c) The Organisation of the Municipal Board

III. The Control of Executive Municipal Authorities in Germany

1. The External Control of Executive Municipal Authorities in Germany

a) The General Supervision of the Municipality, § 119 section 1 GO NW

b) The Special Supervision of the Municipality, § 119 section 2 GO NW

c) The Right of Instruction, § 16 LOG NW

2. The Internal Control of Executive Municipal Authorities in Germany

a) The Right to Object, § 54 section 1 GO NW

b) The Obligation to Object, § 54 section 2 and 3 GO NW

c) The Right to Veto, § 57 section 4 phrase 2 GO NW IV. Outsourcing of Certain Activities in Germany

1. A Definition of Outsourcing

2. The Aims of Outsourcing

3. Possible Areas of Outsourcing

4. Requirements of Outsourcing

a) The Obligation of Tendering

b) Proof of Cost Effectiveness of Outsourcing

5. Legal Restrictions of Outsourcing by the Example of IT

a) Labour Law Restrictions of Outsourcing

b) Data Protection Law Restrictions of Outsourcing

6. The Procedure of Outsourcing

C. Models of Legal Acts on the System (Structure) of ”Executive Municipal Authorities” in France

I. The Municipal Administration in France

II. The Creation and Organisation of Executive Municipal Authorities in France

1. The Creation of Executive Municipal Authorities in France

a) The Election of the Municipal Council

b) The Election of the Mayor

2. The Organisation of Executive Municipal Authorities in France

a) The Organisation of the Municipal Council

b) The Status of the Mayor

3. The Tasks of Executive Municipal Authorities in France

a) The Tasks of the Municipal Council

b) The Tasks of the Mayor

III. The Control of Executive Municipal Authorities in France IV. Outsourcing of Certain Activities in France

1. The Contracts of the Delegation of Services of General Interest

a) The Definition of the Delegation of Services of General Interest, article L. 1411-1 CGCT

b) The Scope of Application of the Delegation of Services of General Interest

c) The Limits of the Delegation of Services of General Interest, article L. 1411-2

2. The Public Procurement Contracts

a) The Definition of the Public Procurement Contracts, article 1 section 1 subsection 1 CMP

b) The Personal Scope of Application of the Public Procurement Contracts Code,

c) The Principles of the Public Procurement Contracts, article 1 section 1 subsection 2 CMP

d) The Objectives of Public Procurement Contracts, article 1 section 2 CMP D. Models of Legal Acts on the System (Structure) of ”Executive Municipal Authorities” in Austria

I. The Municipal Administration in Austria

II. The Creation and Organisation of Executive Municipal Authorities in Austria

1. The Election of the Municipal Council in Austria

2. The Election of the Municipal Board and of the Mayor in Austria

3. The Establishment of Further Municipal Bodies in Austria

4. The Tasks of the Mayor in Austria

III. The Control of Executive Municipal Authorities in Austria

1. The Controlling Authorities of Executive Municipal Authorities in Austria

a) The Control of Executive Municipal Authorities in Austria by Internal Control Authorities within the Municipality

b) The Control of Executive Municipal Authorities in Austria by the National Supervisory Authorities

c) The Control of Executive Municipal Authorities in Austria by the Court of Auditors

IV

2. The Limits of the Control of Executive Municipal Authorities in Austria

3. The Legal Defence of Executive Municipal Authorities against Measures of Control in Austria

IV. Outsourcing of Certain Activities in Austria

E. Models of Legal Acts on the System (Structure) of ”Executive Municipal Authorities” in Switzerland

I. The Municipal Administration in Switzerland II. Outsourcing of Certain Activities in Switzerland

1. Criteria for Outsourcing by the Example of IT

2. Data Protection and Outsourcing

a) The Necessity of Data Protection

b) The Different Legal Frameworks of Data Protection

3. An Evaluation of Possible Activities for IT-Outsourcing

4. The Establishment of a Consulting Company for IT-Outsourcing

a) Aims of the Consulting Company for IT-Outsourcing

b) The Structure of the Consulting Company for IT-Outsourcing

c) The Benefits of the Consulting Company for IT-Outsourcing

d) The Services of the Consulting Company for IT-Outsourcing

V

Literature:

Bereszewski, Markus, Ämter für Outsourcing, InformationWeek of 21 September 2006, http://www.informationweek.de/services/showArticle.jhtml?articleID=194300422, last access 6 July 2007; cited as Bereszewski, Ämter für Outsourcing.

BITKOM (editor), Leitfaden Public Sector: IT-Outsourcing / Public Private Partnerships. Erfahrungen mit Risikopartnerschaften bei der IT-gestützten Modernisierung der öffentlichen Verwaltung, http://www.bitkom.org/files/documents/PPP_ITO_E-Government_fin.pdf, last access 7 July 2007; cited as BITKOM, Leitfaden IT-Outsourcing.

Busslinger, Jules, Sourcing-Management wird zur neuen Disziplin - Die Sourcing-Strategie des EFD, http://www.e-government.bfh.ch/content/File/forschung/ccegov/veranstaltungen/symposien/ outsourcing/Sourcing-Strategie_Busslinger.pdf, last access 6 July 2007; cited as Busslinger, Sourcing-Management wird zur neuen Disziplin.

Danjou, Baptiste/Massa, Emmanuel, Services Publics et Externalisation - Réalités, Actualité et Perspectives, http://www.cerna.ensmp.fr/Documents/Danjou-Massa-Proseg.pdf, last access 25 July 2007; cited as Danjou/Massa, Services Publics et Externalisation. Datenschutzbeauftragte Basellandschaft, Empfehlung Outsourcing durch Behörden,

http://www.baselland.ch/docs/jpd/ds/prak/prak-016.pdf, last access 6 July 2007; cited as Datenschutzbeauftragte Basellandschaft, Empfehlung Outsourcing durch Behörden. Hemmer/Wüst/Christensen/Kresser, Kommunalrecht Nordrhein-Westfalen, 5 ^th edition December 2005, cited as Hemmer/Wüst/Christensen/Kresser, Kommunalrecht Nordrhein-Westfalen. Hill, Rainer, ”Vorbehalte sind unbegründet” - Interview mit Peter Broß, Kommune 21, 1/2005, p. 19,

VI

http://www.kommune21.de/download/kommune21_200501_18.pdf, last access 6 July 2007. Hill, Rainer, Outsourcing nur zögerlich, Kommune 21, 1/2005, p. 18 et seq., http://www.kommune21.de/download/kommune21_200501_18.pdf, last access 6 July 2007. Janssen, Jochen/Bereszewski, Markus, Outsourcing wird für Behörden attraktiver, InformationWeek of 25 March 2004, http://www.informationweek.de/services/showArticle.jhtml?articleID=193002347, last access 6 July 2007; cited as Janssen/Bereszewski, Outsourcing wird für Behörden attraktiver. Neuhofer, Hans, Grundsätze der Gemeindeselbstverwaltung in Österreich,

http://www.staedtebund.at/de/recht/gemselbst.htm, last access 4 July 2007; cited as Neuhofer, Grundsätze der Gemeindeselbstverwaltung in Österreich.

Redli, Marius, Outsourcen muss gelernt sein - Insourcing hilft dabei, http://www.e-government.bfh.ch/content/File/forschung/ccegov/veranstaltungen/symposien/outsourcing/Outsourcin g_Redli.pdf, last access 6 July 2007; cited as Redli, Outsourcen muss gelernt sein. Strub, Gérald, Kt. und Gemeinden im Aargau - Outsourcing als PPP, http://www.e-government.bfh.ch/content/File/forschung/ccegov/veranstaltungen/symposien/outsourcing/Aargau_pu blis_Strub.pdf, last access 6 July 2007; cited as Strub, Kt. und Gemeinden im Aargau - Outsourcing als PPP.

VII

Abbreviations and acronyms: AO German Revenue Code (”Abgabenordnung”) B-VG Austrian Federal Constitutional Law (”Bundes-Verfassungsgesetz”) BDSG German Federal Data Protection Act (”Bundesdatenschutzgesetz”) BDSG-CH Swiss Federal Data Protection Act (”Bundesdatenschutzgesetz” of the Confoederatio Helvetica) BGB German Civil Code (”Bürgerliches Gesetzbuch”) BVerfGE Decisions of the German Constitutional Court (”Entscheidungen des Bundesverfassungsgerichts”) CE French Electoral Code (”Code Electoral”) CGCT French General Law on Territorial Corporate Bodies (”Code Général des Collectivités Territoriales”) CMP French Public Procurement Contracts Code (”Code des Marchés Publics”) DSG Basel Data Protection Act (”Datenschutzgesetz”) EDP Electronic Data Processing FVG German Financial Procedure Act (”Finanzverfahrensgesetz”) GG German Basic Law (”Grundgesetz”) GO NW Municipal Regulation of the Federal State of Northrhine-Westphalia (”Gemeindeordnung Nordrhein-Westfalen”) IT Information Technology LOG NW State Organisation Act of the Federal State of Northrhine-Westphalia (”Landesorganisationsgesetz Nordrhein-Westfalen”) KWahlG NW Municipal Election Act of the Federal State of Northrhine-Westphalia (”Kommunalwahlgesetz Nordrhein-Westfalen”) OJ Official Journal of the European Communities SGB X Tenth Book of the German Social Law Book (”Sozialgesetzbuch X”)

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SGS Systematic Body of Laws of the Canton Basel-Landschaft (”Systematische Gesetzessammlung des Kantons Basel-Landschaft ”) SHG Swiss Social Security Act (”Sozialhilfegesetz”)

IX

A. Introduction

I. An Effective and Democratic Governance

An effective and democratic governance is one of the most challenging issues Russia is facing today. The complexity and multiplicity of the tasks a modern state has to deal with makes it impossible to provide an efficient public administration on a ”centralised base” - hence it is vitally important to guarantee the existence of local self-government and to create a transparent and workable legal framework for its performance. II. The Rebirth of Local Government

The rebirth of local government in Russia and the beginning of its reform dates back to the early 1990s, when the country underwent economic and political restructuring. The Federal Law No. 131 passed in June, 2003 ”On the General Organisational Principles of Local Self-Government in the Russian Federation” appeared to be the next crucial step and was expected to give more fiscal and managerial independence to municipalities. III. The Heart of Administrative Reforms

Local self-government has formally become a very widespread phenomenon and there are 24,208 municipalities in Russia at the moment. ¹ However the goals of the reforms have not been achieved - local government institutions are still very weak and their participation in social and economic developments is very limited. There is an urgent need for new opportunities to improve this situation. A workable legal framework can be a key element in the development of the efficient self-government system. The heart of administrative reforms at municipal level concerns the organisational structures of municipal authorities. The mind of a municipality are its executive authorities. Legal acts from European countries concerning the system of executive municipal

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authorities shall be described in order to serve as possible models for the Russian system of executive municipal authorities. Thus, the Russian self-government can reach European standards. B. Models of Legal Acts on the System (Structure) of “Executive Municipal Authorities” in Germany

German legal acts shall be given to the following areas of interest: After a short overview over the municipal administration in Germany (I.), the German executive municipal authorities shall be listed and their creation and organisation shall be described (II.). How these executive municipal authorities are controlled in Germany is subject of the third part (III.). Finally, outsourcing of certain activities (IV.) will be shown. I. The Municipal Administration in Germany

The municipalities are part of the state function “administration”. ² In the federal context, they are part of the single federal states. ³ They form the local self-government. ⁴ As the municipal law is object of federal state law, the legal basis referred to shall be the one of the biggest federal state, Northrhine-Westphalia. Other federal states have similar regulations. § 1 section 2 GO NW (Gemeindeordnung Nordrhein-Westfalen, Municipal Regulation of the Federal State of Northrhine-Westphalia) regulates the legal personality of the municipality. II. The Creation and Organisation of Executive Municipal Authorities in Germany Although the municipal council establishes regulations, it is no parliament; it is an executive authority as the municipality is part of the executive. ⁵ Thus, § 40 section 2 phrase 1 GO NW names as the main executive municipal authorities: the municipal council and the mayor. Furthermore, § 57 section 1 GO NW authorises the municipal council to create boards.

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