetsova, A.N. Maksimov, M.A. Pogosyan, Public Monitoring Committees (PMCs): humanitarian and social tasks 32
N.B. Pochinok, A.A. Malkevich, A.V. Razbrodin, S.I. Rybalchenko, E.V. Sutormina, Public expertise: contribution of civil society to the quality
E.A. Topoleva-Soldunova, E.M. Tsunaeva, I.E. Chestin, A.V. Shipulin, I.L. Shpektor. of institutional environment 35
Local and territorial self-governments as an environment for forming
The working group expresses its gratitude for taking part in the work and the civic engagement 44
materials provided to members of the Civic Chamber of the Russian Federation
V.A. Bocharov, I.E. Diskin, A.E. Dudareva, Y.K. Zimova, K.A. Komkov, A.R. Krganov, Media environment and challenges of information society 49
E.Sh. Kurbangaleyeva, Y.V. Ogloblina, V.V. Okrepilov, S.V. Razvorotneva, S.I. Rybalchenko, 2. THE THIRD SECTOR DYNAMICS: PROGRESS OF VOLUNTEERING, CHARITY AND
A.E. Tkachenko, L.A. Shafirov, A.Y. Shutov, as well as the head of the FSU “Office INFRASTRUCTURE FOR NPO SUPPORT 54
of the Civic Chamber of the Russian Federation” P.V. Andreev, Professor in
Development of volunteering and promotion of patriotic
the Department of Philosophy at M.V. Lomonosov Moscow State University
education as tasks of civil society 56
F.Y. Albakova, Associate Professor at the Institute of Civil Service and
Management in the Russian Presidential Academy of National Economy and Measures to develop charity and increase credibility in non-profit organizations 61
Public Administration O.V. Koroteeva, Director of the Institute for Socio-Economic Non-profit sector as a new branch of socially responsible economy 66
Studies of Population of the Russian Academy of Sciences V.V. Lokosov, Research Government support of non-profit sector 76
Director of the Public Opinion Fund E.S. Petrenko, Professor in the Department of
3. SOLVING SOCIAL PROBLEMS WITHIN NATIONAL PROJECTS: CIVIL SOCIETY
Philosophy at M.V. Lomonosov Moscow State University G.M. Ponomareva.
PERSPECTIVE 80
The report was approved for publication by a decision of the plenary session of Challenges of social policy 83
the Civic Chamber of the Russian Federation on December 9, 2019. Ecology and quality of living environment 86
Demography needs breakthrough solutions 92
Editors: T.G. Nasriddinov, T.S. Ilarionova, G.N. Bibikov, A.I. Kudryavtsev, F.V. Nitochkin,
A.K. Nozadze, A.D. Tretyakov, A.M. Khryastunova, with the assistance of V.A. Vanin, Health of the nation: contribution of social initiatives 96
P.I. Zolotov, E.G. Orlova, V.I. Orlov, O.G. Prosypkin, A.M. Severinchik, G.A. Seiranyan, How ensure accessibility and quality of healthcare 100
E.V. Falevich, A.S. Yukhno. Accessible environment for everyone — imperative 102
Care for those in need: improvement of the PBS system 105
Photo materials: press service of the Civic Chamber of the Russian Federation, Stock
Photos Lori and Shutterstock. Where we will live: housing and comfortable urban environment 107
Public control of spatial development: the National Program for the Far East 112
Layout, pattern, pictures — FID “DELOVOY EXPRESS”. Public activity and development of rural territories 114
Intellectual heritage for future generations: development of education and science 117
Cultural sphere in focus of civil society 123
© Civic Chamber of the Russian Federation, 2019. 4. P
UBLIC DIPLOMACY SPHERE: RUSSIA’S SOFT POWER 126
CONCLUSION 136
FOOTNOTES 138
Introduction
The Annual Report on the state of civil discussions strongly reflect the current
society reflects the results of discussions state of civil society, estimate the most
and expert work of members of the acute social problems, and ways to solve
current composition of the Civic Chamber. them.
Considering that the Civic Chamber is a
collective public body, composed of 168 “Community” forums held annually by the
members working on equal terms, with Civic Chamber have proven themselves to be
their own experience in public activities one of the leading sites for discussing such
and understanding of the tasks in the problems, as well as the most important
development of civil society, various matters of national socio-economic
matters and positions are often viewed development. The main participants in
differently or even oppositely. forums are representatives of non-profit
organizations, civic chambers and councils, { monitoring of regional legislation that its promotion would have been much
The Civic Chamber, as the central institution experts, and representatives of federal determines the formation of procedures more difficult without the active, dynamic
of organized national society is eager to and regional authorities. In 2019, forums and principles of organizing activities contribution to the discussion by the
give a quick response to the current public were held in the North Caucasus, Far East, of public councils in government bodies projects’ authors, i.e. winners of the annual
agenda, and conduct long-term systemic North-West, and Central Federal Districts. of constituent entities of the Russian contest for socially significant projects “My
projects in the field of public control. Each of these forums was dedicated to Federation, civic chambers (councils) of project is for my country!”
considerating one relevant topic in the municipalities;
The most important component of development of civil society. In addition, one cannot but note the
“feedback” with society is citizens’ { monitoring the level and quality of the contribution to the results achieved in the
petitions. Annually the Chamber receives The final forum in Moscow attracted more non-profit sector’s development in new work format successfully launched by
up to 30,000 petitions, and all of them than 3,000 people, and made it possible to the constituent entities of the Russian the Chamber in 2019. What is involved here
are taken into consideration in relevant examine the entire field of civil activities Federation; is the preparation of special reports on the
commissions. In some cases, results are and go through in detail new priorities for analysis of various problems and matters of
achieved immediately by sending a request a dialog between society, government, and { search for new mechanisms to support social and economic policies: “Ten years of
to the authority and indicating the level of business in 2020: socially significant initiatives and activity by public monitoring commissions
public attention to the problem, in others projects within corporate programs of in the constituent entities of the Russian
it’s necessary to carry out additional { public control of the implementation of social responsibility; Federation”;1 “Demography-2024: how to
monitoring and discussions. national projects and programs; ensure sustainable natural growth in the
{ improvement of the procedure for population of the Russian Federation”; 2
Public hearings on the country’s most { improvement of legislation and law forming and ensuring public monitoring “Participation of NPOs in the implementation
significant matters and expertise of the enforcement practice in the field of commissions in places of detention. of social services”;3 “‘Russian breakthrough’
most important bills held by the Chamber regulating non-profit organizations; and the tasks of civil society”;4 “Family policy:
are practical and action-oriented. Such The listed field of works was discussed and support measures as viewed by families”;5
public events, being a form of public supported at a meeting of members of the “How to save the village: employment
control by law, are aimed at preparing { breaking down administrative and Civic Chamber and civil society activists issues”.6
regulatory barriers for socially-
recommendations for the responsible with the First Deputy Chief of Staff of the
oriented NPOs to participate in socially
authorities; and a systematic approach of useful activities; Presidential Executive Office S.V. Kirienko, Materials for special reports and public
issues at the legislative or law enforcement held on November 1; the final day of the discussions at the Civic Chamber, or during
level. A systematic solution is always “Community” forum in Moscow. field sessions and “Community” forums,
the result of efforts of many people and { improving the procedure for conducting monitoring, expert surveys, and public
organizations, and painstaking work with public discussions and public hearings It should be noted that the formation of expertise constitute the problematic basis
regulatory documents. The results of these in implementing urban planning; an expert position on these issues and of this Annual Report.
4 5
01
#INSTITUTIONS OF
PUBLIC CONTROL
AND FORMATION
OF THE PEOPLE’S
AGENDA
7
The main task in the development of public This work has been substantially built The number of petitions received by the Civic Chamber of the Russian Federation
control is to increase the transparency of up in several directions: work with in terms of federal districts (relative population of districts), per 100,000
the decision-making process by officials, citizens’ petitions, activization of regional
strengthen feedback between state and civic chambers and public councils, 17
municipal authorities and the population, methodological assistance of PMCs, and
13 12
and, as a result, increase the level of public expertise of the most important
public credibility in the state in general. legislative initiatives.
9 9 9 9
4
#Citizens’ petitions
as a tool to Central
Federal
Siberian
Federal
Southern
Federal
Northwestern
Federal
Volga
Federal
Ural
Federal
North
Caucasus
Far Eastern
Federal
understand the
District District District District District District Federal District
District
“people’s agenda”
Source: The Civic Chamber of the Russian Federation
The main portion of petitions concerns the governments, , and supervisory and control
judicial and law enforcement system, social organizations. As a whole a series of cases
sphere, and housing and communal services. have achieved results.
In 2019 (as of December 1, 2019), the Civic The Central Federal District (CFD) remains Matters of housing and communal services
Chamber of the Russian Federation received the leader in the number of petitions. are traditionally the most frequently topic For example, in March, the Civic Chamber
17,042 citizens’ petitions. The source of In absolute terms, 6,636 requests were come across in citizens’ petitions. Hundreds received a collective petition signed by more
petitions is via both the Russian Post and received from this district. The Far Eastern of petitions are sent annually to the state than 4,500 residents of the city of Pokrov and
other channels: through the personal Federal District is where the least number authorities in constituent entities, local self- the Petushinsky district in the Vladimir Region,
reception of citizens in the Chamber’s of petitions come from.
building, via a special form for electronic
petitions on the Chamber’s website — oprf. Topics of citizens’ petitions received by the Civic Chamber of Russia, %
ru, and through the hotline (call center).
The number of petitions received by the Civic Chamber
11 State, society and politics
of the Russian Federation, in terms of federal districts 20
6,636 (39%)
Social
sphere
Economy
30
2,551 (15%) 2,295 (14%)
2,022 (12%) 26 National
defense, security and law
1,205 (7%) 1,051 (6%) 855 (5%) 308 (2%)
Housing and communal services
13
Central Volga Siberian Southern Northwestern Ural Federal North Far Eastern
Federal Federal Federal Federal Federal District Caucasus Federal
District District District District District Federal District
District
Source: The Civic Chamber of the Russian Federation Source: The Civic Chamber of the Russian Federation
8 9
Gurtskaya, resulted in two administrative conditions for living and educating children
cases against the airline under two articles: in the family were created. After an address
“Sale of goods, performance of work or by the Chamber to the governor of Karelia,
provision of services in the absence of the situation became highly publicized. In
established information” and “Deception May 2019, the court quashed the restriction
of consumers” of the Administrative Code and immediately returned the children
of the Russian Federation. back home.
For several months, members of the Civic Working with citizens’ petitions is a high
Chamber of the Russian Federation dealt priority and will continue. New formats are
with a problem in the city of Kostomuksha being developed. The practice of having
in the Republic of Karelia, where, based on a “zero day” before each “Community”
a lawsuit by the city administration, a court forum has proven itself — members of the
decided to limit the parental rights of a Chamber, arriving for the forum, conduct
family with multiple children; six children excursions according to citizens’ petition
were taken away from their parents. The suit from that region, helping to resolve local
against the family included inadequate living issues. Methodological work with regional
conditions, lack of sleeping and working chambers to organize work with citizens’
places for lessons, etc., while the necessary petition is being conducted.
who were protesting against a project to build project’s implementation until a mutually
a section of the Moscow-Kazan high-speed acceptable solution has been reached is
railway through a residential development under consideration.8
of the city of Pokrov. The results of the audit
carried out by members of the Chamber Members of the Civic Chamber often have
were sent to the President of the Russian to deal with the level of competence and
Federation V.V. Putin with a request to give an the negligence of local self-governments
order to construct the route of the highway functionaries. For example, a citizen living
without affecting the existing populated in the city of Kovrov, Vladimir Region, turned
areas. At present a decision has been taken to the Civic Chamber hotline on issues
to halt the highway’s construction.7 related to the activities of medical and social
examination institutions. The MSA bureau
Another collective petition from the city of requested control documents for his case at
Pokrov, contained a protest against a capital the behest of the Chamber. After that, the
repair of the Volga federal highway M-7 local MSA suddenly revised its own decision
within the city. According to the capital repair and changed the disability group from
project, the road passing through the city second to first. In another case, an airline
and its historic center has been upgraded ordered a single mother of two disabled
to a highway and practically divides the city children to buy 13 tickets to transport them
into two isolated sections. Based on the after an operation from the city of Kurgan
results of a field meeting held in the city back home via a flight through Moscow.
of Pokrov, and a meeting that followed at An inspection conducted at the request of
Rosavtodor, the possibility of rejecting the a member of the Civic Chamber, Diana
10 11
#Regional civic The total number of members of regional
civic chambers exceeds 3,500. The activities
Civic chambers cooperate with the full
range of non-profit organizations —
chambers as
of most chambers are organized within the veteran, youth, trade unions, educational
framework of relevant commissions. To and environmental, societies for the
date, 83 civic chambers in the constituent protection of historical and cultural
public-state
entities of the Russian Federation have 646 monuments, but analysis shows that non-
commissions acting in various areas. As a official civic initiatives still lack proper
rule, the main commissions deal with social support. According to a Civic Chamber
dialog sites issues, e.g. healthcare, education, housing
and public utilities, demography, public
control, etc. The name of the commissions
survey during the “Community” forum,11
the number of NPO employees and civil
society activists engaged in the work of
reflects regional specifics. For example, civic chambers is growing annually, but up
the Civic Chamber of Moscow has a to half of the representatives of the third
commission on “Smart City” technology. sector do not participate in their activities.
In regions civic chambers are first and civic chambers were created in all regions The civic chambers of the Khanty-Mansiysk Hence, we need to improve feedback
foremost sites for public dialogue. According of Russia to protect the rights and freedoms, Autonomous District — Yugra, the Yamal- channels and support mechanisms here.
to Federal Law No. 183-FZ from June 23, 2016 to concern the needs and interests of Nenets Autonomous District and the
“On General Principles of Organization and citizens and non-profit organizations in Krasnoyarsk Territory, have commissions Approximately half of the survey’s
Activity of Civic Chambers of the Constituent the formation and implementation of state that deal with matters of the indigenous respondents during the “Community”
Entities of the Russian Federation”9 and the policy, and to ensure public supervision of peoples of the North.10 forum believe that the civic chamber
relevant laws of the constituent entities, authorities’ activities.
Have you personally participated in the activities
of a regional Civic Chamber?
Yes, many times
28%
Yes,
once or twice
No, never
48%
24%
Source: The Civic Chamber of the Russian Federation12
12 13
How do you evaluate your experience in communicating Do you think the Civic Chamber of your region carries out its functions
with a regional Civic Chamber? as a platform for interaction between the non-profit sector,
civil society activists, business, and government?
24% Mostly positive Mainly carries out its work
27%
Mostly
negative Doesn’t
carry out its work
No experience 49% Not sure
11%
65%
24%
Source: The Civic Chamber of the Russian Federation13 Source: The Civic Chamber of the Russian Federation16
of their region acts as a platform for for by law, and the rules of the chamber have of the Civic Chamber of the Komi Republic across all regions of the country took
interaction between the non-profit not been adopted.14 was among the leaders.17 part in public control of the presidential
sector, civil society activists, business, election. In 2019, the practice of public
and government. The other half of the Meanwhile, an increase in the activity The civic chamber of any region as a observation was continued and developed.
respondents believe that the chamber is of regional chambers is indicated by platform for a dialogue primarily depends The necessary amendments to legislation
not a successful platform for interaction, monitoring data on the openness and on the position of the members themselves, of the constituent entities of the Russian
or they do not have a definite answer to transparency of their websites. 15 The but also on the resources available, and Federation made it possible to attract
this question. In general, the potential for most common format for reporting on the attitude of regional governments: almost 40,000 watchdogs to public control
regional civic chambers as institutions to the activities of civic chambers is the where governments are more engaged in in regional elections. At the same time,
organize civil society at the local level is news: all 83 websites have this section. the discussion of current problems, the working groups that monitored the election
quite high. At the same time, the goal for Announcements about upcoming events better the conditions for dialogue and the process in the most difficult regions in
both the Federal Chamber and regional are published by 48 websites of regional search for acceptable solutions. terms of possible violations were formed
chambers should be an assessment of chambers. Thirty websites have a special in close cooperation with the Presidential
their work, when the absolute majority section dedicated to the examination of In this context, it is gratifying to see that Council for Civil Society and Human Rights
of respondents recognize the chambers’ bills, 18 websites have reports directed in recent years the greatest achievements and non-governmental human rights
active influence on the dynamics of public toward the authorities. Fifteen websites of the chambers are related to the organizations.
opinion and the promotion of public have texts of legal acts regulating the development of public control. Back in
initiatives. issues of working with citizens’ petitions. 2018, the chambers were actively involved The second most important direction to
None of these websites have information in the organization of public watchdogs enhance public control in 2018–2019 is the
Against this backdrop, it is disappointing to on the chamber’s budget performance. in elections. The Civic Chamber of the implementation of national projects and the
see the situation in Sevastopol, where the Russian Federation, together with the CEC achievement of targets of the presidential
civic chamber did not hold a single meeting Based on the set of criteria (functionality, of Russia, developed a gold standard for decree from May 7, 2018. Many regional
in 2019 due to the lack of a quorum. This relevance, and interactivity), the monitoring observing the enforcement of citizens’ civic chambers created working groups
raises the question about the need to form leaders in 2019 remain the websites of electoral rights. And this standard was on public control of the implementation
a new composition of the chamber after the civic chambers in the Kirov, Yaroslavl, used by public watchdogs to assess the of national projects as part of this work.
the dissolution of the current composition, and Chelyabinsk Regions, as well as the situation in specific polling stations. For example, the Civic Chamber of the
however, such a mechanism is not provided Krasnodar Territory. In 2019, the website In 2018, more than 150,000 watchdogs Republic of Khakassia formed such
14 15
resolving the problems of defrauded home Associations”. Today, this new legislation
buyers and performs public control of allows public organizations to receive
housing construction.21 financial resources even prior to the start of a
project. The proposals by the St. Petersburg
The Ulyanovsk Region has a broad network Civic Chamber were also included in “The
of municipal councils on public control Plan for the Implementation of the Strategy
in the field of medicinal supply, road of Action for Women” and in “The Program
maintenance, the availability and condition for Improving Comprehensive Medical and
of sports facilities, and the availability of Social Assistance to Elderly Citizens”.22
medical and cultural facilities under the
program “Accessible Environment”. More The results of monitoring made by the
than 2,500 people participate in the work Civic Chamber of Russia have shown that
of such councils. Launched in 2014, the 10 regional civic chambers have been
practice of hearing reports by members of vested with the right to make legislative
the Government of the Ulyanovsk Region initiatives. 23 The Civic Chamber of the
on their activities and the activities of Kaliningrad Region actively implements
subordinate institutions successfully this opportunity. In particular, such an
distinguished itself. Public activists have initiative helped Kaliningrad Region law No.
the opportunity to communicate directly 304 from July 1, 2019 “On Public Councils
with the heads of ministries; questions and under the Government of the Kaliningrad
topics for discussion are then referred to Region” to be adopted.24 In 2019, the Civic
the authorities. Chamber of the Kursk Region prepared a
regional bill “On Patrons and Patronage
In the Sakhalin Region, regional and Activities”. This bill is included in the rule-
municipal civic chambers took part in the making plan of the Kursk Regional Duma.25
a group, which in addition to members of public controllers. 20 The Civic Chamber implementation of the project “Special The experience of granting the legislative
the regional chamber, includes chairmen of the Russian Federation, together with Child’s Opportunities Map”. More than initiative to the subjects of public control
of municipal civic chambers and public colleagues from the regions, summarize 1,500 people took part in a survey on health seems to be an important area for expert
councils under executive authorities. best practices in this area and facilitate problems in the region. It helped to identify study at a platfrom of the Federal Civic
Following the studying of the passports of their spread. the main issues: staffing and health Chamber and within the framework of the
regional projects, “road maps” for public services accessibility (some services can “Community” forum in 2020.
monitoring were compiled. The head of The specific agenda of public control in the be given only in medical institutions located
the republic and the heads of regional regions is diverse. However, as a rule, it in the central regions of Russia or abroad, The Civic Chamber of the Russian Federation
ministries took part in a plenary meeting of focuses on people’s everyday problems. which, in turn, leads to large and sometimes is not the governing body for the regional
the republican Civic Chamber in September For example, after the intervention of enormous financial costs). chambers. While at the same time, the
2019.18 The Civic Chamber of the Volgograd the St. Petersburg Civic Chamber, it was Civic Chamber of the Russian Federation
Region implemented a working group possible to help home buyers who asked In St. Petersburg, the attention of the Civic does provide methodological support for
to supervise the execution of the May public activists to monitor the construction Chamber helped to speed up the process regional civic chambers. Such support is
Decrees; members of the Chamber are of several residential complexes and of combining social and medical services. aimed at consolidating the principles of
also members of the project committees verify the quality of the work being carried Public activists have repeatedly reported self-government, independence, openness,
involved in the implementation of national out at the facilities. Thanks to the Civic about the need not only for one-time, but and transparency in their everyday
projects in the region.19 The Civic Chamber Chamber defrauded home buyers were comprehensive and long-term assistance activities. Despite the representatives of all
of the Vologda Region developed a system able to sit down at the negotiating table for to citizens, especially the elderly. On July regional chambers having the opportunity
of public control for the national project the first time and ask questions. Based on 1, the city opened a Social Service Center to interact at plenary meetings of the
“Safe and High-Quality Roads” to monitor the consultations, participants in shared and a social neighborhood physician. The Civic Chamber of the Russian Federation,
the formation and use of road funds at all construction received assurances that it new structure keeps records of citizens in order to ensure constant interregional
levels. Joint work with the Department of planned to complete the construction and who need various types of social and interaction on public control, the Council of
Public Road Administration and Transport put into operation 21 “problem” residential medical assistance. The St. Petersburg Civic Civic Chambers of the constituent entities
of the Government of the Vologda Region buildings. The Civic Chamber of the Chamber also initiated amendments to the of the Russian Federation coordinates the
resulted in a photo illustrated memo for Republic of Tatarstan is also involved in Law “On Grants of St. Petersburg for Public activities of regional chambers in terms
16 17of implementing new prioritized initiatives attended by 49 leaders of public activists Have you personally participated in municipal (city or district)
and interregional projects, and facilitates from different regions of the country, some civic chamber events?
the interchange of experience and best of whom were selected at previous sessions
practices. The monitoring conducted of the Civic Chamber’s University, the rest
by the Council shows that regional civic passed competitive selection. As part of the
chambers still have many organizational project, young leaders are taught to find
problems. Often such problems include resources through which social change can
the weak activity of the chambers, lack of be launched in the regions. Yes, many times
23%
competencies for establishing constructive
interaction with the authorities, the media, The experience of 2019 showed that in Yes,
once or twice
NPOs, and organization of activities on a number of socially significant conflict
public control. These problems can be situations at the local level, the role of No, never
solved with more coordination between civic chambers as an organized institution 50%
the chambers for an intensive exchange of of civic dialog was not quite in line with
positive experiences. their potential. In the scheme of things,
we can talk about the shortcomings of the 27%
As a response to this problem, in November mechanism to form civic chambers, which
2019, members of regional civic chambers often make them dependent on the regional
could attend a series of training seminars political situation. In light of this, the Civic
held as part of the project “The Civic Chamber of the Russian Federation is
Chamber’s University”. The module was discussing legislative changes aimed at
Source: The Civic Chamber of the Russian Federation26
improving the mechanisms to form civic from 5 to 10 million rubles, and 20 have
chambers. from 1 to 5 million rubles. The Budget
Law of other constituent entities has no
As has been repeatedly highlighted, separate budget line for the activities
the implementation of the principles on of the Civic Chamber, and funds may be
which the chambers’ activities shall be received from the budgets of regional
based is currently hindered by legislative ministries and departments, for example
gaps in establishing a minimum level of from a ministry of labor and social security.
financial support for their activities. The The perennial lack of funding for ongoing
issue of financial support often mitigates work significantly reduces the quality of
the high-quality organization of current work in public control, and independence
work, for example preparation of events, in discussing various problems. The
materials for public expertise reviews, Civic Chamber of the Russian Federation
results of public control, etc. At present, suggests that it is necessary to add a rule
44 regional budget laws have a separate in regional legislation on the mandatory
line for ensuring the activities of the Civic financing of the current activities of civic
Chamber. Each constituent entity decides chambers.
on the issue of ensuring the activities of
the civic chamber based on its capabilities; Municipalities in many regions have
therefore, the level of financial support for created civic chambers. According
the chambers’ activities varies significantly: to a survey conducted as part of the
8 chambers have financing exceeding 10 “Community” forum, nearly half of its
million rubles per year, another 10 have participants already have experience of
18 19#Public councils:
new role in the work
of authorities
Public councils are permanently acting Russian Federation”, public councils
consultative and advisory bodies of public under federal executive bodies are
control under federal executive bodies. formed on a competitive basis. 27 In
The Public Council is intended to ensure recent years the principles of autonomy
that the needs and interests, and the and independence of public councils
rights and freedoms of citizens and public from public authorities have become
associations are protected and taken a universally recognized norm. These
into account during the implementation criteria were developed with the
of state policy, as well as to monitor the participation of the Civic Chamber of the
activities of federal bodies; for example, to Russian Federation, and were reflected
consider bills, participate in monitoring of in a resolution of the Government of
the quality of public services, evaluate the the Russian Federation adopted in June
effectiveness of public procurement, etc. 2019. 28 The organizer of competitions
interacting with municipal civic chambers. there are no municipal civic chambers at to fill the vacancy in public councils
The Moscow Region has civic chambers in all. Besides civic chambers and councils, According to the Federal Law “On the is the Civic Chamber of the Russian
all municipalities, and their activities are many regions have other advisory bodies of Foundations of Public Control in the Federation.
coordinated by the Civic Chamber of the social activists under the head of the region
Moscow Region. The Irkutsk Region has 14 or mayor. And at the same time, the status
municipal civic chambers (there are a total of some public structures under regional
of 43 municipalities in the region). Some authorities (councils on interacting with
regions have such a network of public business entities and expert councils) is
control at the local level. often not defined.
At the final “Community” forum in Moscow, It is obvious that at the legislative level,
a scheme where operating both branch and the activities of municipal civic chambers
rural public councils was introduced using are not sufficiently regulated. And in fact,
the Ivanovo district of the Amur Region as they are only mentioned in the Federal law
an example. Out of a total population of on public control. This situation creates an
23,000 people in the district, more than overlap regarding powers and jurisdiction
200 residents are members of various of these institutions. The Civic Chamber
public councils. of the Russian Federation plans to launch
an expert discussion on the legislative
At the same time, in a number of the regulation of the activities of municipal
Russian Federation’s constituent entities civic chambers (councils).
20 2151 31
Such instances are out there. The Public budget, and spotted the non-execution of
Council under the Ministry of Natural powers by responsible structures and the
Resources of Russia recorded the ineffective misallocation of funds. The Public Council
implementation of the federal target under the Ministry of Natural Resources of
p
ublic p
ublic program “Lake Baikal Protection”. It is Russia were provided with documents on
councils councils extremely difficult to implement the federal the proposed changes in the federal target
formed formed during the current target program’s key event - the elimination program to harmonize financial assistance
of the negative impact of waste accumulated to the region. Members of the Public Council
composition of the Civic
1,287 people
by the Baikal Pulp and Paper Mill. In as part of a Civic Chamber delegation visited
Chamber
2018, the Audit Chamber of the Russian the city of Baikalsk to assess the practicality
(since June 2017) Federation conducted an audit that showed of the amendments. Public activists were
in councils an inefficient spending of funds, in particular, able to monitor the progress of the project
about 4 billion rubles were diverted from the to eliminate waste from the BPPM on the
15 councils 18 of them
is checking candidate operate according to a new Activity
profiles Standard for public councils PUBLIC EXPERTISE
Federal Target Program “Baikal Lake Protection” 2012-2020
replaced outgoing
members 1 e arlier formed TAKEN UNDER
21 councils
PUBLIC
council
CONTROL
in totally “reset”
The Civic Chamber establishes the basic public councils have held competitions
requirements for candidates; candidates to replace outgoing members, and one
for the post of chairman of a public council previously formed council was totally
are nominated by the Civic Chamber of the “reset”.
Russian Federation. The term of office for
the composition of public councils may not Members of public councils discuss NO TECHNOLOGIES FOUND
exceed 3 years from the day of the first in- departments’ current initiatives, consider
person meeting of the composition of the socially significant bills, and supervise
public council. Today, there are 51 public their implementation. They also monitor
councils formed under federal executive the quality of public services. Members
bodies comprised of 1,287 people. During of public councils have significant billion
the work of the current composition of powers and expert competencies that rubles
the Civic Chamber (since June 2017), allow them to influence the agenda of out of budget
31 public councils were formed, 18 of departments, and most importantly, and stay idle
them work according to a new Activity they have the opportunity to know all the
Standard for public councils adopted in ropes of the department, without diving
PUBLIC COUNCIL UNDER THE MINISTRY OF NATURAL
2018. The submission of documents has into the bureaucratic routine; and that
been closed in 15 councils and the stage is why councils can be quite useful for RESOURCES OF RUSSIA
of verifying candidate profiles is currently both government departments and civil revealed ineffective expenditure of funds in terms
underway. And also, since June 2017, 21 society. of the BPPM and offered another concept
22 23are moderated by government officials.
Do you know about the activities of public councils under executive Often the councils are slow in reacting to
bodies in your region? social injustices appearing in the media,
the legitimate claims of our citizens to
the activities of state institutions, which
has obvious consequences on the level of
12% credibility and interest in them on the part of
I have
experience of working the population. Sometimes public councils
with public councils have heated discussions, but their results
37% remain unknown to the media and the public.
Received
information on the
activities of public councils One of the most important tasks of
27% public councils in the coming years will
I heard
something about these be to discuss and publicly monitor the
councils implementation of national projects. Public
councils shall become a platform for
Never heard about them open and heated discussions on national
projects: If there is any doubt that the
24% stated goals will be completed on time, and
the goals themselves need to be adjusted,
ground; the body implementing the project this should be spoken about directly. This
is “Rosgeologiya”. During this event, it is an important format for civil society
Source: The Civic Chamber of the Russian Federation29 became clear that the start of the project had to participate in the implementation of
been delayed due to a lack of technological national projects.
solutions. The Public Council gave specific
proposals for changing this situation.30 In Regions, along with civic chambers, are
some instances, if the issue is related to a forming public councils under executive
hyped up newsworthy event the media sparks bodies, and in some cases this is already
lively discussions with the participation of a large-scale network of public control.
media personalities. This was the case, Technically, this work involves tens of
when there was a discussion about a thousands of social activists throughout
proposal by the Public Council under the the country. Most respondents of a survey,
Ministry of Natural Resources of Russia on conducted during the “Community” forums,
the introduction of the subject “Ecology for already have experience in interacting
Sustainable Development”. This topic was with community councils in the regions or
covered in 234 messages in the media, 2 receive information about their activities.
clips on TV channels, and 726 messages on
social networks. In some state institutions, the activities
of the capital and regional public councils
Such a proactive approach is inculcated are coordinated. For instance, members
slowly and is rather an exception than a of public councils under the Federal Anti-
tendency; today the potential of public Monopoly Service hold regular online
councils is far from being fully realized. meetings, as well as joint meetings in
A public council can also discuss the Moscow. In addition to interregional
organization’s HR policy, including interaction assisted by public councils,
explicitly addressing the resignation of any interinstitutional interaction can also be
official, but so far such precedents have organized. For this purpose, a Coordination
yet to happen. Public councils often form Council under the Civic Chamber on the
an agenda based solely on departmental environmental safety of Russian citizens
topics. There are public councils that was created.
24 25An interesting initiative to form an
Assembly of regional public councils under
entities (Voronezh, Amur, Tambov, and
Chelyabinsk Regions) have regional #Civil society
activists in the field
relevant authorities was implemented by chambers that may participate in the
the Ministry of Construction of Russia. formation of public councils.
As a result an expanded public council
of public control
that helps the federal institution receive In July 2019, the Kaliningrad Region
feedback from the regions appeared.31 The adopted the Law “On Public Councils
first in-person meeting of the Assembly of Under State Authorities”. This legal act
Regional Public Councils in the areas of regulates the activities of public councils,
construction and housing and communal the composition of which will now be
services were held in July 2019 at the Civic in the hands of the Kaliningrad Region
Chamber of the Russian Federation. The Civic Chamber, rather than of specialized The year 2019 marks five years since the Some regions of the country have a unified
key topic of the meeting was the national ministries. Such a decision came from the entry into force of Federal Law No. 212- system of public control with clear rules
project “Housing and Urban Environment” local legislative body for the first time, and FZ “On the Basics of Public Control in of the game and the ability to quickly and
and the contribution of public councils to its in some way it is an unexpected decision the Russian Federation”. Despite the law effectively join in the work. For example,
implementation. that creates a precedent, which could set clearly defining the structure of subjects active public control was created in the
an example for other regions.33 Moreover, of public control, the actual quality of housing and communal services system,
The dependence of public councils on the Kirov Region adopted amendments its enforcement depends on the activity initiated by the Civic Chamber of the Russian
regional authorities is gradually decreasing; to the legislation, according to which and competence of ordinary members in Federation. Non-profit organizations served
the practice of appointing civil servants the regional Civic Chamber forms 2/3 of local public control, namely housing and as a basis for creating resource centers for
to public councils is almost history. For public councils under regional executive environmental inspectors, members of active housing owners, and the national
example, in 2014, the Civic Chamber of authorities, coordinates the final civic chambers and councils, members of project “Housing and Communal Services
the Stavropol Territory monitored the civic composition of public councils that should public monitoring commissions, leaders of Control” is a methodological center for
councils of municipalities. At that time provide the chamber with the results of non-profit organizations, etc. regional NPOs. Public inspectors monitor
62% of the councils were led by heads of their activities.
administrations or municipalities or their
deputies; the councils included state In some cases, the streamlining of
officials from various levels. Today, such the activities of public councils under
tendencies have completely vanished.32 regional executive bodies is carried out
on an institutional basis. For instance,
The activities of public councils in the the system of public councils under the
regions are weakly structured and largely territorial bodies of the Federal Anti-
depend on the position of local authorities Monopoly Service is conducted with the
and their desire to hear the voice of civil participation of regional civic chambers
society. To evaluate the contribution of these and with the coordinated support of the
civil society institutions to the development Civic Chamber of the Russian Federation.
of regions, solving local problems is quite
difficult due to a few vivid examples of Most laws in the regions still do not
such councils’ activities. The activities of indicate powers of civic chambers to
public councils are regulated by regional form public councils under territorial
legislation, which usually assigns them a executive bodies. The participation of civic
role in the field of public control. If at the chambers in the composition of public
federal level the role of the Civic Chamber councils is an important tool for ensuring
in the formation of the composition and the independence and productive work of
coordination of the activities of public these institutions. To resolve this issue, it
councils under federal executive bodies is is necessary to amend regional laws on
clearly provided in normative acts, then the public control, which enable regional civic
regions do not have such certainties. Some chambers to participate in the formation
of the Russian Federation’s constituent of public councils.
26 27for this. The main activities in monitoring Children’s Hospice, budgetary federal
the status of monuments and grave sites are and regional funding for palliative care
carried out by public organizations.34 The for children was set. At the federal
Civic Chamber of the Russian Federation, level, 4.6 billion rubles were allocated,
regional chambers, together with search and each region should add 20% to this
NPOs, participated in the development of money and create a regional development
the federal target program “Creation and program for this sector. The Children’s
Restoration of Military Memorial Objects in Rights Commissioner for the President
2019–2024”.35 The relevance of the program of the Russian Federation, Anna
was confirmed by a public inspection of Kuznetsova, together with the chairman
military grave sites in the Leninsky district of of the Commission of the Civic Chamber
the Republic of Crimea and the city of Kerch, of the Russian Federation on Charity,
which did not always demonstrate a decent Civic Education and Social Responsibility,
level of preservation and improvement, Alexander Tkachenko, launched the
as well as the lack of passports for state monitoring of the organization of palliative
registration of military grave sites in the care for children in the regions. 38 On
“Memorial” unified database. August 29, the first children’s hospice was
opened in the Moscow Region with the
A monitoring system concerning participation of Alexander Tkachenko in the
orphanages is being developed to bring city of Domodedovo.39
their activities in line with Decree No. 481 of
the Government of the Russian Federation One of the most important forms of public
from May 24, 2014, which acts as the basis control is an independent assessment information about the quality of the
the activities of homeowners associations, for reform in this sphere. According to data of the quality of services provided by conditions for the provision of services by
the quality of capital repairs, and collect for 2018, the total number of individuals cultural, social care, health and educational organizations is facing problems. In light of
the opinion of residents about the quality in orphanages is about 71,500 children. organizations. According to Federal Law this, it is necessary to consider the scope
of improvement of the outdoor space. A Almost 29,000 of them are children placed No. 392-FZ dated December 5, 2017, public of powers of the Civic Chamber and civic
successful example is the experience of the in these institutions by parents or other councils for an independent assessment chambers of the constituent entities of
Kirov Region where, since 2018, with the legal representatives. At the end of the last of the quality of social services were the Russian Federation related to public
participation of the regional Civic Chamber, year, the number of orphanages reached established under the Ministry of Culture of councils for an independent assessment
control has been established over the more than 1,300, more than 90% of them Russia, the Ministry of Health of Russia, the of the quality of social services, including
formation and approval of tariffs for housing are state-owned.36 The general task of the Ministry of Education and Science of Russia, participation in monitoring the results of
and communal services. The final act, state and society is that a large number of the Ministry of Education of Russia, and the the assessment and following measures
based on the results of complex monitoring children be brought up in families, preferably Ministry of Labor of Russia. These councils on their results.
of housing and communal service tariffs for birth families. It is also necessary to reduce are formed by the Civic Chamber of the
2018, it was noted that the requirements the time spent by children in orphanages, Russian Federation from representatives Since January 1, 2014, bills of acts of
to limit the growth of tariffs has not been and stimulate orphanages to organize the of all-Russian public organizations. They the Russian Federation’s constituent
met and residents are paying an additional family setting for their pupils. assess not the quality of services themselves, entities concerning the implementation of
comparable amount through taxes. but the availability of conditions for their entrepreneurial and investment activities
The Civic Chamber also evaluates the provision, i.e. openness and accessibility of must pass a mandatory procedure on the
At present, a system of public control provision of the services “Nannies for information, comfortable conditions for the assessment of regulatory impact. The
around the implementation of the Law “On Orphans in Hospitals” according to provision of social services, including waiting business community, empowered by the
Immortalizing the Memory of the Fallen Paragraph 88 of the action plan for the time, friendliness, politeness of employees at rights of entrepreneurs in the regions, is
in the Defense of the Fatherland” is being Decade of Childhood. It is necessary to social care organizations, and accessibility of actively involved in this activity.
developed. Today, according to the Russian improve the legal framework and expand services for people with disabilities.
Ministry of Defense, out of 31,078 military the access of NPOs to the provision of social Since 2017, the Vologda Region has
graves, the preservation level of 31% of services to children.37 To date, the activities of these public implemented the routine practice of
graves has been rated as “unsatisfactory”. councils are developing quite actively, but conducting public control of road repairs.
The maintenance of grave sites is managed This year, after a visit by the President of the the involvement of contractors on public The region has allocated budgetary funds
by municipalities, which often lack the funds Russian Federation to the St. Petersburg contracts who collect and summarize to launch a public control training program
28 29for municipal employees. The Kursk procedural rights to apply to the court with Examples of legislative regulation of citizen participation
Region opened a free resource center for a statement in protection of the interests of in public control
representatives of civil society and NPOs an indefinite number of people.
working in the field of public control, where
they are provided with accounting and legal Today, the vast majority of regions have
services for the whole year. adopted laws on public control, but there Public inspectors, What regulates the status
are no laws on public control in the largest public experts of public inspector, public expert
The development of a food quality control constituent entities of Russia, namely and public watchdog and public watchdog
system is in process. The Komi Republic Moscow and St. Petersburg. The quality
Civic Chamber, under the framework of of regional laws varies widely: Some acts Decree No. 403 of the Ministry of Natural
the “Days of Control”, together with the successfully detail and develop the norms Public environmental inspectors Resources of Russia dated July 12, 2017 “On
Ministry of Agriculture and the consumer of federal legislation, which makes the law Approving the Procedure for Organizing the
market of the republic, assesses the a working instrument. The Kirov Region, Activities of Public Environmental Inspectors”
quality of dairy products.40 The project by the Yamalo-Nenets Autonomous District,
Semyon Volchek, a contestant in the Civic and the Tyumen Region are good examples
Rostekhnadzor Decree No. 293 dated August
Chamber “My Project is for My Country!”, of laws on public control. In other cases, Public industrial safety inspectors 2, 2017 “On Approval of the Procedure for
“Interregional System for Monitoring the lawmakers simply reproduced the norms Attracting Public Inspectors in the Field
Safety and Quality of Food by Non-Profit of the federal law. of Industrial Safety by the Federal Service
Organizations as an Institution of Civil for Ecological, Technological and Nuclear
Society in the Field of Consumer Protection” A negative practice of public control exists, Supervision and Qualification Requirements
operates in 20 regions. During the course which has become widespread during for These Inspectors”
of the project, they managed to significantly inspections of business entities by public
change the attitude of the public to the organizations according to Article 45 of the
problem of counterfeit food products and Federal Law “On Protection of Consumer Art. 20 of Federal Law No. 498-FZ dated
Public animal inspectors December 27, 2018 “On Responsible Animals
its ingredients. Rights”, which, in particular, gives the right Handling and on Amending Certain Legislative
to conduct independent expert examination Acts of the Russian Federation”
At the same time, many gaps remain in of goods, works and services, to carry out
the sphere of legislative regulation and public monitoring of compliance with the law
the organization of citizen participation in and, if violations are discovered, transmit this Decree No. 1491 of the Government of the
public control. According to the legislation, information to the competent authorities. Public inspectors and public Russian Federation dated December 26, 2016
experts in housing control “On the Procedure for Implementing Public
individual citizens and public associations Taking advantage of the legal illiteracy of
Housing Control”
are not subjects of public control, but business owners, dishonest employees of
they have the right to participate in public organizations conduct raids among
its implementation. In order to do so small and medium-sized businesses for Resolution No. 491 of the Ministry of Education
they must have special knowledge and personal gain. Similar violations exist in the Public watchdogs during the state and Science of Russia dated June 28, 2013 “On
final certification of educational the Approval of the Procedure for Accrediting
experience in the relevant field, as well system of public control in places of detention. programs Citizens as Public Watchdogs During the State
as be officially approved as participants Final Certification of Educational Programs
in public control (public inspectors, public Additionally, legislation does not establish of Basic General and Secondary General
experts, and public watchdogs). However, the responsibility of subjects of public Education, the All-Russian Olympiad of School
the procedure for empowering public control for distorted or inaccurate Students and Other Olympiad of School
inspectors, experts, and watchdogs are information, and the responsibility of Students”
approved not in all areas of public control. persons who impede the implementation of
public control. Further institutionalization Federal Law No. 67-FZ dated June 12, 2002
In light of this, the quality of sectoral of public control is necessary, including Public election watchdogs “On Basic Guarantees of Electoral Rights and
laws in the field of public control should the requirements for the subjects of public the Right of Citizens of the Russian Federation
to Participate in a Referendum”
be improved. There are suggestions to control in the preparation and conduct of
provide subjects of public control with the public inspections.
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