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Effecting Change and Good Governance
in Local Administration in Bosnia and Herzegovina
Final Survey of the Project “Our Town, Our Future”
Editors:
Nenad Šebek, Corinna Noack-Aetopulos and Dževdet Tuzlić
Publishers:
CENTER FOR DEMOCRACY AND RECONCILIATION IN
SOUTHEAST EUROPE (CDRSEE), Thessaloniki and Izdavačko-grafička kuća
“Planjax”, Bobare 22, Tešanj, 74264 Jelah, BiH
Copyright:
BBC World Service Trust, Bush House, PO Box 76, Strand,
London WC2B 4PH ; tel: +44 20 7557-0 ; www.bbcworldservicetrust.org
and CENTER FOR DEMOCRACY AND RECONCILIATION IN
SOUTHEAST EUROPE, KRISPOU 9, THESSALONIKI 546 34, GREECE,
tel: +30 2310 960820-1 – fax: +30 2310 960822
e-mail: [email protected], web: www.cdsee.org,
Printer:
“Planjax” Jelah
DTP and Design: “Planjax” and Edin Mević
Publishing Date: April 2006
Print run: 1700 copies
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Nacionalna i univerzitetska biblioteka
Bosne i Hercegovine, Sarajevo
352.07(497.6)(047.3)
UTICAJ na promjene dobrog upravljanja u
lokalnoj administraciji u Bosni i Hercegovini :
završno istraživanje projekta Naše mjesto naše
sutra / urednici Nenad Šebek, Corinna
Noack-Aetopulos i Dževdet Tuzlić. - Tešanj :
Planjax ; Thessaloniki : Center for Democracy and
Reconciliation in Southest Europe, 2006. - 176,
192 str. : ilustr. ; 24 cm
Na nasl. str. prištampanog teksta: Effecting
change and good governance in Bosnian local
administration : finale survey of the project Our
Town, our Future
ISBN 9958-34-010-0
1. Šebek, Nenad
COBISS.BH-ID 14967302
Effecting Change and Good Governance
in Local Administration in Bosnia and Herzegovina
Final Survey of the Project “Our Town, Our Future”
Edited by
Nenad Šebek,
Corinna Noack-Aetopulos and
Dževdet Tuzlić
Tešanj and Thessaloniki
2006
Contents
Acknowledgements .................................................................. 7
Executive Summary .................................................................. 9
Introduction ........................................................................... 11
Part 1 – Baseline Research ..................................................... 13
1.1 Aims of the Baseline Research .......................................... 13
1.2 The Baseline Survey – Opinion Poll conducted by
Dr. Colin Irwin .................................................................. 14
Author: Dr. Colin Irwin
1.3 Secondary Sources ........................................................... 25
Authors: Marika Djolai, Project Manager and Šejla Dizdarević,
Researcher, BBC World Service Trust
1.4 Study Tour to Northern Irland .......................................... 40
Report by BBC World Service Trust
Part 2 – The Radio Drama ....................................................... 50
2.1 Concept and Production Team .......................................... 50
Authors: Marika Djolai, Project Manager and Renata Cigler,
Project/Broadcast Assistant, BBC World Service Trust
2.2 Selected Episodes ............................................................. 55
2.2.1 Episode One – “First Day” ............................................. 55
Author: Feđa Isović, Script Writer, BBC World Service Trust
2.2.2 Episode Four – “Hotel Belvi” .......................................... 67
Author: Aida Pilav, Script Writer, BBC World Service Trust
2.3 The Pilot Programme Testing by Mediacentar Sarajevo ..... 82
Report compiled by: Mediacentar Sarajevo, Author: Ratko Đokić
2.4 Results of the Audience Research ..................................... 89
Author: Prof. Dr. Svetlana Logar, Strategic Marketing, Belgrade
2.5 Analysis of the Phone-Ins ................................................102
Author: Dževdet Tuzlić, CDRSEE, Thessaloniki
Part 3 – The Local Authority Conference ................................120
3.1 Concept and Objectives of the Event ................................120
3.1.1 Welcome Address ................................................121
Nenad Šebek, Executive Director, CDRSEE, Thessalonki
3.1.2 Keynote Address ..................................................122
Michael Docherty, Head of Democratic Stabilisation and
Social Development, Delegation of the European
Commission to Bosnia and Herzegovina
3.2 Municipal Workers Are Citizens Too .................................125
3.2.1 Municipal Administration as a Gatekeeper of
Development
Contributions: ......................................................125
Dževad Bećirević, Head of the Municipality Centar Sarajevo
Jasmin Komić, Deputy Head of the Municipality of Banja Luka
Ljubo Bešlić, Head of the Municipality of Mostar
3.2.2 Professional Skills, De-politicising
and Improving Local Administration,
Reforming the System of Local
Autonomy
Contributions: ......................................................137
Adnan Bešlagić, Association of Municipalities and Cities of FBiH
Anton Štitić, General Secretary, Association of Municipalities and
Cities of FBiH
Ranko Karapetrović, Former Head of the Municipality of Laktaši
3.2.3 Accountability
Contributions: ......................................................149
Mustafa Kurtović, Head of Municipality Goražde
Dr Milan Blagojević, Secretary of District Court in Banja Luka
Kimeta Ljeljak, Secretary of the Municipal Court in Mostar
3.3 Challenges for Municipal Administration in BiH ................153
3.3.1 Economic Development and the Role of
Municipal Administration .....................................153
Ljiljana Šimunović, The Foundation for Sustainable Development FSD
Zdravko Prka, Head of the Municipality of Tomislavgrad
3.3.2 Participative Governance, the Dissemination
and Exchange of Best Practices among
Municipalities; the Swiss Model ...........................156
Alma Zukorlić, Slaviša Đurić, Swiss Development Cooperation,
Sarajevo
3.3.3 Article 19 – Freedom of Access to Information –
Implications for Public Authorities .......................162
Mehmed Halilović, Deputy Media Ombudsman FBiH
3.4 Case Studies ....................................................................166
Zvonko Marić, Journalist FTV; Saša Čavrag, Journalist “Nezavisne novine”
3.5 Results of the Moderated Working Group Sessions ..........169
Moderators Team
3.5.1 Hiring Procedures and Promotion ..............................170
3.5.2 Efficiency and Citizen Oriented Services .....................171
3.5.3 Transparency ..........................................................174
3.5.4 Summary of Recommendations .................................176
Part 4 – Summary of Conclusions ..........................................179
Appendix I
Contributors and Participants of the Conference ........182
Acknowledgements
The editors first and foremost want to express their gratitude to the
European Commission and the Charles Stuart Mott Foundation, who
through their grants made the project “Our Town, Our Future” and this
publication possible.
More than 200 people of various professions directly participated in this
project and contributed to its success. The Bosnian media covered the
project continuously and widely disseminated information about the
aims, objectives and achievements. 30 radio stations broadcasted the
popular radio drama all over Bosnia and Herzegovina and numerous
citizens participated in phone-ins. More than 2600 citizens took part in the
project’s three opinion polls, which allowed us to compile valid research
on attitudes in the country.
This book, which documents the results of ”Our Town, Our Future”, is the
collective work of many excellent colleagues, we want to thank the whole
BBC World Service Trust (BBCWST) team, the local project manager
Marika Djolai, the project assistant Renata Cigler, the researcher Šejla
Dizdarević, the creative team1 and the radio drama’s actors2 for delivering
an excellent production and creating the basis to facilitate dialogue and
raise awareness. Many thanks to the BBC WST team in London, especially
to Keith Ricketts and Leila Dedić for supporting all our activities.
We are also very grateful to Ms Sheila Cannon, Director of Programmes
at the CDRSEE, who greatly contributed to the success of the project with
her great experience and her creativity.
Particularly we want to thank the team of BORAM Marketing for their
excellent work, the directors Samra Lučkin and Amra Hačimić and their
highly skilled staff Sanja Kiš-Balić, Nerma Ćurulija, Namik Merzić and
Amira Gackić for facilitating the local research activities, providing
contacts for key persons and organising the conference in Neum.
We are especially thankful to Dr. Colin Irwin for sharing his expertise in
opinion polling and his thorough research on the attitudes of the citizens
script writers: Fedja Isovic, Nenad Velickovic and Aida Pilav; script editors: Mladen Ovadija,
drama editor: Zlatko Ivanisevic, directors: Miralem Ovcina and Benjamin Filipovic
1
Main characters: Jasna Zalica, Admir Glamocak, Mirsad Tuka, Izudin Bajrovic, Gordana
Boban, Zan Marolt, Serif Aljic, Belma Lizde Kurt, Sead Bejtovic, Alena Dzebo and Dzenita
Imamovic. Supporting roles: Milan Pavlovic, Jasna Diklic, Radenka Seva, Mirza Tanovic,
Aleksandar Seksan, Zoran Becic, Semir Krivic, Robert Krajinovic, Alban Ukaj, Drago Buka,
Aleksandar Blanic, Dusko Mazalica, Boris Savija, Alen Muratovic, Alija Aljovic, Halima Music,
Vanesa Glodjo, Mehmed Porca, Dzana Pinjo, Ejla Bavcic and Moamer Kasumovic.
2
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of BiH, which formed the basis of all subsequent endeavours. In this
context we also want to mention Dino Đipa from PRISM Research, who
implemented the data collection and analysis. Thanks also to the team
of the Mediacentar Sarajevo for the implementation of the Focus Group
Testing, and in this context we especially want to mention Ratko Đokić.
For the final research analysing the audience feedback we want to thank
Prof. Dr. Svetlana Logar of Strategic Marketing.
We also want to express gratitude to the contributors and participants of
the conference. Especially, we want to thank Dževad Bećirević, Mayor of
Sarajevo, Ljubo Bešlić, Mayor of Mostar and Jasmin Komić, Deputy Head
of the Municipality of Banja Luka for their kind support in our activities.
Last but not least, we thank the moderators of the working group
sessions, Gildžana Tanović, Alma Bubrić, Aida Kalender, Ševko Bajić,
Nikoleta Milašević, Helena Okuka, Belma Ahmedović, Alisa Bužimkić and
Amela Rebac for their enthusiasm in facilitating discussions and compiling
findings and recommendations.
Thanks also to Nicola Jamieson and Ruth Sutton for their thorough proof
reading of the English version and to Dženisi Bužimkić for her proof
reading of the Bosnian version, and to Alma Bubrić, for transcribing the
conference recordings, and to Vlado Mikulić, Duška Tomanović and Alma
Bubrić for translating work.
The editors, Sarajevo-Thessaloniki 2006
8
Executive Summary
The fall of the “Iron Curtain” left many countries in transition from an
authoritarian regime to democracy. Experiences have been manifold,
but similarities exist. In a disordered period of “finding your own way”
abuse of duty is common practice and seems inevitable. The sensitive
issue of corruption in public authorities is not only an open secret in
the societies of Central and Southeast Europe, but also one of the most
severe obstacles towards development. In Bosnia and Herzegovina a new
state was established on the battlefield of a war, which not only brought
the disorder of transition, but was complicated by many more factors.
The Dayton Peace Agreement offered a contested set of solutions based
on compromises to satisfy all three ethnic groups. It established a
system with the most complicated division of power on all levels of public
administration to serve the most urgent purpose: to put an end to violence
and open the dialogue for peace. Ten years after Dayton, the country still
struggles to become what every one of its citizens highly desires to be: a
modern state and on the list of countries nominated for EU accession. The
international community invested many Euros and Dollars for a diversity
of development projects, but international presence is still needed to
govern the country.
Bosnia and Herzegovina might still be one or more steps away from being
a self sustainable flourishing country, but the citizens of BiH through
many projects have learned about their rights and about democracy.
This publication documents a project, which aims to further empower
the citizens of BiH and more specifically the municipal workers as the
authority closest to the citizen. The main topic of the project was the
issue of corruption and malpractice, and the aim was to highlight the
importance of a reliable public service and point to good practices and
success stories.
The project intended to change the attitudes of municipal workers by
providing education, using two interrelated approaches. 15 episodes of
popular radio drama and phone ins tackled the issue in an entertaining way
and a conference in Neum facilitated debate amongst 170 representatives
of municipalities in the country, who will act as goodwill ambassadors and
take the message to their colleagues.
The educational activities were based on comprehensive high quality
research. An opinion poll, designed by a well-know expert from Northern
Ireland, made clear that people in BiH basically agree on what problems
need to be solved and how. There is a shared will to look into a common
future and put the past aside in order to build up the economy and reliable
state institutions. The research itself provided a valuable source to change
9
attitudes in terms of breaking with a common stereotype showing the
municipal worker as simply inefficient and unresponsive to the citizens’
needs. Looking at the attitudes explored in three opinion polls municipal
workers highly welcome reform, and are aware of the fact that they are
responsible to provide good governance, which will not only benefit “the
citizen”, but also themselves. In the end every municipal worker, above
all, is a citizen.
Municipalities in the country are not homogeneous, but range from ISO
certified to “still using typewriters”. Municipal workers also feel that at the
moment there is a wide gap between where they want to go and where
they stand. Training was on top of recommendations formulated on the
conference, but also the wish to have a more effective internal control
system. Corruption is an open secret and everybody in BiH can list well
known examples, but actual criminal proceedings are rare. Municipal
workers themselves explicitly stated that they wish to have an effective
legal tool which would allow separating the wheat from the chaff.
The project “Our Town, Our Future” reached the population of BiH with the
popular radio drama “A gdje sam tu ja” and extensive outreach work. It
highlighted the multiple perspectives through which to view the complex
issue of corruption, defusing stereotypical attitudes, promoting dialogue
and pointing to shared values.
The editors, Sarajevo-Thessaloniki 2006
10
Introduction
The “Our Town, Our Future” Project used radio drama, along with extensive
outreach work, to strengthen democratisation, good governance, and
the rule of law in Bosnia and Herzegovina. The BBC World Service Trust
conducted this project from 2004 to 2006 in partnership with the Center
for Democracy and Reconciliation in Southeast Europe.
This project aims to change the attitude of staff in municipal authorities
by raising awareness of poor governance issues and by highlighting best
practice and malpractice through popular radio drama. The outreach work
encourages local communities to stand up for their individual citizens’
rights and to present their own needs more effectively.
The radio drama series, set in a Bosnian local authority, was targeted to
attract an audience of 250,000 municipal workers, their families, local
politicians and citizens on all sides of the ethnic divides. The series was
designed to raise awareness of the current weaknesses of municipal
authorities. The project encouraged community involvement in the
development of the radio series with local consultative testing and focus
groups.
The fragmentation of power and complexity of structure of local
government in the country3 is fertile ground not only for inefficiency but
also for widespread corruption. The project targeted municipal authorities
with the aim of raising awareness and improving mutual understanding
at the level where public administration is in direct interchange with the
citizen.
Since 1992 the BBC has developed similar educational drama series
in Albania, Romania, Russia and Afghanistan. In this project 30 radio
stations all over BiH broadcasted 15 episodes of the series. Each station
produced its own radio phone-in to debate the issues raised in the drama
series.
“Our Town, Our Future” storylines formed the cornerstone of a broad range
of outreach work, which was organised by the Center for Democracy and
Reconciliation in Southeast Europe. The outreach work aimed to improve
Bosnia and Herzegovina is country in a state of recovery after a three and a half year
war from 1992 to 1995. The country consists of two entities: the Federation of Bosnia and
Herzegovina (FBiH) and the Republika Srpska (RS). Each entity has its own government.
Overarching these entities is a central government and a rotating presidency. Local
government in the FBiH is divided into 10 cantons which are further subdivided into 81
municipalities. The RS is subdivided into 63 administrative municipalities and does not have
a cantonal system.
3
11
the quality of 144 municipal authorities and included 3 opinion polls. The
results and methodology are published in this book.
A conference for municipal workers in Neum, November 2005 further
informed low and middle-ranking municipal workers, of best practice and
malpractice. The conference was designed to encourage constructive
debate of obstacles in municipal daily work. Delegates from municipalities
all over BiH participated in working groups and developed recommendations
of how to improve the civil service sector. Part 3 of this publication is a
transcript of the conference and gives insight into the problematic issues
of municipal institution development in the country.
All activities of the project were accompanied by extensive public
relations work, which included a regular newsletter. The project received
considerable feedback in the local media and a list of articles is included
in the appendices.
A five-day study-tour to Northern Ireland allowed Bosnian media
managers and drama professionals and members of municipalities to
share experiences with those in another country which is equally politically
complex with deep religious tensions.
The project paid special attention to utilising local talent and developing
local partnerships with broadcasters. The soap opera was produced using
Bosnian directors, writers and actors.
The project was made possible with a grant of 835,142 Euro from the
European Commission under “The European Initiative for Democracy and
Human Rights: Support for Democratisation, Good Governance and the
Rule of Law” and was co-financed by the Charles Mott foundation.
The editors, Sarajevo-Thessaloniki 2006
12
Part 1 – Baseline Research
1.1 Aims of the Baseline Survey
The baseline survey was commissioned to provide information on the
development of the radio drama in order to reflect perceptions, attitudes
and beliefs held by Bosnian and Herzegovinian citizens from all ethnic
groups, with a special focus on municipal workers and what is required to
strengthen their social, economic and political situation. It was designed
to provide the creative team with material to produce a radio drama,
which would be relevant and reflect the concerns of the citizens in BiH
with the municipal administration of the country.
The findings of the baseline survey were also utilised to facilitate debate
among the municipal workers at the conference, which was organised in
Neum in November 2005.
The methodology of the research has been developed over nine surveys
of public opinion, which were conducted in support of the Northern Ireland
peace process between April 1996 and February 2003. All parties in the
conflict have been involved in the development of the questions.
The field research in Bosnia and Herzegovina profited from the experiences
in Northern Ireland. The design of the questionnaire was based on an
interdisciplinary research, covering all major aspects of social and political
life affected by municipal institutions and government departments, as
‘the people’ and their ‘political and municipal representatives’ often have
very different views (and interests) about the nature of the problem and
its resolution.
All serious parties were included in the research, as it is most helpful
to test support for mainstream opinion, centre party compromises
and radical reforms together. Valid results have been achieved by
developing appropriate questions in order to rank the major problems in
a conflict, followed by a set of questions which rank potential solutions
to the identified problems. Experience has shown that the elimination of
extreme positions and views is important as they usually share little cross
community support and are therefore irrelevant.
13
1.2 Baseline Survey for “Our Town, Our Future”: A
project about democratisation, good governance and
the rule of law in Bosnia and Herzegovina
by Dr. Colin Irwin
The research for the baseline survey was undertaken by Dr. Colin Irwin
of the Queens University of Belfast. The coordination was provided
by the Center for Democracy and Reconciliation in Southeast Europe,
Thessaloniki, with the assistance of BORAM, Sarajevo. The public opinion
survey work was conducted by Prism Research, BiH between July 9 and
July 23 to produce 1200 ‘face to face’ interviews of citizens and 300
interviews of municipal employees that represented a cross section of
the adult population of Bosnia and Herzegovina in terms of age, gender,
social background, political views, nationality and geographical area.
Background: Furthering democratisation, good governance and
the rule of law
Negotiating peace agreements that can stand the test of time is very
difficult. But recent experience tells us that when the people and the
politicians can bring a peace process and political process together, as
one common enterprise, then the possibilities for success are greatly
increased. In Northern Ireland most people believe ‘the war is over’
and although the Belfast Agreement has its problems it was endorsed
by the people in a referendum and is accepted as the basis for any
future political accommodation. In Bosnia and Herzegovina the Dayton
Agreement brought an end to the war but the presence of an international
force is still required to maintain the peace. The international community
want to disengage but may not be able to do so until the peace process
and political process are ‘as one’ and to do that they need policies and
agreements that have wide popular support and legitimacy.
So what do the people believe are the most important issues that need
to be addressed to overcome the devastating effects of the war in Bosnia
and Herzegovina? What are the most critical social, political and economic
problems facing the people today? What could happen if these problems
are not properly addressed and what do the people believe needs to be
done to help achieve reconciliation, economic independence and effective
government in the future?
Nine public opinion polls were run in support of the Northern Ireland peace
process so that the people of Northern Ireland would have an opportunity
to tell their politicians what they thought should be done. This public
opinion poll uses the same methods as those used there so that the people
of Bosnia and Herzegovina can have an opportunity to express their views
14
on the way ahead. The results are reviewed below and full comprehensive
reports were sent to all the parties who have been elected to government
in Bosnia and Herzegovina and to the international community, their
organisations, NGOs, IGOs, civil society and broadcasters.
The problems
People from different communities often hold very different views about
who was to blame for the war and the problems it has created. Firstly, with
regards to blame and responsibility everyone interviewed was asked to
indicate whose role they considered to be ‘Very Significant’, ‘Significant’,
‘Of Some Significance’, ‘Of Little Significance’ or ‘Of No Significance’ at all.
Out of 12 possible options predictably Bosniak’s placed Serbs at the top of
their list at 68 per cent ‘Very Significant’. After that they tended to blame
the international community and placed themselves at the bottom of their
list at only 8 per cent ‘Very Significant’. Serbs blamed the US most of all
at 66 per cent, then NATO at 64 per cent and themselves, predictably at
the bottom of their list, at 23 per cent ‘Very Significant’. Croats seemed to
blame the Serbs (60 per cent) and the international community (57 per
cent) almost equally but then they also place themselves at the bottom
of their list at only 14 per cent ‘Very Significant’. So everyone blames
everyone else more than they blame themselves. It was ‘ever so’ and
in Northern Ireland we call this the ‘blame game’. No one ever seems to
win but still the game remains very popular. It is sometimes difficult to
understand why.
But when it comes to the devastating effects of the war everyone agrees
that the death of so many people should be placed at the top of the list at
84 per cent ‘Very Significant’ followed by ‘2 million refugees and displaced
persons’ at 82 per cent and then the ‘Destruction of the country’ at 78 per
cent. With regards to politics and elections, again there is much agreement
with ‘Nepotism’ coming in first at 53 per cent ‘Very Significant’ followed
by ‘Young people “turned off” by politics’ at 52 per cent and ‘Political
corruption of nationalists’ at 5 per cent. So problems of devastation and
political failure are considered the most significant followed by the fact
that the ‘Dayton Agreement stopped the war but imposed a political
structure without consensus’ at 47 per cent ‘Very Significant’. After that,
problems of inter-ethnic relations become issues of some importance
with the top three issues being ‘Lack of financial support for returnees’ at
4 per cent ‘Very Significant’, ‘Ethnic stereotypes and prejudices are still
very strong’ at 40 per cent and ‘Significant numbers of people do not feel
BiH is their state or homeland’ at 39 per cent.
Problems of corruption are considered no less significant than other
political and electoral problems with ‘Corruption of politicians’ first at 57
per cent ‘Very Significant’ followed by hiring at 55 per cent, judges at
54 per cent, nepotism at 53 per cent, the police at 52 per cent and so
on. The related topic of police, courts and the law brings in very similar
15
results with ‘Hardly any corruption investigations and prosecutions’ first on
everyone’s list at 57 per cent ‘Very Significant’ followed by ‘No sanctions
for mistakes made by the international community’ at 51 per cent. Third
in this list is ‘Slow implementation of court decisions’ at 48 per cent and
fourth is ‘Ineffective law’ at 46 per cent. Clearly the people of Bosnia
Herzegovina have serious misgivings about the quality of their criminal
justice system, not only in terms of its effectiveness but also in terms of
treating everyone the same including the international community.
The desperate state of the economy is considered to be the most serious
problem that needs to be addressed second only to the devastating effects
of the war. The fact that the War destroyed the economy’ comes in first on
this list at 80 per cent ‘Very Significant’ followed by ‘High unemployment’
at 77 per cent, ‘Young people have few opportunities’ at 76 per cent and
then ‘Best young people leaving BiH’ at 74 per cent. There is, perhaps,
a serious ‘Catch 22’ here. Unless the economy picks up the ‘Best young
people’ will not stay, but if they do not stay then what are the prospects
for the economy?
With regards to education the first concern is that there is ‘No vision for
the future’ at 47 per cent ‘Very Significant’ followed by ‘Low standards
of education’ at 43 per cent, ‘No common curriculum for school’ at 40
per cent and the ‘Quality of university faculty’ at 38 per cent. Problems
relating to the costs of segregated schools and ethnic division in schools
are also considered important at 33 and 32 per cent ‘Very significant’
respectively but questions of quality in education are clearly matters of
greater concern.
Tragically ‘The continuing effects of rape during the war’ is considered to
be the most difficult problem for women at 54 per cent ‘Very Significant’.
This breaks down at 61 per cent for Bosniaks, 54 per cent for Croats and
40 per cent for Serbs. After that the very practical issue that ‘Society
does not provide for child care’ comes in at 53 per cent and ‘No effective
equality commission’ at 38 per cent. The devastating effects of the war
and economic considerations seem to effect women’s issues just as much
as any other matter reviewed here.
A ‘Lack of professional standards’ at 38 per cent ‘Very Significant’ and
the ‘Media segregated on ethnic lines’ are considered to be the top two
problems for journalism and the media in Bosnia Herzegovina followed by
‘Too much gossip and unchecked stories’ at 36 per cent and ‘Not enough
investigative journalism’ at 34 per cent. People clearly want and can
reasonably expect an effective, professional and impartial free press.
Out of a list of 26 items in the ‘Government and Municipalities’ question the
top six problems were: ‘High welfare costs and low employment’ first at
64 per cent ‘Very Significant’, followed by a ‘Lack of justice’ at 63 per cent,
16
then ‘No one takes responsibility’ at 60 per cent, and ‘With 280 ministries
and staff the constitution does not work’, the ‘Infrastructure requires repair’
and ‘Too many levels of government’ all at 58 per cent. The list goes on but
perhaps what is important to note here is that the war has not only done
harm to the economy and various state services it has also done harm
to the way in which the country now has to be run. Significantly these
problems are considered more serious than the seventh item on the list, a
‘Very wasteful and expensive civil service’. The civil service needs reform
but without economic growth and constitutional reform such efforts may
not produce the positive changes so many are hoping for.
Although Bosnia and Herzegovina is not a colony the relationship between
the state, her people and the Office of the High Representative (OHR) is not
all that different. Predictably then the problems that the people have with
the international community and OHR are as follows: ‘Paid very much more
than local staff’, 57 per cent ‘Very Significant’; ‘They do not pay tax’, 53 per
cent; ‘Do not understand local issues’, 52 per cent; ‘Lack of accountability’,
also 52 per cent; ‘Inappropriate use of resources’ 50 per cent, and so on,
and so on. The people of Bosnia and Herzegovina want to run their own
state. That is very clear. Fortunately the international community share
this ambition. But how can this be done? Do the people know?
However, before people were invited to say what they thought needed to
be done all those interviewed were asked what might happen if the people
of Bosnia and the international community fail to take the necessary
steps needed to help secure reconciliation, economic independence and
effective government? Seventy six per cent thought it ‘Very Probable’ that
the country would become a ‘Source of very cheap labour’ although 67
per cent still thought they ‘Will join the EU’. ‘Withdrawal of international
support’ came in at 65 per cent, ‘European “black hole”’ at 60 per cent
and the ‘EU will give up and go elsewhere’ at 59 per cent. The prospects
of Bosnia and Herzegovina becoming a failed state seem very real indeed
but the possibility that there might be a ‘Return to war’ or that the Serb
entity and Croat cantons might join Serbia and Croatia leaving a residual
Bosnia for the Bosniaks all came in at the bottom of this list at only 34 per
cent ‘Very Probable’. This is reassuring but how can the status of ‘failed
state’ be avoided?
The solutions
As steps needed to help secure a stable and better future, people were
asked to indicate which options they considered ‘Essential’, ‘Desirable’,
‘Acceptable’, ‘Tolerable’ or ‘Unacceptable’. With regards to the devastating
effects of the war the top priority was ‘Develop the economy’ at 89 per
cent ‘Essential’ or ‘Desirable’ followed by ‘Remove wealth of war criminals’
at 84 per cent and ‘Involve everyone in their future’ at 85 per cent.
‘Amnesty for telling the truth’ came in at the bottom of this list at only 40
per cent ‘Essential’ or ‘Desirable’ and 22 per cent ‘Unacceptable’ which
17
broke down to 26 per cent for Bosniaks, 11 per cent for Sebs and 38 per
cent for Croats. Amnesty remains a sensitive issue.
‘Separate politics and religion’ at 79 per cent ‘Essential’ or ‘Desirable’ and
‘Political leadership based on successful government’ at 80 per cent were
almost joint first on the ‘Politics and Elections’ list followed by ‘Politicians
should stay out of religious affairs’ and ‘Religious leaders should stay out
of politics’ both at 77 per cent ‘Essential’ or ‘Desirable’. With regard to the
related topic of inter-ethnic relations ‘Become equal citizens of Bosnia’ was
first on this list at 90 per cent ‘Essential’ or ‘Desirable’ followed by ‘Religious
leaders should work for peace’ at 87 per cent and ‘Become citizens of
Europe’ at 84 per cent. More positive suggestions were made on both of
these lists and there was no significant disagreement over any of them.
Politics came in again at the top of the ‘Public Corruption’ list with ‘Prosecute
and jail corrupt politicians’ at 87 per cent ‘Essential’ or ‘Desirable’ followed
by ‘Prosecution of all corruption’ also at 87 per cent and ‘Build an efficient
state to end corruption’ at 86 per cent. The list went on in the same way
through various types of corruption in various public services but at the
bottom of this list the proposal for ‘Better salaries for public officials’ only
received support at the 44 per cent level and 23 per cent found this proposal
‘Unacceptable’. On the related topic of ‘Police, courts and the law’ the top
two items were ‘Public officials who take bribes should be prosecuted’
and ‘People who pay bribes should be prosecuted’ at 87 and 88 per cent
‘Essential’ or ‘Desirable’ respectively. Clearly, when it comes to problems of
corruption and the law prosecutions are what people want to see.
Of course everyone wants to develop the economy and here are the
top items from this list: ‘Develop agriculture’ 89 per cent ‘Essential’ or
‘Desirable’, ‘Invest in education’ 90 per cent, small business 88 per cent,
heavy industry 84 per cent, ‘EU standards of pollution control’ 83 per
cent, ‘All social care responsibility of the state’ 82 per cent, ‘Organise
state along economic not ethnic regions’ 80 per cent and so on. Any good
idea for economic development seems to be a good idea for everyone.
Education, however, is not quite so simple. Given people’s views on
nationalist politics it is not surprising that ‘End upbringing in nationalist
way through school programmes’ comes in at the top of this list at 75
per cent ‘Essential’ or ‘Desirable’ with ‘Teach respect for own and other
community’ at 79 per cent and ‘Curriculum for peace and reconciliation’
at 73 per cent. A ‘Common curriculum for universities’ comes in at 69 per
cent with ‘EU standards for university education’ and ‘Student exchange’
both at 79 per cent. However, at the bottom of this list is ‘No state funding
for religious schools’ at only 54 per cent ‘Essential’ or ‘Desirable’. Fifteen
per cent of the adult population find this option ‘Unacceptable’ and it
breaks down at 9 per cent for Bosniaks, 16 per cent for Serbs and 35 per
cent for Croats. This is clearly a sensitive issue for some Croats but they,
and everyone else, also want high standards of education that do not
promote narrow forms of nationalism.
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It should also be emphasised that education that seeks to overcome the
problems of nationalism was also suggested as being one of the best
ways to deal with ‘The continuing effects of rape during the war’. Other
women’s issues place ‘Full state support for maternity leave’ at the top
of their list at 83 per cent ‘Essential’ or ‘Desirable’ followed by ‘Regular
access to gynaecologists’ at 81 per cent, ‘Full state support for day care’
77 per cent and after school care 73 per cent and so on down the list.
There were no significant objections to any reasonable suggestions for
improving the position of women in society.
With regards to the media ‘Courts must pursue corruption’ at 73 per cent
‘Essential’ or ‘Desirable’, a ‘Degree in journalism and qualifications’ at
78 per cent and a ‘Code of good practice for journalists’ at 77 per cent
were all at the top of this list. People see effective journalists working to
professional standards as the solution to the problems in the media.
In looking over the options for reform of ‘Government and Municipalities’
and relations with the ‘International Community’ there seem to be two very
distinctive groups of common concerns. One set of issues relate to better
efficiency and management while the other focuses on constitutional reform
and international relations. We will look at the efficiency and management
options first. High on the government and municipalities list are ‘Hire top
professionals for projects’ at 85 per cent ‘Essential’ or ‘Desirable’, ‘Give
money to good projects’ at 81 per cent, ‘Civil service responsible to public’
at 83 per cent, ‘Clear lines of responsibility’ also at 83 per cent and ‘Ask
the users of Municipal services about improvements that could be made’
at 84 per cent. In addition to wanting the international community to
‘Give hope to the people’ at a high of 91 per cent ‘Essential’ or ‘Desirable’,
the people also want the international community to ‘Restrict activities to
key issues’ at 84 per cent, ‘Maximum per cent to solving problems’ at 85
per cent, ‘Give resources for economic and not ethnic reasons’ 81 per cent
and ‘Independent auditing’ at 79 per cent. The list goes on with ‘Respond
to local needs’ at 78 per cent and ‘Include local people in key positions’ at
74 per cent. A consistent theme clearly runs through all these examples.
People want greater efficiency and transparency and to be more involved
in the decision making process at all levels of government and, equally, in
all their dealings with the international community and Office of the High
Representative (OHR). Double standards are not acceptable.
With regard to constitutional reform people want the government to
‘Spend money on projects not levels of government’ at 83 per cent
‘Essential’ or ‘Desirable’, ‘Smaller and effective system of government’ 81
per cent, ‘Fewer levels of government’ 78 per cent and ‘Do not duplicate
services in entities, cantons and municipalities’ also at 78 per cent. To
resolve these questions the people would like the government or perhaps
the OHR to ‘Establish a Constitutional Commission to advise on reform’ at
77 per cent ‘Essential’ or ‘Desirable’ and ‘Reform the Constitution through
Parliament’ at 73 per cent. On the international front the people do not
want Belgrade or Zagreb to interfere in BiH affairs at 74 per cent ‘Essential’
19
or ‘Desirable’ but rather ‘Zagreb, Belgrade and Sarajevo should cooperate
to join the EU together’ at 78 per cent and to this end they want an ‘EU
programme to explain the 16 entry criteria to the people of BiH’ at 74 per
cent ‘Essential’ or ‘Desirable’.
A number of constitutional proposals were then tested against public
opinion. Consistent with other questions asked in this poll, and suggestions
that Bosnia and Herzegovina should be broken up had the least support.
The status quo established by the Dayton Agreement only came in fourth
on the list and this option was preceded by a return to the way things
were before the war, more powers to the municipalities and ‘Bosnia and
Herzegovina with decentralised regions in accordance with European
standards’. If this proposal, or something like it, could be combined
more clearly with proposals for a simplified system of government and
membership of the EU in partnership with her neighbours then, perhaps,
the people of Bosnia and Herzegovina could find again the sense of
vision and hope they so much desire - a peace process and political
process that they could call their own. Finally then, with this point in
mind, everyone interviewed was asked ‘Do you want the people of Bosnia
and the international community to negotiate, agree and implement a
programme of political, social and economic reform from all the options
reviewed here? Ninety four per cent said ‘Yes’.
Municipal workers are citizens too
Municipal workers are citizens too and, for the most part, the concerns
and important issues, the problems and their solutions that can make
Bosnia and Herzegovina a better place tomorrow than it is today are the
same for them as they are for their fellow countrymen and women. But
they do feel more or less strongly about certain options put on offer in
this poll. Here are some interesting examples.
When it comes to responsibility for the war they strongly feel ‘The
international community did not act impartially’ at 59 per cent ‘Very
Significant’ compared to 49 per cent for citizens in general, a difference
of +11 points. They also take a stronger view that the ‘Dayton agreement
stopped the war but imposed a political structure without consensus’ at
57 per cent ‘Very Significant’ compared to 47 per cent for citizens, a
difference of +10 points. They do not think political corruption at -5 points
and nepotism at –7 points is quite as bad as their fellow citizens. Municipal
employees take a more serious view of the lack of financial support for
returnees at +6 points and less serious view of the idea that they are not
allowed to return to their homes at –8 points. When it comes to public
corruption they do not believe they are nearly so bad as the general public
think (Table 1) and they also believe the poor salary for the police is a part
of the problem at +16 points.
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Table 1. Citizens and municipal employees views on problems of public
corruption
Per cent
Very Significant
Citizens
Municipal
Difference
Employees
Corruption of international community
36
38
2
Corruption of international donor nations
34
31
-3
Newspapers connected to corrupt politicians
34
29
-5
Donors influence on the media
31
26
-5
No professional standards for jobs
46
41
-6
Corrupt journalists paid for stories
35
29
-6
Politicians pay news papers, magazines,
journalists and editors
33
28
-6
Corruption is not considered wrong
53
46
-7
Local and state political influence on the
international community
31
24
-7
Promotion not on merit
47
39
-8
Corruption in the health service
48
40
-8
Media can not remove corrupt politicians
38
30
-8
Corruption is a part of life
46
37
-9
Corruption of politicians
57
48
-9
Corruption of judges
54
46
-9
Corruption of public services
46
36
-10
No transparent hiring
55
44
-11
Corruption in education
44
32
-12
Nepotism
53
39
-14
Corruption of police
52
35
-16
Municipal officials giving jobs
44
25
-19
Municipal officials giving documents
45
24
-21
Municipal officials giving licenses
44
22
-22
With regards to the economy municipal employees place more emphasis
on a lack of investment at +10 points and old industry at +6 points. They
also place less blame on the international community for introducing
religious schools than do their fellow citizens at –8 points and think
young women have better access to contraception also at –8 points.
They are more sceptical about journalists not checking their facts at +5
points and there are, as would be expected, considerable differences of
strength of opinion when it comes to the problems of government and
the municipalities and how well they think they are doing their job. Here
differences run as high as –22 points for ‘Very slow service’ and –23
points for ‘The citizens are not considered more important’ (Table 2).
21
Table 2. Citizens and municipal employees views on problems of
government
Per cent
Very Significant
Citizens
Municipal
Difference
Employees
No ecological responsibility
51
59
8
Infrastructure requires repair
58
65
7
High welfare costs and low employment
64
66
2
No information about the state locally
38
40
2
Top managers poorly paid
30
31
1
Income not distributed
52
52
0
Welfare costs for veterans and families of
deceased soldiers
56
55
-1
Very centralised control
35
34
-1
State level of government not properly
developed
47
42
-5
Poor expertise
40
34
-7
Too many levels of government
58
50
-8
Slow to implement laws of municipal self
management
43
36
-8
Poor management of projects
44
36
-8
With 280 ministries and staff the
constitution does not work
58
50
-9
Municipal workers opposed to reform
34
23
-10
Some issues fall between levels
56
45
-11
Lack of transparency
40
25
-14
No one takes responsibility
60
45
-15
Arrogant civil service
48
31
-17
Very wasteful and expensive civil service
57
41
-17
Poor use of international resources
53
36
-17
No culture of public service
50
31
-18
Lack of justice
63
43
-19
Too complicated
52
32
-20
Very slow service
52
31
-22
The citizens are not considered more
important
54
32
-23
When it comes to the work of the international community and international
relations they are slightly less critical than the average citizen, for
example, -8 points for ‘Too much spent on donors’ and also –8 points
for Zagreb and Belgrade politicians still wanting a greater Croatia and
Serbia. But municipal employees are more concerned about the future
22
than the average citizen. They are more inclined to believe Bosnia will
break up at +5 points ‘Very Probable’ and that the prospects of joining
the EU are less at –6 points ‘Very Probable’.
When it comes to the solutions municipal employees are harder on the
international community not taking sides and developing the economy at
+10 points more ‘Essential’ and less inclined to offer amnesty at –9 points
less ‘Essential’. Municipal employees are stronger on matters of political
and electoral reform at +12 points for ‘Minimum standards for political
candidates’ and +9 points for ‘Political leadership based on successful
government’. They are also much stronger on all measures needed to deal
with the problems of corruption. For example ‘Computerise public services’
comes in at +22 points and ‘Transparency’ at +15 points (Table 3).
Table 3. Citizens and municipal employees views of public corruption and
reform
Per cent
Essential
Citizens
Municipal
Employees
Difference
Better salaries for public officials
20
50
30
Computerise public services
41
63
22
Transparency
39
54
15
Promotion on merit not just time in job
35
48
13
Hiring on merit
37
48
10
Better salaries for managers
28
38
10
Universities responsible for honest degrees
56
65
9
Build an efficient state to end corruption
57
66
9
Prosecution of all corruption
61
66
6
Cut funding from corrupt faculties
51
57
6
Reform of public administration
45
49
5
End corruption of donor states
54
58
5
Use employees better - better managers
36
40
4
Student unions expose corrupt professors
49
53
4
Prosecute and jail corrupt politicians
62
64
2
Similarly the municipal employees are stronger on reforming the police,
courts and law at +13 points for ‘Establish confidence in the rule of law’
and ‘Effective tax collection’ at +17 points. Municipal employees also
want stronger incentives for the economy than the average citizen at +10
points for ‘Stimulate international partnerships with tax breaks’ and +9
points for ‘Develop small businesses’. When it comes to education they
want the ‘State to monitor and set standards’ at +8 points, ‘Train teachers
in reconciliation’ at +9 points and ‘Education programmes for teachers’
at +12 points. Municipal employees are more proactive than the average
citizen when it comes to all of the women’s issues and suggestions for
improving the media. For example they are +14 points up on citizens for
23
‘Effective regulatory body for the print media’ and ‘Code of good practice
for journalists’. They are also more proactive when it comes to reform of
government and the municipalities (Table 4).
Table 4. Citizens and municipal employees views of government and
reform
Per cent
Essential
Citizens
Municipal
Employees
Difference
Give more jurisdiction locally
37
52
15
Give more money locally
43
55
13
Professional qualifications for managers
34
46
12
Head of municipality should delegate
44
56
12
Civil service responsible to public
49
61
12
Transparency in decisions
44
54
10
Good managers should be rewarded
30
38
9
Re-education of civil service
34
44
9
Clear lines of responsibility
49
58
9
Explain new freedom of information laws
40
47
7
Hire top professionals for projects
52
59
7
Ask citizens what projects they want
45
52
7
Do not duplicate services in entities,
cantons and municipalities
44
51
7
Ask the users of municipal services about
improvements that could be made
48
55
6
State laws for local management
38
42
4
Give money to good projects
51
55
4
Simplify government services to municipal
level
44
48
4
Spend money on projects not levels of
government
53
56
3
State laws for local budgets
38
41
2
Implement EU standards for state and
municipal responsibilities and control
41
43
2
Smaller and effective system of
government
49
50
1
Fewer levels of government
47
46
-1
Reform the constitution through parliament
41
41
-1
Establish a constitutional commission to
advise on reform
45
44
-1
Move entity functions to the state level like
other EU states
44
41
-3
24
Similarly they want more ‘Transparency’ for the international community
at +11 points, ‘Independent auditing’ of the international community at
+9 points and ‘Train local people to be part of management’ at +5 points.
Finally when it comes to constitutional reform they are far less inclined to
want to go back to the way things were before the war at only 14 per cent
‘Essential’ for municipal employees compared with 31 per cent ‘Essential’
for all other citizens. Perhaps the simple conclusion to draw from all of
this is that municipal employees welcome opportunities for reform but
they do not think they are as bad as most citizens believe they are. And
then, again, they are citizens too.
Summary of findings
Perhaps the most significant conclusion that can be drawn from this
poll is that most people in Bosnia and Herzegovina share a common
understanding of what the major problems are and what needs to be done
to achieve a better future. There are some exceptions. Who was to blame
for the war but then most people also agree that this issue needs to be
put to one side so that the economy can be rebuilt, corruption brought to
an end, standards of education improved and the institutions of the state
made more effective. Although municipal employees are often thought
of as inefficient and unresponsive to the public’s needs they share these
same ambitions for the future and welcome the prospect of reforms that
can help them achieve these goals. Reaching a consensus on constitutional
change is not going to be easy but most people want it simplified and
want to join the EU along with their neighbours. With strong leadership
and a sense of vision all of this has the prospect of restoring a sense of
hope and this, above all else, is the people’s greatest desire.
1.3 Secondary Sources
by Marika Djolai, Project Manager and Šejla Dizdarević,
Researcher, BBC World Service Trust
Information on Governance Issues within Municipal Authorities
When it comes to program making the BBC always aims to be the world’s
most famous and trusted broadcaster and program maker, seeking to satisfy
all our audiences with services that inform, educate and enrich their lives
in ways that the market alone will not. We aim to be guided by our public
purposes; to encourage the most innovative talents; to act independently
of all interests, and to aspire to the highest ethical standards.
In order to achieve the above in producing “A gdje sam tu ja?” drama
series, we have taken a dedicated approach and, as always, decided
to base our program on real facts and figures. ‘Our Town, Our Future’
research team, has worked closely with the drama series’ creative team
in obtaining relevant information.
25
The research process included numerous meetings with local community
representatives, NGOs and international organisations, as well as visits to
a large number of towns and places throughout Bosnia and Herzegovina
and participation at various conferences and meetings. It was conducted
from August 2004 to August 2005.
Extensive data through research was collected through the internet and
the daily newspapers, and a focus on various issues was tackled in fifteen
episodes of the drama series “A gdje sam tu ja?“. Due to the variety of
issues in the series, research has consequently been very diverse.
This approach to the making of “A gdje sam tu ja?” radio drama series
provided the entertaining and educational character of the drama’s
plotline that was easily accessible and true to real life. In addition, the
BBC’s editorial values were applied, ensuring impartiality, fairness and
accuracy of the information.
Methodology
Visits to cities in BIH and meetings with government and municipality
officials
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Visit to Tuzla and meeting with a representative of Tuzla Municipality
(August 2004)
Visit to Mostar and meeting with the Local Government
representatives (August 2004)
Meeting with representatives of Novi Grad (Sarajevo) Municipality
(September 2004)
Meeting with a member of Mostar City Government (December
2004)
Meeting with a representative of the Department for Education,
Culture and Sport of Centar (Sarajevo) Municipality (February
2005)
Meeting with BiH Election Committee member for the purpose of
gathering information on the Conflict of Interests Law and its
application to the municipality employees
Gathering information on municipality Councillors and their
performance. Visit to Novi Grad (Sarajevo) Municipality and
meeting with the PR officer, who informed us about the city
Councillors’ activities (February 2005)
Contacting Education Department of Centar (Sarajevo) Municipality
with the aim of collecting information on implementation of the
Youth Centre and Youth Parliament projects (March 2005)
Meeting with a representative of Capljina City Council. Emphasis
of this meeting was on the rubbish disposal problem and other
issues (April 2005)
Meeting with a representative of Ljubuski City Council, who
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supplied us with information on the activities and problems of
Ljubuski municipality (April 2005)
Meeting with a representative of Siroki Brijeg Municipality, who
talked about sewage and water supply problems in the town (April
2005)
Meeting with a representative of Livno City Council. Conversation
about the public administration reform and other problems in this
town (April 2005)
Meeting with a representative of Trebinje Municipality, who informed
us about activities and projects being carried out in the town, the
issue of Alijagic family and their compensation claim and other
important topics (April 2005)
Meeting with representatives of “Odraz” (Federal Government
Foundation for Sustainable Development) in search for information
about their local community development projects (grants, credits
etc.). The Foundation closely cooperates with municipalities during
the implementation of projects.
Meeting with representative of the Public Administration and
Social Care Department in Tuzla. Talk about the department
activities and problems (May 2005)
Meeting with a representative of Brcko municipality about the
town issues and presentation of a detailed town development
report (May 2005)
Meeting with representative of Gradacac municipality with the
emphasis on most important issues in this greatly developed town
(May 2005)
Meeting with a representative of the Public Affairs Department
and a representative of the Housing and Public Utilities Department
in Doboj.(May 2005)
Visit to Novi Grad (Sarajevo) Municipality and meeting with some
employees (May 2005)
Meeting with representatives of Gorazde municipality. (May
2005)
Meeting with representatives of Foca municipality. (May 2005)
Meeting with representatives of Konjic municipality regarding the
water supply issues and other problems this city is facing. (June
2005)
Meeting with a representative of Drvar municipality (June 2005)
Meeting with PR officer in municipality of Bihac and one of the
Councilors (June 2005)
Meeting with a representative of Mayor’s cabinet in Cazin
municipality (June 2005)
Meeting with a representative of Prijedor Municipality and PR
officer (June 2005)
Meeting with a representative of Centar municipality, Sarajevo
(July 2005)
Meeting with the coordinator of Local Environment Action Plan
27
•
•
in Novi Grad municipality in order to obtain detailed information.
(June 2005)
Meeting with a representative of Sarajevo Canton Ministry of
Economy, on the subject of reconstruction of the Youth House
Skenderija. (June 2005)
Meeting with a representative of Federal Civil Service Agency
that monitors public administration reform in FBiH and implements
Civil Service Law.
Meetings with representatives of NGO sector in BiH
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Meeting with a representative from NGO “Forma F” to discus
their project dedicated to women in municipal administration
structures. (December 2004)
Meeting with a representative of the Association of Civil Victims of
War. (January 2005)
Meeting with representatives of NGO “Vasa Prava” which is providing
free legal assistance to the citizens. Many of their client’s problems
are linked to the issues in jurisdiction of the local administration.
(March 2005)
Meeting with representative of TALDI, Tuzla’s Regional Economic
Development Agency. We discussed economic situation in Tuzla and
their joint projects with Tuzla and some other municipal
administrations. (May 2005)
Meeting with a representative of Tuzla Citizen Forum. Their
projects are carried out in cooperation with Tuzla Municipality and
other local authorities.
Meeting with a representative of Bijeljina Youth Centre to discuss
their project “One volunteer, one Councillor “. (May 2005)
Meeting with activist of Youth Information Agency regarding
Revival Festival and other activities aimed at returning Skenderija
Youth House back to young people. (June 2005)
Visit to women NGO “Zene Une” (June 2005)
Meetings with representatives of international institutions
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28
Meeting with the World Bank’s Local Community Development
Program representative, obtaining information on programs
directed at municipalities and aimed at strengthening municipal
credit capabilities. (February 2005)
Meeting with the representatives of the OSCE to track information
about the local administration reform. (May 2005)
Meeting with OSCE Regional Office Public Finances Advisor
representative. (June 2005)
Field trips and visits to different organisations and institutions,
individuals and participation at conferences
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•
Attending Women Forum “Work and Pregnancy” organized by the
Stability Pact Gender Task Force. (November 2004)
Participation in the II Conference of Mayors and Civil Society in
Brcko District, organized by the Council of Europe and International
Peace Centre. During the Conference we has meetings with several
Mayors and representatives of different NGOs, such as Danish
Refugee Council, Youth Informative Agency, FBiH and RS Gender
Centers, UNHCR, International Peace Centre etc. (April 2005)
Attending workshop for Una river basin development, funded
by Swiss Agency for Development and Cooperation (SDC) with
several municipal representatives attending the workshop. (June
2005)
Visiting the house owner in Sarajevo, whose property is directly
affected by illegal construction of Hotel ‘Italija’, a disabled veteran
deprived of his rights for protection of private property. (November
2004)
Visit to Second Gymnasium in Sarajevo. (February 2005)
Visit to Business Centre of the Centar Municipality, gathering
detailed information. (February 2005)
Visit to Centre for Support of Agricultural Producers, gathering
information related to farmer association and credits for agricultural
development. (March 2005)
Field trip to agricultural association “Sarajevsko polje”. (March
2005)
Building Permits
For the purpose of carrying out in-depth research of illegal construction,
the legal aspect of this matter was taken into consideration. One of the
relevant documents is Cantonal Planning Policy Law published in the
Official Gazette of Sarajevo Canton (issue 13, 1999). As an example, we
also used Tender for building apartments in the municipality of Vogosca,
also published in Cantons’ Official Gazette. When it comes to Cantonal
Planning Policy Law, we were especially interested in municipality
authorities as concerns planning policies.
Conflict of Interest
The Creative team was presented with the Law on Conflict of Interests,
applicable to municipal officials in the following way: As neither of the
two entities ratified their laws, municipalities fall under jurisdiction of the
State Law, and it is used on elected Mayors, and Councillors i.e. everyone
with a political function. In the former call of local governments, 394
resignations were made as a result of a conflict of interests. As a result
29
of the last elections in October 2004, the Electoral committee appointed
3,281 council seats: 203 out of the appointed number couldn’t verify
their mandate due to the conflict of interest.
Sanctions for disrespecting the Law are as follows: a candidate is banned
from running in the elections for the next 4 years; the automatic loss
of mandate: this practically leads to the political death of the candidate.
There is also the possibility of imposing a fine, the amount of which is in
the region of 1,000 to 10,000 KM and, depending on the case, a ban on
working in Government Service. However, the loss of seat is always the
case.
The Electoral Committee is monitoring the implementation of this Law
by creating a database of all elected officials and also by monitoring
the Official Gazette, which publicises calls made for members of various
Governing Boards. Every citizen or institutions can also report cases
involving a conflict of interest. However, cases of mock reports are not
unknown as well, and they are quite often committed by political rivals
in the attempt to get rid of their competitors. Electoral Committee says
it is still necessary to raise awareness of the importance of the Law on
Conflict of Interest and its implementation.
Renting of school premises
Licences for the renting of educational institutional (kindergartens, high
schools, higher education faculties) are approved by Cantonal Authorities
in Federation of BH and by the Ministry for Education in Republic Srpska.
When a school is granted this License, in Federation BH Cantonal
Commission has to give its consent for renting given facilities. Next in the
line is the municipality, which has to approve the purpose for using this
facility, but the municipality cannot act without the other two licences.
The process is simpler to a certain degree in Republic Srpska. After the
licence is approved by the Ministry of Education, the approval is made by
municipal authorities.
On a more positive note, municipalities support schools even though
they are not legally obliged to. Together with Cantons, municipalities
get involved in paying bills, investing in school reconstructions, donating
school equipment, providing scholarships etc.
This help falls under the jurisdiction of Municipality Departments for
Education, Sport and Culture, and their senior staff take on a consultancy
role, advising School Heads and members of the Governing Board in
case of a dispute. The Mayor approves the appointments of School Heads
and members of the Governing Board.
30
Return
A positive example of cooperation between the State and local authorities
is the return of displaced persons and refugees. In the State Ministry for
Human Rights and Returnees we received information about ‘Strengthening
local administration in the field of return, reconstruction, development
and accommodation policy’ project, which is funded by the Swedish
Development Agency SIDA, with 700,000 KM. It provides technical and
personnel support for municipalities. The Ministry has chosen 30, mainly
undeveloped municipalities for this project. Analysing the situation, the
Ministry pinpointed the most problematic areas and based on this, some
municipalities will receive computers, printers and other equipment,
while others will employ professionals from different fields. Namely, it
has been established that some municipalities do not possess appropriate
departments for support of return, and that qualified professionals such
as architects, economists, and jurists are being employed in this sector.
The Ministry was in charge of the project planning and providing finances,
whereas implementation, which is just starting, and planning rest on local
authorities. As for the issue of computerisation, all these municipalities
are being networked, as they all need to have access to the Ministry’s
database. The long-term goal is for these municipalities to take over
responsibilities in return, reconstruction and housing areas, supporting
and creating departments for acquisition, reconstruction, return, housing
policy and development.
For the purposes of this project we investigated procedures of registering
birth and citizenship, deadlines and the application procedure for reinstating
properties with rights to abode. Problems with reinstating property are
present, with cases of litigation as well, and many of them are at the law
court. Sometimes obstruction by municipalities may occur, mostly in cases
when municipal officials are in possession of particular property. There are
bigger problems too, when something is built on someone else’s property:
A mosque in Bradina is built on a Serb family’s property, and near Prijedor
a church is built on a Muslim family’s property. Decree for the mosque’s
removal was issued in 1998 but the actual removal only started seven
years later. The fact remains that private property has to be returned to its
rightful owners or compensated for, but this process can take several years,
which is still a serious problem. This situation will probably remain the
same in coming years, as the justice system is slow. Municipalities, at least
in the Federation of BH are in charge of ensuring that private properties are
reinstated. On the other hand, reinstating apartments which have not yet
been privatised was never under the municipalities’ authority.
Public Services Reform
The Federal Agency for Public Service is in charge of public administration
reform in all state bodies in the Federation BH, including municipalities. All
31
the state bodies in the Federation BH were under obligation to implement
the Law on Public Administration, by July 2005. According to this law,
all the municipality officials who do not have the required qualification
will be made redundant. The agency’s task is to revise and monitor law
implementation on a municipal level. A significant number of civil servants
in all of the municipalities do not have the required qualification, and they
fear the Agency’ Commission. The Agency revised 69 managing bodies and
639 posts in 2005 and have discovered as a result that 143 government
officials do not fulfil legal requirements and should be dismissed.
A Positive example
The City library in Grbavica, part of Sarajevo City Library, was destroyed
during the war and has now been rebuilt partly with the financial help of
the Novo Sarajevo municipality, amounting to 10,000KM. This is the third
library which has been rebuilt in this municipality, which consists of 75,
000 inhabitants. At the opening ceremony, the Deputy Mayor announced
that the municipality will try to enrich library funding as it holds only
about 5,000 books at the moment.
To whom to complain
The Institution of Ombudsman for Human Rights in BiH is an independent
institution established in February 1996 in accordance with the Dayton
peace agreement, in order to promote human rights, good governance
and law enforcement in BiH. This institution monitors the activities of
public administration bodies in BiH, based on complaints or its own
initiative. A new legal framework for the institution was established on
3 January 2001. In accordance with the Law on Ombudsman for human
rights in BiH, and upon suggestion of the Presidency of BiH and both
Houses of Parliament, BiH appointed Mr. Safet Pasic, Mr. Mariofiol Ljubic
and Mr. Vitomir Popovic to be Ombudsmen for Human Rights.
Another organisation citizens can turn to is the ‘Vasa Prava’ (‘Your Rights’)
organisation, which provides free legal advice in the organization’s offices
throughout BiH.
On Councillors
The activity plan for the Municipality Council of Novi Grad, Sarajevo states
that Councillors should meet often, but in reality meetings are held once
a month. This is in contrast to various Municipality Council Committees,
which meet once or twice a month. Moreover, we checked whether the
topics under discussion at these meetings have been included in our
research. All BH municipalities have development strategies, and we
took the Breza municipality Development Plan as an example for our
work. Municipality Councillors ought to receive materials for discussion
32
at least 8 days before the meeting. These materials can be more or less
comprehensive depending on the topic.
Application of the research results
Many of these meetings, visits and trips were used as specific ideas for
some of the series’ episodes. One of Aida Pilav’s episodes deals with the
problem of illegal construction. The plot is based on a true story from the
Sarajevo Canton. Namely, the hotel “Italia” in Pofalici is illegally built. In
addition to breaking the law, this building is also causing damage to the
private property of other citizens, in this case- a disabled war invalid.
We also contacted relevant municipal officials to obtain all the necessary
information and make this episode as realistic as possible. The final result
of this effort is a beautifully emotional and dramatic episode entitled
“Hotel Belvi”.
Gender equality and women rights are talked about in the episode
entitled “Gdje će žensko poroditi kravu”, which very objectively presents
the situation of this aspect of life in BiH society. The episode is a result
of thorough research of this problem using indirect sources and direct
contacts with representatives of women NGO’s, international institutions
working in BiH and local commissions dealing with this problem. Meeting
with representatives of NGO “Zene Une” not only provided a wealth of
information when considering the status of women in BiH society but also
of women’s actions aimed at improving their position. A visit to a women’s
forum “Work and Pregnancy” gave us an insight into the delicate matter
of gender discrimination in the process of employment, present in various
institutions.
The problems of young people in BiH were the focus of three episodes in the
drama series “A gdje sam tu ja?”. Episodes entitled “Pobuna u gimnaziji”,
“Vijeće mladih” and “Koncert” tackle problems from different perspectives.
A number of contacts with the representatives of youth associations and
municipality departments provided basic information about the problems
of young people and pointed research in the right direction. Meeting with
a young activist from the Youth Informative Centre gave us information
about the status of youths in BiH society. “Revival” Festival is their direct
endeavour to reconstruct the premises of the Youth House “Skenderija”
which were given back for use to the Sarajevo youth. This case was used
as the main idea for one of the episodes named “Koncert”.
A visit to the Second Gymnasium in Sarajevo helped to develop one of the
drama series’ episodes highlighting the problem of renting school premises
for commercial purposes. This very popular and common practice in a
large number of municipalities in BiH often doesn’t return investments to
the improvement of school premises or some other benefit to pupils. This
topic was portrayed in a very interesting way, in the episode “Pobuna u
33
gimnaziji”. Appropriate Ministries in Federation of Bosnia and Herzegovina
and Republic of Srpska provided necessary information about the laws
covering this field as well as legal procedures related to this issue. Last
but not least, local consultative testing was used as a starting point when
reconsidering whether to include these topics in the drama series.
Visits and field trips to different parts of Bosnia and Herzegovina yielded
fruitful results for the development of the drama series. One such
example is the visit to the Sarajevo Agricultural Association “Sarajevsko
polje”, joined by one of the Script Writers. We discovered many facts
about the situation in agriculture in BiH, investments, support from the
state and local community. We could see to what extent municipalities
and higher levels of Government help private entrepreneurs and farmers.
Everything mentioned above is presented both objectively and effectively
in the episode “Podvala u prahu”.
Keeping in mind that the drama series is aimed at tackling some of the
most high profile topics, it was impossible not to discus the issue of local
administration reform. This process is present in every municipality in BiH
and it was crucial to collect the most relevant information regarding this
issue. OSCE, which has had a long term presence in BiH, proved to be the
most reliable information source with the most relevant and abundant
information on this topic. From the Federal Agency for Public Service we
found out more information about the problems, faced not only by the
employees of this agency but also the employees of BiH municipalities
in the whole of BiH, the local administration reform process and other
relevant information on this subject. All these issues are portrayed in the
episode named “U registraturi”.
These are just some examples of our research that was aiming to retrieve
relevant information about the situation in municipalities in both parts of
Bosnia and Herzegovina, Federation of Bosnia and Republic of Srpska.
Every visit to some of the municipalities in BiH, and meetings with their
representatives to local consultative testing, proved to be a great source
of information for the realisation of this project.
Daily media monitoring
Beginning in August 2004, research included gathering press articles about
relevant issues regarding local administration work and local community,
municipal services, the public good, relationships and people. Daily media
monitoring proves to have given a clear picture about the general situation
in BiH and on the local level. Research included gathering articles from
more than ten daily and weekly newspapers appearing in Bosnia and
Herzegovina:
34
1. “Dani” (Sarajevo)
2. “Slobodna Bosna” (Sarajevo)
3. “Start” (Sarajevo)
4. “Dnevni List” (Mostar)
5. “Oslobodjenje” (Sarajevo)
6. “Avaz” (Sarajevo)
7. “San” (Sarajevo)
8. “Nezavisne Novine” (Banja Luka)
9. “VIP” (Sarajevo)
10. “Slobodna Dalmacija” (Split)
11. “Glas Srpske” (Banja Luka)
12. “Blic Republike Srpske” (Banja Luka)
13. “Jutarnje Novine” (Mostar)
The researcher had a good cooperation with the project PR department
and regularly met with media representatives such as the “Daily Avaz”
Sarajevo, eFM Radio which also produces radio series, Centre for
Investigative journalism and many others.
Internet Research
A large amount of information was collected from various web sites;
primarily from official municipality web sites. Most of BiH municipalities
have very good web sites that provide detailed information on municipal
activities, staff, legal matters and everything else of interest to the
citizens. It should be also mentioned that topics vary from municipality
to municipality so it is difficult to emphasise one particular common topic
or problem. It is fair to say that about one fifth of the information used
for the project came from various local and international websites.
Vox pops
A necessary part of every research process is talking directly to people
as this is one of the most relevant and objective approaches, i.e. local
consultative testing. To enhance the plot of the radio drama, this testing
was used in the radio drama series in the format known as vox–pops;
recorded in different towns in the whole of Bosnia and Herzegovina and on
different topics. People included in the vox-pops were selected randomly
in order to attain a random sample and consequently, they belonged to
different age, gender, economic and educational groups. In the following
part of this document you can find the answers to our vox pops.
• Transparentnost (Q: What is transparency?)
1.
2.
“I’m thrilled with their information, I have no words to
describe their service to public inquiries” (municipal authorities)
“I have no idea about transparency, I don’t know where
35
3.
4.
5.
I can find the information, and I don’t know what you mean
exactly by this term. Now you have to take your place in
the line, to wait for fifteen minutes only to find out that you
have to buy some form, it just happened to me”
“Municipality has the right to keep information in the small
circle of municipal authorities in case it is not verified and in case
it can produce confusion among citizens”
“If TV stations and other media are talking about something,
it is transparent”
“It should not happen in any case unless it is not forbidden
by law to publish the information which can be classified as
secret on this or that level”
• Hotel Belvi (Q: What do you think about illegal construction?)
1.
2.
3.
4.
“Dear God, they erected it into the sky but illegally, but I don’t
know what to tell you about that. Someone says it is ok and
someone says it is not. I don’t think it right to erect such a
monster.”
“Those illegal constructions should be legalised or removed; some
finances are set aside for that. How could they build them at all?
To destroy one hotel…if it isn’t an obstacle to anyone it is better to
legalize it. Society will gain some profit and also the one who
constructed it.”
There are more humorous things than that, believe me. No jobs, a
hundred and one things are not in order and you are talking about
illegal construction.”
Generally I think that it is not right, landslips are emerging, and
the water supply system is being damaged. I have a friend; it
(water) almost flooded his house. This depends on our government
and how corrupted it is.
• Čudo u provinciji (Q: Why did you become a Councillor?)
1.
2.
3.
36
“There are a lot of things that I couldn’t solve as a citizen, I
bumped into the walls. Mostly because of that reason, I’m here to
serve the public.”
“I’ll dedicate myself to the young here; I will help to improve the
standard of the youths in the local community.”
“I became (a Councillor) because I thought and I still think that
I can contribute to the development of society, the local community
etc. However, the deeper you go, the more you can see how far it
goes, that is that everything comes down to party level, personal
interest and somewhere there is contact with mafia.”
• Podvala u prahu (Q: Do farmers expect help from the municipality,
and if yes what kind of help?)
1.
2.
3.
It wouldn’t be so bad if it would work out for the people who took
cows, “there is no money; these people who took cows are paying
for them by selling milk.”
“I have no resources for agriculture; the municipality could help
by giving me credit with minimal interest rate.”
“How to say this, people who want to work should be motivated
by receiving credit in order to buy some equipment, there are
people who don’t want to work and the things they already have
are more than enough.”
• Vijeće Mladih (Q: What would young people do if they had the power?)
1.
2.
3.
4.
5.
6.
7.
8.
“First of all providing our students with a future here is the answer,
not us finding the opportunity to go abroad to have a better
future.”
“Most probably these young people finish their education to
improve their prospects of leaving the country and only that leaving the country.”
“I think that this is their only homeland, if they have lasted until
now I think that they should continue persisting.”
“I would recommend to all politicians to fight for their youth, to
fight for their children; they are their children.”
“Youth council? I think that there is no such thing as a youth
council in BH. Perhaps they could slightly influence these parties
in BH, maybe something will change (as a result), I simply don’t
know.”
“I think that youths should make more decisions, because this
World and this city remain in the hands of young.”
“That’s great! I would insist on employing young people, reducing
the number of young people leaving the country which is a
dominant trend at the moment.”
“I sincerely hope that they can do something for the sake of all of
us, including myself - as a graduate law school student with no
opportunity to get employment.”
• Povratak sa sedam kora
(Q: When did you return, who helped you the most, what was the turning
point for your decision to return, what is the biggest issue for returnees,
compare your life of returnee/displaced person and that of today?)
1.
“In ‘96 we returned, we had no windows or doors, no one helped
us. We got one door that didn’t fit and some small things, we
struggled on our own, no one helped us.”
37
2.
3.
4.
5.
6.
7.
“No one helped me. Whatever I do I do it by myself. No one
helped me.”
“I returned eight years ago. The process of rebuilding was hard,
no one helped me, we have had to repair everything by ourselves,
the houses were totally ruined, not only mine but the entire
neighbourhood. We had just a couple of small donations but no
one managed to help more that that.”
“The ones living abroad received (help). They got roofs, repairs,
we got nothing.”
“One month ago they came again, asked what we needed, what
kind of help was needed, what needed to be changed; they made
a list… in any case it is too late now, people have managed without
them.”
“It seems to me that nothing is functioning, I’m telling you this
honestly, we continue like this. My daughter is not here, she would
like to come back, do you know what I mean?”
“What would the government do? The government helps itself and
the average citizen should drop dead, just like before.”
• Kutija za podvale (Q: What do you think about services provided in
counter halls?)
1.
2.
3.
“Everybody comes to counter service and listens to what everyone
says, there is no privacy. For example when they come to register
a marriage or birth they have no basic privacy, they can’t tell
someone everything because of people standing around, listening
carefully.”
“We had a case a few days ago when a man said some nasty
things to us, but we are so professional, we never addressed a
citizen, whether a gentleman or a teenager. We always treat
everybody with respect. We have many problems. Sometimes I
ask myself how they can respect that yellow line in the bank or
post office and here they can’t, and we have the highest circulation
of citizens.”
“I’m trying to fulfil their requests, to help them, to point them in
the right direction, to fill in some forms for them because there
are so many people who don’t know how to do that and older
people with a bad eyesight.”
• U registraturi (Q: What is your opinion on customer services in
municipality?)
1.
2.
3.
38
“There are persons working there without an appropriate
qualification, I think…when you go to the municipality you can see
that some people are not fulfilling the requirements.”
“It should not happen that a medical technician is working in the
place of a surveyor.”
“No one can persuade me, there are no arguments against
4.
5.
6.
7.
reducing the number of employees. There are problems in counter
halls; people wait too long for an answer and the answers turn out
to be below-standard.”
“I don’t feel that the problem is more or fewer employees, I feel the
bigger problems are lack of regulations for specific situations,
situations that occur because the regulations are not synchronized,
that we do not have any regulations at all for certain fields or that
the existing ones are incomplete.”
“When you come to the municipality sometimes they are very kind
and sometimes they are not. Perhaps some revisions of their
professional skills is needed and people be employed based on
that.”
“The rate of redundancy is high for a country such as ours. Because
of this a reform should be made on every level of administration,
but in what way?”
“No one should be left on the street, but some way should be
found in order for them not to come back into the service, urge
them to retirement, for the sick ones-suggest early retirement as
invalids.”
• Mi smo šampioni (Q: What do you think about corruption?)
1.
2.
3.
4.
5.
6.
7.
8.
“Corruption is not properly defined in the world either. What is
corruption? It means a monetary bribe of some kind, in order to
achieve something what can’t be achieved in legal way.”
“Unfortunately it has to be done. If someone wants to achieve
something he is forced to do that.”
“We can find high and low corruption everywhere in the east and
in the west.”
“My heart is weakened because of the level of corruption which
exists, feel free to publish that.”
“It’s an ordinary robbery in one word.”
“Corruption, everyone talks about corruption. It exists in every
segment of our society, we have that kind of mentality, those
kinds of services were always used and always will be, a favour for
a favour. Bosnia is such a country: Win or pay, there is no third
option.”
“We have no instruments, thank God, to reveal that, only maybe
if the law and legislation is strictly enforced- just like in any normal
legal state.”
“The worst corruption is that which stems from those in the highest
ranks .”
39
• Svako svoje smeće ima (Q: How satisfied are you with communal
services in your municipality, how important is recycling for you, should
the municipality do more work on that issue?)
1.
2.
3.
4.
“It is generally known that waste disposal places are located where
they shouldn’t be, that they produce many problems, infections
etc, so this is the something to be worked on.”
“Four or five years ago there was an agency that dealt with the
problem of waste disposal, they asked city administration to take
on their own municipal services in our city, to employ our people,
to organise collection and transport of waste in the city, to improve
sanitary conditions, to make a factory for trash recycling. Our
authorities said yes, that’s ok but that they would have to pay tax
for export of the waste, after which the men left this country and
we still have the waste disposal area. It is huge, unresolved,
inadequately built, constantly burning, people living near are in
great danger, but that’s not bothering the city authorities.”
“The majority of us take the rubbish to containers where it is left to
decompose for two or three days until the communal service
remembers to collect it. So I ask myself why I pay 3 KM monthly
when there is no daily collection of rubbish in front of my house.”
“I have lived in Switzerland for six years and I know that a big fine
is imposed if they catch you leaving the bag where you are not
allowed to. But we still have a long way to go.
1.4 Study Tour to Northern Ireland
The following report gives an overview of the experiences and
impressions of 15 Bosnians who in October 2004 went on a study tour
to Belfast organised by the BBC WST. Six radio drama specialists from
Sarajevo, Mostar and Banja Luka, six middle managers from three local
administrations and two directors and the script editor working on the
radio series joined the tour. The idea was to inform delegates of possible
achievements and failures in another severely divided society.
The report in the first part describes the experiences of the places visited
by the group, while the second part summarises personal impressions of
the country and its society.
Report compiled by participants
We visited Belfast City Council, one of the largest in Northern Ireland
and learned about the responsibility for delivery of key services such us
those relating to refuse collection and disposal, street cleansing, health
and environmental services, community development, indoor and outdoor
40
leisure, parks and recreational facilities, support for the arts, tourism and
economic development. What was interesting for us was to discover that
the City Council has taken an increasingly proactive role in relation to the
development of the City and is actively involved in a number of strategic
partnerships designed to improve the quality of life for the people in Belfast.
We had a tour of the City Council and met members of the Council’s Good
Relations Unit and also met Councillor Eoin O’Broin.
Linen Hall Library was an interesting introduction to Northern Irish
politics and the tour of the Northern Ireland Political Collection. NIPC is a
unique resource, having systematically collected material from all sides in
the NI conflict. Much of this has been done in the field, and often literally
across the barricades. The Collection documents the activities and views
of all parties in the conflict, from paramilitaries to government, and is one
of the major resources for study of ‘The Troubles.’ We also met Yvonne
Murphy, a librarian, who took us through the collection and explained and
answered our questions.
We also visited the Northern Media Centre led by David Hyndman,
Community Media Development Officer. We became aware that the
members of this organisation have been involved in community media
and arts projects since 1972. Today they operate in the media centre
situated in the heart of Belfast. It was fascinating to discover that because
of their independence, this organisation has been able to develop long
term working relationships with local people and communities.
One of the fascinating tours of this Study Tour was Belfast Safaris. This
was a visit to a neighbourhood in North Belfast. We had an opportunity
to meet a local community group, their leaders and talk to them about
their experience. This was the “real” Belfast. We had fully trained local
tour guides with diverse interests who took us to parts of Belfast that do
not exist on the tourist map, but were teeming with living history – the
stories of people’s lives.
This Study Tour was a great opportunity to visit BBC Northern Ireland.
The main thing was to meet with the radio drama department and to
understand how they operate. This was a fantastic opportunity for our
creative team who had a chance to experience topics like: forms, protocols,
Scheduling, procedures, issues of balance in a divided community, pitfalls/
troubleshooting, costs.
It was also interesting to learn and see how the News Room was run and to
understand the work of Reporters, News Readers and live broadcasting.
Tour of ‘Conflict: The Irish at War’ exhibition at Ulster Museum, led by
Jane Leonard, Community Outreach History Officer.
This exhibition presented the history of war and conflict in Ireland. It
41
showed us how people fought and the technology they applied to the “art”
of killing, but it also considers the consequences of warfare on society
and on the innocent.
Drama and cultural context in Ulster. In this session we learned how
radio drama is created out of the context of a theatre community in Ulster
comprising actors, writers, directors etc., and tradition which has had a
chequered past. This also gave us some idea of the artistic resources
on which radio drama draws, as well as the interactions that exist and
have existed between that community and Northern Ireland society,
particularly in regards to difficult or sensitive topics.
We had interesting speakers during this session:
•
•
•
Mark Phelan, lecturer, Queen’s University Belfast – general
background, riots, difficulties with political issues historically
Ophelia Byrne, current Guest Editor, Irish theatre magazine –
twentieth century: general concerns and themes on topics of
cultural identity and politics
Hugh Odling-Smee, Curator, Theatre and Performing Arts Archive
– issues today. What kinds of themes are being addressed in
drama/ theatre from NI at present?
Question and Answer session
JUST DOING IT: THE PRACTITIONERS
We also had an opportunity to meet and hear from practitioners who have
been heavily involved in creative work which has sought to address issues
of cultural/ political significance in Northern Ireland. This was chaired by
David Johnston, Queen’s University Belfast, with speakers:
•
Paula McFetridge, Artistic Director, Lyric Theatre/ actress
The Lyric Theatre is Northern Ireland’s only producing house in
theatre, while actress/ AD Paula McFetridge has also worked on
some of the most significant large-scale productions in Northern
Ireland to dealing with issues like mixed marriage (The Wedding
Community Play) or justice (Convictions)
•
Michael Duke, Artistic Director Tinderbox Theatre/ writer
Michael Duke wrote Revenge, a play attracting significant interest
and addressing themes of peace, reconciliation, and the lack of
such things. He is also AD of Tinderbox, a leading independent
company in Northern Ireland which in its recent work has addressed
the themes of refugees, justice and voting amongst others.
•
Dan Gordon/ Carol Moore, actors
Both Dan Gordon and Carol Moore have appeared in some of the
most significant works from Northern Ireland to address themes
42
which have resonated strongly with Northern Irish society. Carol
was a founding member of Charabanc Theatre, a company
of tremendous importance in NI; most recently, she has also been
instrumental in founding Red Lead Arts. Dan Gordon is one of
Northern Ireland’s best-known actors, having appeared in
massively successful shows including ‘A Night in November’, which
has toured internationally and locally.
All in all, it was a very interesting tour of West and East Belfast. The
main aim of which was to give us a sense of greater Belfast, particularly
in areas outside the city centre in which there is a strong sense of cultural
identity.
Personal impressions of the participants
Mediha Dizdarević, Novi Grad Sarajevo Municipality
General impressions? The travel arrangements went like ‘clockwork’.
The programme was somewhat overly ambitious because there was so
much to be seen. Congratulations to the organiser for attaining perfect
organisation.
How does the situation differ from ours? Our hosts were surprised
we were a ‘mixed’ group and that we managed to make the trip together.
That came as a surprise to them and I think we are ahead of them in
that respect, at least when co-operation is an issue. I think this attitude
depends a lot on the mentality of a nation. Their conflicts last for centuries,
while we quarrel easily and make up easily.
What particularly impressed you during the visit? I’ll always
remember the drawings of 4-6 year olds I saw during a visit to a school.
Although the children are so young, the drawings were really amazing.
The techniques they used were really advanced and they had many
ideas. I think you can compose an image of a person’s character on
the basis of every child drawing and the ones I saw really said a lot. I
can’t tell whether those children have drawing skills because they have
access to better resources or because of a special teaching and learning
technique.
I was always impressed by the Irish Language Learning Centre.
Josip Jakovac, Mostar City Administration
General impressions? It was perfect in Belfast. The division is unusual.
Everything functions in the centre, while the outskirts are an altogether
different world. The same people who would fight each other in the suburbs
meet the next day in the centre of the city. Both sides are extremely
radical.
43
In what ways are they ahead of us? They use all institutions to address
those problems. They fund NGOs which focus on multi ethnic society. The
city employs young, educated, capable people. Six years have passed
since the Friday Agreement and all is functioning well. Divisions always
first appear in the mind and then are reflected in the material world.
Everything is easier when you have no problems on your mind. Also, in
Mostar, the mayors don’t go to the other parts of town to see how the
people there live, each sticks to his own area.
In what ways are we ahead of them? The roots of our conflict are
much more superficial than the roots of theirs. We can step out of those
roles much more easily. I’ve often made similar trips and I never saw
such a good group. Roots of our conflict are not that deep. That’s why
I think Bosnia and Herzegovina could make good headway if it had new
politicians. In Belfast, at first glance, it seems everything has been
resolved, but when you hear the radical views of each side, you realise
that is not true. Our form of nationalist madness is somewhat different.
Maybe this was because we had lived together for such a long time.
The outskirts of Belfast are covered with murals, each costs 2,500 pounds.
Almost every other house has a mural on its facade. If we view them
objectively, both sides were terrorists. We asked them how it affected
others’ awareness, i.e. the children? Memories and toying with them can
be extremely dangerous, but they don’t see it that way. That’s how you
get the never-ending chain “what you did to me and what I did to you”.
The only positive thing is that the murals are used as a tourist attraction.
IRA and ULSTER army members are now tourist guides in the suburbs
and they charge for the tours. Half the people on the murals were not
killed by the enemy, so really some murals make no sense. For instance,
the mural that struck me had only women on it, and one of them, for
instance, fell off the roof of the house during the clashes. Another was
devoted to two young women who were killed by an explosion while they
were working on explosives, i.e. making a bomb. And they qualified as
victims of the British Army.
How were you received in the Embassy? There was a speech and we
spoke about the most interesting topic, the process of unifying Belfast
and Mostar and we drew parallels. When all the guests left, we had an
informal chat over a cup of coffee.
What positive example do you remember? I was impressed by teams of
young people working in the administration. I met no one there who was
over thirty. No wonder they work so well, they think in such a mature
and modern way. Conflicts were more frequent at times of economic
recession. They realised they could make progress only if they become
more economically stable and that’s what they devoted themselves to.
44
What’s also interesting is that the local authorities fund informal groups.
For instance, a group of women spent months preparing a musical based
on a story about a fictitious marriage between a Protestant woman and
Catholic man. This was done back in 1998, when the situation was still
tense.
Alma Pamukčić, Brčko District
What impressed you the most? The last day in Belfast was the best, when
we saw local communities working together. Everything we had seen until
then was leading to the conclusion that all of them were living in the past.
The last day, we saw a theatre performance that was the loveliest example.
It was the glimmer of light after everything we had seen until then.
Much about Northern Ireland could be seen and heard here in BosniaHerzegovina, but all of that was someone else’s view and the only way to
really get to know it is to see it personally. When you’re there, when you
experience it and feel it, when you hear the stories, your initial opinion
changes.
What can we learn from Northern Ireland? What our region can learn is the
importance the citizens of Northern Ireland attach to the local authorities,
their continual emphasis on the fact that the local administration exists to
serve the citizens and not per se. Their use of the local authorities in order
to realise their goals sets an excellent example to us. The relationship
between the citizens and the local authorities is actually a relationship
that signifies their survival, their fulfilment of needs and their future.
What we can adopt from them is the Good Relations Committee that
exists in the city administration; it is an extremely positive example. The
Committee was set up to focus on their relations and co-operation. We
met a gentleman who is a member of the Committee, and also a member
of their Congress/City Council/Parliament. He explained to us that the
Committee allocates grants to their cultural institutions. The public
frequently asks who the money is allocated to, which community got what,
etc. It is sometimes difficult to answer such questions, especially when
they concern cultural projects on which Catholics and Protestants work
together, for instance, the joint theatre productions. That’s a problem this
Committee faces frequently. We agreed cultural institutions could play
the greatest role in building a life together.
And what can Northern Ireland learn from us? Things in which we
show that we are in some way ahead of them, for instance, the fact they
confirmed to us that 95 per cent of their children go to separate schools.
The separate schools were a major shock, especially to me coming
from Brcko, where the schools were united back in 2001, children go to
mixed schools, and sit in mixed classes. I told a gentleman that and he
45
was impressed. I think they lack information about us, just as we lack
information about them.
We have no physical barriers separating people, but in Northern Ireland,
we saw walls and fences between people. In any case, I think a better
economy is the basis for a better life, because people then pay less
attention to politics and what divides them.
In my opinion, the murals in Belfast do not contribute to reconciliation. I
don’t mean to say the past should be forgotten, but one should turn to the
future and to building confidence between the different communities. A
person passing the murals every day is shown too much violence and will
have a difficult time breaking from the past and turning to the future and
reconciliation. Just imagine a child growing up in such an environment.
It is for this reason I was so glad to see communities working together, where
both communities meet. That gives rise to hope – that the multi-religious
environment will persist, as an asset not as a liability of the country.
I hope that we in the Bosnia-Herzegovina Brcko District are an example of
a multi-ethnic community that has managed to rise above our politics.
Maybe we should have seen more on how citizens are serviced by the city
council, but, in any case, it was a wonderful experience and a memorable
visit.
Amna Popovac, Radio Studio 88
General impression? The trip was great. It exceeded all my expectations.
Northern Ireland is totally different from anything we’ve read about so far.
They’re similar to us, but not the same as us. I felt at home in Northern
Ireland. People live relatively normal lives there. We asked them why
they did not try to tell the world more about that, but they told us they
were focusing on themselves, not on their image.
What can we learn from them? As far as administration is concerned,
they started from the top of the hierarchy –‘cleaning up’ here first. They
forbade people to talk about politics at work. They created such an
environment that it is not possible to hear anything about what happened,
which is a bit sterile. What is good is that relations between people are
seen as the basis for the rest i.e. that people have to work together,
regardless of their backgrounds. They banned religious symbols and
party insignia, so that no one feels threatened in any of their offices.
In what ways are we at an advantage? Our advantage lies in the
fact that, regardless of the horrific war, our cities still have a soul. The
shops here are open from 09:30 to 17:30 and after that, everyone shuts
46
themselves up in their homes. We lead a more normal life in a way,
although we have undergone a greater plight than they have.
And in what ways are they at an advantage? Their advantage is
that their buildings were not destroyed because they hurled stones and
sniped at people. Their’s was classic terrorism, for example, blowing up
of cafes, and they tried to kill as many people as they could during such
operations. We have similar attacks, but they happen at night, to avoid
casualties. That’s how our situations differ. We live a much better life
than they do. We are freer, which may seem ridiculous, but it really is
freedom compared to how they live. The working class lives in ghettos,
cultural and art societies stage performances only in their parts of town.
People with money, those who are richer and living in South and North
Belfast, have more freedom, they co-operate. An advantage of Northern
Ireland is that its people speak publicly and articulately about their past.
They call the time of conflict ‘troubles’ and display both sides in their
museums. We met a man who said he had been an IRA member and in
jail. He publicly talks about his past. The people have somewhat broader
views and they say it’s important to know what happened to prevent it
from happening again.
General impression of how the visit was organised? Logistically
it was OK. However, I think the organisers tried too hard to please
everyone. As a journalist, I found meeting colleagues from other media
extremely interesting. That was my greatest gain. BH Radio 1, RTRS,
Studio 88. For instance, I also met Josip Jakovec in Sarajevo, and we’d
been living and working in the same town for years.
Azra Odobašić, Banja Luka City Administration
How was the visit organised? It’s difficult to sum everything up after
gaining so much experience. I was fascinated by the organisation of the
visit, because everything worked like clockwork, no time was wasted.
The organisers did their best and everything was done extremely
professionally.
What did you learn during the visit? We got a lot of information on
how local communities and authorities operate when we visited them. We
saw the great potentials of the media during our visit to the library and the
Northern Vision Media Centre. We had a chance to express our views, and
address individual problems. We got a lot of written information, which
I then shared with my colleagues. Our administration was extremely
pleased to receive such material. The administration should be at the
service of the citizens. This project of yours will help improve the work of
the municipalities.
What can we learn from the example of Northern Ireland? When we
directly spoke to the people, I found it very difficult to listen because
47
there was still so much pain there. The wounds are still fresh. The main
point is that violence is never the way to resolve any problem. Each
community in Northern Ireland has its own pain and much remains to
be resolved. I was pleased to hear the Bosnia-Herzegovina Embassy is
trying to advocate our interests abroad and how well informed they are
about everything happening here.
The economy is the cause of conflicts there. Stratification of the society
happened there, and, in a way, it’s taking place here too. You can change
the economic system if your political system is OK. You can’t change both
at once. Lack of income and a bad economy, there is no need to dwell on
how adversely that affects relations between people.
General impression? It was a great pleasure to travel with my colleagues
from other municipalities. I learned from them how their municipalities
operate.
Most conflicts arise from our lack of knowledge about each other, both at
personal and collective levels. It is the fear of the unknown. In Northern
Ireland there are a large number of programmes aimed at uniting those
people, teaching them about others and those different from them.
Some of the ways we are used to addressing problems cannot be applied
in Northern Ireland.
If you do not have a sound economic basis, you cannot build on other
relations.
We saw how a unit for good relations in a community was set up. People
leave their political opinions outside and work on their specific work
related duties. What is the issue is the development of a person, who
stifles his feelings of violence and hatred, but the job has to be done
professionally. Interests of all parties are involved, but the work is done
professionally and those interests are not reflected in it.
Maja Hadžiosmanović, Media Centar Sarajevo
I rate the organisational aspect of the study tour ‘10 out of 10’.
To me, personally, it was extremely interesting because I hadn’t viewed
their conflict in this way before. Visiting NI gave me a new angle to look
at our situation because sometimes you have to step away from your
surroundings to see where you are actually standing. With regards to the
work I do at Mediacentar Sarajevo, I have seen and learned a lot, and I
have also developed excellent contacts with the staff at Northern Vision
Media Centre.
48
What I have concluded from this trip is that conflict and reconciliation
cannot be generalised as they are very specific to a certain nation and
region. If something has worked over there, it doesn’t mean it will work
over here, and vice versa. It is, however, important to be aware that
there are other conflicts in the world and that someone is working on
trying to prevent them.
Selma Smajkić, Centar Municipality –Sarajevo
The ‘good relations’ strategy employed by the Belfast City Council, which
aims to develop a stable, tolerant and rightful society, is the main sign
that NI is aware that a problem exists and it is taking steps to deal
with it. This is a universal practice which can be implemented almost
everywhere.
49
Part 2 – The Radio Drama
2.1 Concept and Production Team
by Marika Djolai, Project Manager and Renata Cigler,
Project/ Broadcast Assistant, BBC World Service Trust
Production of ‘A gdje sam tu ja?’ radio drama series
Introduction
The famous pre-war tradition of radio drama production in Bosnia and
Herzegovina prompted the BBC World Service Trust to initiate the ‘Our
Town, Our Future’ project, whose main output is a radio drama series
‘A gdje sam tu ja?’. This project aims to change attitudes of local
municipal administration by raising awareness of poor governance issues,
highlighting the best working practices, and underscoring malpractice. In
order for the series to appeal to a wide audience and to be funny and
educational, satire and humour were woven into a drama plot, set in a
fictional local authority in Bosnia and Herzegovina.
In this project the BBC World Service Trust made use of its vast
experience, expertise and skills from similar projects successfully carried
out throughout the world. And by doing so, a new concept of radio drama
production was introduced in Bosnia and Herzegovina.
Development of radio drama series
Thorough primary research into municipal employees, their attitudes
towards working practices and problematic issues in BIH society, served
as a starting point for developing the radio drama plot. Such an approach
is very unlike the traditional one where a script writer, using his or her own
imagination, decides on a topic for the radio drama. A devoted researcher
worked closely with script writers, constantly feeding in information,
researching current problems and issues of interest. Particular attention
was paid to the everyday life of citizens and the functioning of the local
administration.
In order to make a comparison with the similar post-conflict environment,
a study tour to Northern Ireland was organised in October 2004 for
the project’s creative team, media representatives and municipal
officers. This was an outstanding opportunity to gain insight into the
Northern Ireland conflict resolution, visit various artist groups, libraries,
theatre practitioners, and meet with BBC Northern Ireland radio drama
professionals. Over seven days, creative team members also had an
50
opportunity to learn of and discuss important issues with municipal
employees, and to talk about the daily routines of municipalities. This
relationship was maintained throughout the project, to the benefit of the
drama series.
In addition to the challenge of obtaining results from the research to use as
a starting point for script writing, script writers had to get used to working
as part of a team, which proved to be an unusual working environment
for them. However, it did enrich the drama plot. The radio drama series
‘A gdje sam tu ja?’ was developed and produced by a creative team
of 3 script writers – Feđa Isović, Nenad Veličković and Aida Pilav; and
coordinated by script editor Mladen Ovadija, who was in consultation with
and gained professional support from drama editor Zlatko Ivanišević, as
well as 2 directors – Miralem Ovčina and Benjamin Filipović, who ensured
scripts were well translated into radio drama format.
The BBC is an equal opportunities employer; and thus the standard
recruitment procedures had to be applied for all project staff, including the
creative team. A public announcement for creative people was published
in local newspapers and sent to various cultural institutions, radio and TV
stations. Upon reviewing all of the received applications, the Selection
Committee interviewed short-listed candidates. However, the selection
process for the script writers was a bit different. As a first step, writers
selected in the first round were invited to take part in a workshop where
they were introduced to the project and given a task to write a scene of a
radio drama me. Upon reviewing their work, Selection Committee made
a final selection of three writers who were appointed as a team of Script
Writers, lead by the Script Editor. In addition to the interviews, Directors
were asked to provide a show reel of their work and the final selection
was made upon reviewing these.
Team work was maintained throughout the project and meetings for
the creative team were held often. They were also at times joined by
the researcher and Project Manager, to discuss, develop and improve
the drama’s plot. As a result of twelve-months of intensive work and
consultations, 15 episodes of ‘A gdje sam tu ja?’ were produced.
The three Script Writers first delivered one episode each, and they were
first piloted to a sample audience. This was in accordance with the BBC’s
usual practice, which is to test first by piloting episodes to a target
audience, and in addition, media professionals were invited to join the
review in order to ensure that the issues dealt with were relevant to the
target audience. After the 3 episodes were written it was time for the first
round of recording cycle to begin.
51
Production of radio drama series
Casting for actors was publicised nationwide. The project team visited
cultural institutions in Mostar, Banjaluka and Sarajevo. Posters were put
up in theatres, the Academy of Drama and Acting and the Academy of
Fine Arts as well as several other venues in Sarajevo. The announcement
calling for actors was circulated to the Academy of Drama and Acting,
theatres and other venues in Banjaluka and Tuzla. Actors were asked to
send in a written application with a CV and this was quite an innovative
and new approach for them. There were over 100 applications from actors
from BH, many of whom were already established and famous in the
country and region. Castings were organised during 3 days in December
2004 and around 80 per cent of those who applied were invited to test
their vocal and acting skills in the RTRS studio in Banjaluka and in BiH
Radio 1 drama studio in Sarajevo. The creative team selected actors for
9 lead characters, as well as for supporting roles.
Many famous and experienced BH actors took part in the ‘A gdje sam tu
ja?’ radio series. The main characters were played by Jasna Žalica, Admir
Glamočak, Mirsad Tuka, Izudin Bajrović, Gordana Boban, Žan Marolt,
Šerif Aljić, Belma Lizde Kurt, Sead Bejtović, Alena Džebo and Dženita
Imamović. Supporting roles were played by Milan Pavlović, Jasna Diklić,
Radenka Ševa, Mirza Tanović, Aleksandar Seksan, Zoran Bečić, Semir
Krivić, Robert Krajinović, Alban Ukaj, Drago Buka, Aleksandar Blanić,
Duško Mazalica, Boris Šavija, Alen Muratović, Alija Aljović, Halima Mušić,
Vanesa Glođo, Mehmed Porča, Džana Pinjo, Ejla Bavčić and Moamer
Kasumović. Altogether, a total of 32 actors took part in the production of
‘A gdje sam tu ja?’ radio drama series which, together with creative team
members, made this project the largest group of artistic talent in Bosnia
and Herzegovina in the past 10 years.
The recording of the first three episodes with 17 actors from the whole
of Bosnia and Herzegovina and 4 drama students took place in February
2005 in BH Radio 1 radio drama studio. Recorded material was edited in
the RTRS studio in Banjaluka, and the three pilot episodes were ready
for first review by mid-February 2005. In preparation for this testing,
the three pilots were listened to by the BBC WST team and agencies in
charge of implementing focus group testing, BORAM and Mediacentar
Sarajevo.
Focus group testing was organised in March 2005 with 6 groups of from
the general public and 6 groups of municipal employees from both BH
entities. Middle managers from municipalities Centar Sarajevo, Novi Grad
Sarajevo, Mostar, Banja Luka, Ilidza and Kasindo were asked to give
their opinion about the three pilot programmes, and suggest topics to be
included in the series. You can read more about the focus group testing
results in a separate chapter of this survey.
52
In addition to focus group testing to attain the opinions of the audience,
the BBC World Service Trust has to ensure that all produced programmes
are in accordance with the BBC editorial standards and that all the main
BBC values such as impartiality, correctness and fairness are respected.
Moreover, programmes must be relevant for target audiences. In ‘Our
Town, Our Future’ project we used a Programme Review Group to ensure
this was the case.
The Programme Review Group included senior BBC staff and regional
experts (from BiH and the Balkans), a range of individuals from media
and production, cultural and public life of Bosnia and Herzegovina. All
16 members of the Programme Review Group listened to the three
pilot episodes, testing programmes against the goals of the project.
Their feedback included recommendations about focus, content, and
presentation, learning support, production values, coherence and diversity
of the three episodes.
Upon receiving professional comments and suggestions from the
Programme Review Group together with the results of the focus groups,
the creative team made amendments to the scripts and the radio drama’s
plot, and then, everything was in place for the final production process.
The next recording session of the next nine episodes was organised for
6 full days in May 2005, in BiH Radio 1 drama studio in Sarajevo. The
second round of recording involved an incredible number of 31 actors
from Bosnia and Herzegovina and 6 drama students. Recorded material
was prepared for editing in BiH Radio 1 studio and edited in the RTRS
drama studio in Banjaluka during 3 weeks in May 2005.
To enhance the content of the radio drama episodes, vox pops with ordinary
citizens and municipal employees were introduced. BBC World Service
Trust team visited a number of municipalities and radio stations throughout
Bosnia and Herzegovina from April to June 2005, and the Researcher used
these visits to record vox-pops, getting opinions on topics covered in the
radio drama episodes. These opinions found their way to the radio drama
series as vox-pop clips, included in each of 15 the episodes.
Scripts of the new episodes were again translated into English for another
review by the BBC World Service Trust UK team, and script writers
continued their work on the remaining episodes.
In the meantime, the creative team worked on a theme tune for the radio
series. Music was composed by Nedim Babovic, text was written by script
writer Nenad Velickovic, and two versions of the song were interpreted
by Branko Đuric Đuro and Željka Katavić Pilj. We were very fortunate to
have the legendary member of the famous drama ‘Surrealists’ take part
in the project, Branko Đurić Đuro, now actor and director, as he was very
53
kind to sing the theme tune. Vocals were recorded and produced in a
studio in Slovenia.
Production of live radio phone-in programmes
A nationwide public announcement was made for BiH radio stations to
join the BBC World Service Trust network to broadcast the series. An
Independent Selection Committee of five members carefully examined
over 60 applications and selected 28 radio stations to form the network.
Selected radio stations agreed to broadcast 15 episodes of the series,
and each would be followed by a live-phone in programme. Radio phonein programmes are a great opportunity for the audience to share their
opinions on air, and give their comments about the radio drama episodes
and topics it covered. Radio producers know the local situation best and
thus can moderate constructive debate about important issues in their
society with listeners.
Production training was organised with a senior BBC expert for producers
and editors from 28 radio stations throughout Bosnia and Herzegovina,
who will produce half-hour phone-in programmes for 4 days during August
2005 in the Media Centar Sarajevo. They were presented with a number
of ideas and approaches from the rich experience of the BBC, and they
also had an opportunity to talk to their colleagues and as a result come
up with the best concept for the live phone-in programmes.
The broadcast of the first episode was planned for mid-September, timing
it with when people in Bosnia and Herzegovina are usually back from
their summer holidays for starting work, schools and universities. At this
time they are more ready to absorb interesting, witty and educational
radio drama and comment on it, stating their experience and suggesting
solutions to common everyday problems related to their municipalities.
While 30 radio stations started broadcasting ’A gdje sam tu ja?’ drama
series on 12th September 2005, the creative team continued with the third
round of recording. Six episodes featuring 20 BH actors were recorded
during 4 full days in the BiH Radio 1 drama studio in Sarajevo. These
final episodes were edited in the BiH Radio 1 and RTRS drama studio in
Banjaluka for 12 days in September 2005.
The production of all 15 episodes was completed by October 2005, and
after twelve-months of intensive work on the radio drama series, the
creative team could finally tune in to listen and find out what listeners
thought about their work. The citizens of BiH had 15 weeks to comment
live and talk about their problems on air on 28 radio stations in Bosnia
and Herzegovina. As a result, ‘Our Town, Our Future’ Project comprises
a fantastic database of more than 100 hours of citizen’s comments about
the present situation in BiH today.
54
2.2
Selected Episodes
2.2.1 Episode One – “First Day”
Author: Feđa Isović
CHARACTERS: MAYOR, TAXI DRIVER, EDO, SABINA, FENKARELI, MARIJA
NUNE, SHERIF, BUZO, KIMETA, NISVET
SCENE 1 – STREET/TAXI – EXTERIOR/INTERIOR
1.
SFX
TRAFFIC JAM, CITY AMBIENCE
2.
FILIPOVIC
Taxi!!
3.
SFX
CAR BRAKES, TAXI DOOR OPENS, MAYOR GETS
INSIDE AND CLOSES THE DOOR.
4.
TAXI DRIVER
Good morning, where to?
5.
FILIPOVIC
To the municipality, please.
6.
SFX
CAR STARTS.
7.
TAXI DRIVER
Look at him, look how he’s driving. Just look at him.
(car horn) And he has a driver’s licence? (after a
shorter break) So, you’re going to the municipality?
Eh, God be with you.
8.
FILIPOVIC
I don’t understand?
9.
TAXI DRIVER
Phew, you know what a wreck they are: When
you go in, you never know when you’ll get out.
Buddy of mine, we work together at the taxi stand,
he packs himself a backpack: a bit of sausages,
cheese, bread, just in case. You never know how
long you’re going to queue in there.
10. FILIPOVIC
Is it really so bad?
11. TAXI DRIVER
Well, I’m telling you. You need to have a sleeping
bag with you, they’re so slow! Here’s my case; I’m
after them for six months to sort out my apartment
privatisation. Six months! They say: We’ve lost
your documents. And I handed it all to them: proof
of ownership, an application, that contract … for
apartment use – all of it. All that is a pile of papers
this big.
12. FILIPOVIC
That’s not possible? Just like that, they lost them…
55
13. TAXI DRIVER
I wouldn’t believe it either if someone told me. You
will see it for yourself when you go in. You won’t
manage to get out before tonight even if you were
… even if you just came to get tax stamps. So help
me God. (squeaking and car horn) Eh, look at how
that one is driving, no indicators!
SCENE 2 – BARBER SHOP – INTERIOR
14. EDO
Alright, Sabina, my love: I told you not to worry
without reason, I can shave some more heads
before I’m to be thrown away.
15. SABINA
I only think you need an assistant, someone to help
you out.
16. SFX
DOOR OPENS, BELL HANGING FROM THE DOOR,
CITY AMBIANCE.
17. EDO
Don’t you worry about me, that’s all. Do you know
where you’re going?
18. SABINA
I’m off to the
programme …
19. EDO
Stop wasting your time, Sabina my love, you would
be better off …
20. SABINA
(interrupts him) OK, bye bye, ciao. Kiss
21. SFX
KISSES HER, THEN THE DOOR CLOSES.
22. EDO
Ciao, ciao. (for himself) Check that out, to have
someone helping me out? To watch them hanging
around my shop. Well I’m not mad....
23. SFX
DOOR OPENS
24. FENKARELI
Maestro Edo, one can go around the whole globe,
but hardly can one find barber’s shop as this one,
anywhere on Earth!
25. EDO
Well, Fenkareli, is that really you?
26. FENKARELI
Head and beard and haircut, Maestro Edo. Was this
wee Sabina at the door just now?
27. EDO
That’s her Fenkareli, that’s her.
28. FENKARELI
Well, she grew up to be a girlie. Real beauty. Is she
married?
29. EDO
She’s far away from that, my Fenkareli. Sometimes
it seems to me she doesn’t even think of it.
30. FENKARELI
Pretty girl, that’s for sure. It would be a pity …
56
radio station , I’m making a
31. EDO
Eh, I’m really glad to see you. How long since …
32. FENKARELI
Since I left? … More than ten years passed … Such
a pretty girl… Really, we should find Sabina a
boyfriend …
33. EDO
Ten years! That’s right… Ten years passed since
you left to Italy.
34. FENKARELI
Yep, Rome, Genova, Marseilles… After that I went
around the whole world.
35. EDO
Seen the whole world, and came back with the
same haircut.
36. FENKARELI
Just a similar one, Maestro Edo, just a similar one.
Of all the hairdressers whose chairs I sat on, and I
swear to God there were … who knows how many of
them … out of all of them, none of them can match
you none of them comes even close to your virtues.
And I used to say to all of them: There is no real
‘fencarre’ haircut without Maestro Edo styling it.
37. EDO
Come on, come on, Fenkareli. Sit down, we’ll call
Marija to bring us coffee each. First coffee – then
haircut.
38. FENKARELI
Ha, ha... It’s things like this that make it wonderful
to come home: first coffee – then haircut …
SCENE 3 – MUNICIPALITY YARD – EXTERIOR
39. SFX
40. NUNE (Sings)
CITY AMBIANCE, BENJO PLAYING SOFTLY.
WILL FREEDOM KNOW TO SING
AS NUNE SANG ABOUT IT…
41. SHERIF
What’s up Nune, our legend?
42. NUNE
What’s up with Nune, Sherif? Where would Nune
be?
43. SHERIF
If you’re singing those songs, you could sing one
about me, really! Something along the lines of:
Sherif, security, like, I’m guarding the municipality,
my head in the bag, always in a battle. Get it,
something like that?
44. NUNE
I get it, I get it, Nune gets everything. (sings)
FASTER THAN WYATT EARP HE IS
EVERYONE KNOWS HE’S GIFTED
FAST HAND, CLEAR HEAD
FOR A FRAUD ALWAYS PREPARED …
57
45. SHERIF
Get lost from here! Come on, get out of my
municipality, you fool!
46. SFX
CAR STOPS, DOOR OPENS, CLOSES, CAR LEAVES.
47. SHERIF
(For himself) Bloody fool … I let him in, treat him
fine, like a human, and he … (Yells) Hello, hello!
Move that taxi away from here, this is not your
father’s property! And you Sir, hello you, where do
you think you are going? Can we have some order
around here?
48. FILIPOVIC
Good morning. I would like to go to the Mayor’s
office …
49. SHERIF
To the Mayor’s office? Hmmm, a nice plan you
have there: straight to the Mayor’s office, worse
even – through the official entrance. Eh, you won’t
be watching that film today. Back you go, around
there, straight to the Client’s entrance. First you
nicely appoint a meeting, and then to the Mayor’s.
Besides, the authority is being changed, there’s no
Mayor in the office, the old one left, and the new
one is not coming before tomorrow.
50. FILIPOVIC
I know, but tomorrow is just the official …
51. SHERIF
(Interrupts him) Official and unofficial - he is
coming tomorrow. Do you understand: tomorrow,
domani! Capisco?
52. FILIPOVIC
I know, I know, I understand you completely? I am
just trying to say that it could happen, let’s say,
that he comes even today.
53. SHERIF
Come on! Who on Earth comes to work a day early?
It’s more likely he will be late, rather than early.
54. FILIPOVIC
Well, maybe it’s time for me to introduce myself. I
am Filipovic, new Mayor. And you are?
55. SHERIF
Auuhh... I am a fool, so it seems. Total fool, Mr.
Mayor. (desolately)
SCENE 4 – BARBER’S – INTERIOR
56. SFX
DOOR OPENS, BELL SOUNDS ON THE DOOR.
57. MARIJA
And here comes the coffee … two, just as you said,
Master Edo.
58. EDO
Do you see, Marija, who’s back?
58
59. MARIJA
I can’t believe it … Do I really have to be the last to
know something? My Fenkareli ... When did you come
back?
60. FENKARELI How do you do, Mrs. Marija? Give me your hand to kiss
61. MARIJA
Wow, Fenkareli, I missed these … these gentleman
manners of yours.
62. FENKARELI Mrs. Marija, being a gentleman is based on false
display, dressing up, exaggerating … What I’m saying,
and this is the pure truth: I am looking at you; you
haven’t changed a bit for all these years. Even more!
You look fresh somehow, glowing.
63. MARIJA
Same old Fenkareli…
64. EDO
Come on, we should drink the coffee.
65. FENKARELI Sir Sherif, how is he?
66. MARIJA
Eh, Sherif hasn’t changed … He’s like the sun to me:
I can’t look at either of them for too long!
67. EDO
Come on, Marija, for Christ’s sake …
68. MARIJA
Then, when I think about it, what would I do without
him? He sort of grew close to my heart, sometimes I
really wish to marry him again.
69. FENKARELI Come on, please!... You haven’t divorced again, have
you?
70. EDO
Leave that be, Fenkareli, please. The coffee…with
milk or black?
71. MARIJA
Since you left, remember, we have got divorced and
remarried every now and then…
72. EDO
It’s crazy, if you ask me. Speak up, which one do you
want?
73. FENKARELI I’ll have that one, with milk… did it really have to be
that way Marija?
74. MARIJA
Well, first we divorced to privatise our apartment
more easily, then because municipality employees
and their close relatives can not apply for municipal
office space, then to get separate life allowances …
then… who can remember it all …
75. EDO
My Fenkareli, you see, they don’t know themselves
anymore if they are married or divorced.
76. MARIJA
Divorced, my friend, divorced.
77. FENKARELI Mrs. Marija, that means you are a free woman?
78. MARIJA
More of a woman – than a free one. (everyone
laughs)
59
SCENE 5 – MUNICIPALITY HALL – INTERIOR
79. SFX
ECHO IN CONVERSATIONS, PRINTERS, OPENING
AND CLOSING DOORS …
80. KIMETA
There, Mr. Mayor, we have now seen the legal and
urban planning department … would you like to see
something else?
81. FILIPOVIC
No Kimeta. I am satisfied with what I’ve seen.
82. KIMETA
You know, if you hadn’t surprised us like this …
83. FILIPOVIC
Tell me, Kimeta, in general, how are things going
in the municipality? Do people have to wait a long
time to get their cases resolved?
84. KIMETA
As far as that goes, Mr. Mayor, I think we are one
of … well, I think we are the best municipality in
the country.
85. FILIPOVIC
So there is no delay?
86. KIMETA
What delay?.....Cases get processed earlier than
the deadline. Whatever it is about.
87. FILIPOVIC
And what about these misplaced cases?
88. KIMETA
What cases?
89. FILIPOVIC
Misplaced ones, Kimeta, apartment privatisation
cases… What about that?
90. KIMETA
Oh, that … everything is okay, Mr. Mayor. That will
be sorted without any problems whatsoever.
91. FILIPOVIC
So, they are misplaced, is that right?
92. KIMETA
They have been located, Mr. Mayor, found. One of
the employees took them home by mistake: she
went on sick leave, had a huge workload, she
thought she would finish it all off at home, and
when she got back to work, she forgot she’d taken
them home. But no harm was done.
93. FILIPOVIC
That means clients will not have to submit their
applications all over again?
94. KIMETA
No way. They will be processed as a matter of
urgency. To make it up to the people who waited.
95. FILIPOVIC
Good, but things like that ought not to happen.
Shall we go to the counter hall?
96. KIMETA
Straight ahead, Mr. Mayor, through the corridor and
then left. The Counter hall is there.
60
SCENE 6 – COUNTER HALL – INTERIOR
97.
SFX
CLAMOUR, PRINTER…
98.
SHERIF
Uh, I’m such a fool! Well, the whole town is full of
his posters… I really made a proper fool of myself. I
almost arrested the man. Do you understand?
99.
NISVET
Alright Sherif, but the queue? Do I have to stand
in line for this citizenship certificate, or should I
take…… ‘special care’ of you?
100. SHERIF
Uh, you … Come on, as if you are here for the first
time. Give me a tenner and the certificate will be
here in two minutes.
101. NISVET
Here, a tenner … two fivers.
102. SHERIF
Oh God, the Mayor is coming… Put that tenner back
in your pocket and rush to the queue!
103. FILIPOVIC
These queues are a bit big, Kimeta. We will have to
do something about that.
104. KIMETA
Mayor, you think we haven’t tried … Here, we put up
number dispensing machines … No use, our people
are not made for that. Some smart guy comes
every day, pulls out all the numbers and takes them
home.
105. FILIPOVIC
Takes the numbers home?
106. SHERIF
Yes home, Mr. Mayor, home. Good morning Kimeta,
how are you? Then he comes back here with the
numbers and sells them. These small ones sell
particularly well.
107. KIMETA
That is why we told Sherif to spend some more time
here in the counter hall.
108. FILIPOVIC
What they won’t come up with …
109. NISVET
Filipovic, how are you, Filipovic?
110. FILIPOVIC
(Confused) Good morning … how are you?
111. NISVET
You don’t remember me, Filipovic, right? Nisvet, you
remember Nisvet, Shishich. We were together in the
army: Eighty one, JNA, Karaula…?
112. FILIPOVIC
Nisvet, Nisvet, how could I forget you … How is life,
how are you?
113. NISVET
Well, I came for a citizenship certificate. I need it
to apply for a job. I have no job, I’ve been working
without a salary for five years …
114. FILIPOVIC
Are you serious?
61
115. NISVET
Five years it’ll be soon! And you, you’ve made it
quite big huh?…. Mayor, right?
116. FILIPOVIC
Well, I can’t complain …
117. NISVET
Listen, I would like to ask you … If you could call this
Agropool director, put some pressure on him to take
me back, know what I mean? You are a big name
now, it’s not easy to turn you down.
118. FILIPOVIC
Nisvet, I apologize, but I am in a real hurry. Make
an appointment with Kimeta and come by one day.
I will do my best.
SCENE 7 – BARBER’S – INTERIOR
119. FENKARELI ....and then from Denmark I came back to France,
Paris: Montmartre, Champs Elysees, Louvre … In my
opinion one can not be a complete person unless he
visits these places.
120. EDO
I know, I know, Fenkareli. I know it all. There, you
see, up on the wall, all the postcards I received from
you. You know me, I haven’t travelled a lot, it’s always
difficult to leave the shop. But that is why I have these
postcards, I take a look at them, and it’s somehow
the same as if I travelled, as if I saw the whole world
from this barber shop of mine. (with longing)
121. FENKARELI And maybe you should sometimes …
122. EDO
Leave that be, please, Fenkareli. I’m too old for that.
But, just sit down so we can get you styled.
123. FENKARELI You’re right, indeed, Maestro Edo! I’m going on and
on, and look what time it is, I have to see the Mayor,
this new one … We arranged to have a coffee.
124. EDO
We will trim this a bit, okay? And so, you know this
new guy eh, what’s his name…?
125. FENKARELI Filipovic.
126. SFX
SCISSORS.
127. EDO
Filipovic.
128. FENKARELI I know him yes, of course I know him. He used to be
… a kid from the street.
129. EDO
No kidding?
130. FENKARELI Yep...We used to send him to bring us beer. But he
is a good guy. He was always diligent. I knew he was
going to be successful.
62
131. EDO
I’m going to finish it off, okay? Have I trimmed it
enough?
132. FENKARELI Yes, that’s fine. And just style it, master Edo. That
would be great.
133. SFX
HAIRDRYER.
SCENE 8 – MAYOR’S OFFICE – INTERIOR
134. BUZO
(on the phone) ...of course you are right, I agree, all
straight by the book, Filipovic … do you know how
you got to the position of Mayor?
135. FILIPOVIC
People elected me, Mr. Buzo. People voted for me!
136. BUZO
(on the phone) People would vote for my aunt too if
we put that many posters up of her. You know very
well how much we supported your campaign?
137. FILIPOVIC
Mr. Buzo, that’s all true and I’m not denying it.
138. BUZO
(on the phone) Then this thing of mine will be sorted,
right? … You are in a respected position, Filipovic...
aim high. Remember your predecessor?
139. KIMETA
(on the interphone) Mr. Mayor, there is a gentleman
here; he says he has an appointment.
140. FILIPOVIC
Just a moment, Kimeta. And please order two
coffees. (switches interphone off) I apologize, Mr.
Buzo. It will be fine, don’t you worry.
141. BUZO
(over the phone) I haven’t doubted that, Filipovic.
Good bye.
142. FILIPOVIC
Good bye, Mr. Buzo. (sighs with relief)
143. SFX
DOORS OPEN, MAYOR
FENKARELI COMES IN.
HANGS
THE
PHONE,
144. FENKARELI Well look at that office – true sports hall. Good
morning, Filipovic. Or should I say, ‘Mr. Mayor’?
145. FILIPOVIC
Fenkareli! Long time no see?
146. FENKARELI Maybe too long… but you know what the French say:
Une fois ami – toujours ami. Friends once – buddies
forever.
147. FILIPOVIC
(at the same time as Fenkareli) Buddies forever.
That’s right, my dear Fenkareli, that’s right. You are
back? Is it that bad in the West?
148. FENKARELI It’s good, my friend, I’m not saying it isn’t. There’s
even bird’s milk to be drank! But one thing missing
is this … this …
63
149. SFX
DOORS OPEN.
150. MARIJA
Coffee’s coming … Wow, look, Fenkareli is here. I can’t
believe it, I can’t get used to you being back here.
151. FILIPOVIC
Marija, you know, I was caught by surprise aswell.
152. MARIJA
I don’t know what’s more difficult to get used to:
Fenkareli being back, or you being the new Mayor.
That last Mayor was …... awful... I mean, really … I
couldn’t wait to see the back of him.
153. KIMETA
(on interphone) And they can’t wait to see the back
of you..
154. MARIJA
Uh, I go on and on, and Kimeta is eavesdropping
again. Just like a Doberman. I’m on my way, you
know, if you need anything …
155. FILIPOVIC
I already figured out the way things work around here.
So, we’ll see each other a couple of times a day.
156. FENKARELI Good bye, Mrs. Marija. What a lovely day it is when
you serve me twice. Lovely.
157. MARIJA
Come on, Fenkareli, please.
158. SFX
DOORS CLOSE, MARIJA LEFT.
159. FILIPOVIC
So what did you want to say: something like the
West is good, but something is missing?
160. FENKARELI This is what’s missing! Here, this with Marija, a
waiter asking you: How are you, what’s up? A coffee
with a friend, like this. That is what’s missing.
161. FILIPOVIC
Eh, that’s one thing that is not missing here.
162. FENKARELI And, my brother, I’ve earned enough. (takes a sip of
coffee) You see, that’s what I wanted to talk to you
about aswell. I have some capital, I would like to
invest in business, and you’re the Mayor…
163. FILIPOVIC
Don’t start with me, not you too, Fenkareli, in God’s
name. I haven’t taken over the duty yet, and already
people are at me from all sides: sort this out, support
that, when will the tender be open, when …
164. FENKARELI Don’t be so defensive. I didn’t mean anything … no
way, everything by the book! But I was thinking, if
you have some advice …
165. FILIPOVIC
I have some advice, Fenkareli: can we drink our
coffee, talk about old times – we’ll talk about
business tomorrow. Is that a deal?
166. FENKARELI Whatever you say, Ficho, whatever you say. You are
completely the same, you haven’t changed a bit.
64
SCENE 9 – STREET/TAXI – EXTERIOR/INTERIOR
167. SFX
TRAFFIC JAM, CITY AMBIENCE.
168. FILIPOVIC
Taxi!!
169. SFX
CAR BRAKES, CAR DOOR OPENS, MAYOR GETS IN
AND CLOSES THE DOOR.
170. TAXI DRIVER
There, what did I tell you this morning: you won’t
finish before the evening!
171. FILIPOVIC
Good evening. You again?
172. TAXI DRIVER
It’s on me this time. When a client sits twice in the
same day – second time is on me.
173. SFX
CAR STARTS.
174. TAXI DRIVER
I was right, huh?, no end to it? I mean, in the
municipality, the reason you went there?
175. FILIPOVIC
Well, I don’t know. That’s not really the impression
I got.
176. TAXI DRIVER
No kidding?! Went in this morning – got out just
now. And you didn’t get that impression? So what
have you been doing there the whole … (car horn)
Hello neighbourhood girl, do you need a ride!?
Good one, huh?
177. FILIPOVIC
It’s good that I bumped into you again. I checked
in the municipality, I asked around a bit about
those misplaced applications.
178. TAXI DRIVER
What misplaced applications?
179. FILIPOVIC
That one about apartment privatisation. You told
me this morning.
180. TAXI DRIVER
Aaaaha, that one. And what did they say?
181. FILIPOVIC
They say everything is OK. Documents have
been found and will be processed in the next few
days.
182. TAXI DRIVER
That’s great news – it deserves a celebration!
(after a shorter break) And how come they …
gave you that sort of information just like that?
These municipality guys?
183. FILIPOVIC
Well, I have to admit, I am not really a typical
client …
184. TAXI DRIVER
Wait a minute … I knew it, but I wasn’t sure …
You are that folk singer… the one off the posters
around town?
65
185. FILIPOVIC
No, no, I’m the new Mayor. I’m taking over office
from tomorrow.
186. TAXI DRIVER
Uh, look what a fool I am, I thought you looked
like that singer … Mayor Filipovic, right?
187. FILIPOVIC
Filipovic, that’s right.
188. TAXI DRIVER
I thought you looked familiar! There you are, your
head is on the poster at our taxi stand, lifesized.
What a fool I am, I look at you every day.
189. FILIPOVIC
Well, that ought to have been brought down a
long time ago …
190. TAXI DRIVER
Wow, when I tell my guys from the stand. Really,
half of us voted for you. I was the first one … I’m
Fuke, nice to meet you.
191. FILIPOVIC
Nice to meet you too.
192. TAXI DRIVER
But, I wanted to ask you something … my sister’s
son … if you could do something, I was just
thinking, I voted for you after all, and he voted
as well… an appropriate thing would be to find
him a job. He’s not educated, but that is not
important … (car horn) … Oigh, watch the way
you drive! … Others have no education as well,
and they’re working, right? ... The kid wants a
taxi at any price. But you know how it is with the
municipality, licences and that sort of silly stuff:
Did he ever commit a traffic offence, did he drive
for two years, does he have a four-door car, does
he have this, did he do that... Really, as if that
was important. If you help out a bit, it is bound
to get sorted. The kid’s driving is like no other. I
taught him. I tell him: Kiddo, if you want to stay
in this job, you drink only if taxi is standing still.
Finish off the beer, and then drive. No driving and
drinking. Is that right? (voice fading out)
193. FILIPOVIC
Stop here, please. Hello, stop here… I’ll walk from
here … Thank you.
194. SFX
CAR STOPS, DOOR OPENS AND CLOSES.
195. TAXI DRIVER
And he’s some edgy guy, my brother … and I gave
him a ride for free.
The end
66
2.2.2 Episode Four – “Hotel Belvi”
Author: Aida Pilav
CHARACTERS: ZLATAN (45, taxi driver from before the war, lost his legs in
war) ALMA (42, municipal employee, Zlatan’s wife), ŠERIF, MAYOR, DAMIR
BUŽO (43, new businessman, partner in the municipality businesses,
profiteer), FENKARELI, NUNE, MARIJA, SPEAKER, GRANDPA, BOY
SCENE 1 (INT) ZLATAN’S HOUSE
196. SFX:
SILENCE. BIRDS TWITTER, DISTANT
(flashback of Zlatan’s childhood)
TRAFFIC.
197. SFX:
DOG BARKING
198. GRANPA:
Slow down, old lady. Now, we’re going to build you a
home. Eh, you will have a good time, right? Don’t give
up, old lady, no more cold for you. Zlatan, my son, go
into the house.
199. ALMA
Good grief Zlatan, what are you doing? Get up off the
ground will you, look how dirty you’re! Oh my God,
you are a real child!
200. ZLATAN
I am measuring how far the front is from our house
… one meter seventy two! Had I not lost my legs, it
would have been just enough for me to stretch out to!
Built to suit a man, they say. Right, as if they knew
how tall I was? A gang of thieves, that’s what they
are …
201. ALMA
Zlatan, my love, don’t get that nervous … calm down …
202. ZLATAN
Their, municipal architect tells me they were not
supposed to build a hotel that is not at least six meters
away from a house… Hotel Belle Vue! They gave me a
good view indeed!
203. ALMA
Come inside the house Zlatan, please. People are just
leaving for work, it’s not nice...
204. ZLATAN
That is where I built the house for the old lady with
my grandpa. If only the two of them were here, to see
this architectural monster! My grandpa would organise
a diversion for them, I’m sure! ... My house is falling
down, the foundations are sinking … He wouldn’t be
able to just watch and do nothing like I do …
205. ALMA
You are very calm, huh? I can see just how calm you
are; you haven’t slept for nights…
67
206. ZLATAN
You remember, Alma, the garden and the old house…
You remember that view, of the whole town, when
you climb up here, a bit higher … Alma?
207. ALMA
I remember it, Zlatan. And now the hotel is there, and
what can we do about it? Nothing!
208. ZLATAN
Yes we can! I can! When I go and visit them this
time…
209. ALMA:
Again! ... Please, don’t!
210. ZLATAN:
What is it, are you worrying that I will embarrass you
in front of your work colleagues?!
211. ALMA:
I did everything that could be done!
212. ZLATAN:
What did you do? Read some documents! I told them
everything straight to their faces.
213. ALMA:
Threw a tantrum more like! People will never let you
inside the municipality again, not even to get your
birth certificate!
214. ZLATAN:
Why don’t you go straight to the Mayor? His office
isn’t miles away from your counter hall!
215. ALMA:
Eh, my Zlatan, like the Mayor has nothing better to
do! He rarely accepts any appointments except with
big investors.
216. ZLATAN:
I will lose my mind in here, buried alive among these
bricks! You go to work, have a drink, talk to people.
217. ALMA:
And so, why don’t you go out? Go and visit the
association! There are some rumours flying around
the municipality about a new job for the Association.
218. ZLATAN:
Why would they want me at the Association? They
already have ten invalids who play cards all day long.
Like all they need is me too!
219. ALMA:
Do as you like. I have to go. I’ll will be late …
SCENE 2 VOX POP ON RADIO
220. VOICE 1:
There are many more comical topics than that. No
jobs, a million things that don’t work properly, and
you are talking about illegal buildings! I think that’s
mad.
221. VOICE 2:
Indeed, they have built them sky high, but all of them
are illegall! I don’t know, what can I say. Someone
says it’s right, some that it’s not. It is not alright, to
build such monstrosities.
68
222. VOICE 3:
Those illegal buildings should be either legalised
or officially destroyed. What were they thinking in
the first place, how could they build them? But the
question now is whether to demolish the hotel ...or
not. If it doesn’t bother anyone, then it is better to
legalise it, surely. Society would benefit from it, as
well as those that built it.
223. GLAS 3:
Well I think, that that is not alright - because of the
risk of land slides and also, the damage to the water
pipes. They almost sneaked one right next to the house
of a friend of mine! It depends on our authorities, how
corrupt they are!
(DOCUMENTARY)
SCENE 3 (INT) COUNTER HALL
1.
SFX:
MUNICIPALITY MURMUR.
2.
MARIJA
What’s wrong with you, Alma? Why do you look so
down? Here is some coffee, would you like some?
3.
ALMA:
I don’t feel like coffee or anything else, thank you
… Zlatan is going to… this morning he told me he
was going to go to the municipality again. Can you
imagine, they’re opening PKZC Belle Vue, it’s the
second phase … he can’t stand it any more.
4.
MARIJA:
I know, but what can you do, it’s like that, everyone
does what they have to do…
5.
ALMA:
But Marija, they don’t even have a construction
permit, nor did they test the soil properly... the
surrounding houses are falling down ... Oh, if only
Zlatan wouldn’t go … he’s gonna throw a tantrum
again … he’s gone totally mad.
6.
MARIJA:
Have some coffee before it gets cold ... Everything
will be fine! Well, really, if we’re honest, Bužo’s
Belle Vue really helped when it came to financing
some charity activities. That is why the Mayor must
not give up that easily. Eh, if we had some luck, if
only I could move my café over there!
7.
CLIENT:
Hello, I came for my birth certificate.
8.
ALMA:
That’s three marks charge, please.
9.
CLIENT:
There you go.
10.
SFX:
ALMA TURNS THE RADIO ON.
69
11.
MARIJA:
What is it, why are you looking around? Don’t look
so worried Alma.
12.
ALMA:
There you go, your birth certificate, sir.
13.
CLIENT:
Thank you.
14.
SPEAKER:
In the light of tomorrow’s opening of the Business
– Cultural Centre Belle Vue, the Mayor, Mr. Filipović,
said that this complex is of extreme importance for
our local community. Around one hundred people
will be employed, cultural and artistic events will
be organised, and a youth activity area will be
provided…….
15.
CUSTOMER: Listen to that, since when do you listen to the local
(radio)?
16.
ALMA:
Will you turn it up a bit?
17.
ŠERIF:
Hey, ladies, how is it going? Finish your breaks,
here comes the Mayor!
18.
ALMA:
Shush, I want to hear this!
19.
SPEAKER:
We have come to know, however, that PKZC Belle
Vue does not have a construction permit. Is that
just one in a line of hospitality shops built on the
back of the people who live in this municipality,
disguised as a cultural event? Will this municipal
initiative also merely turn into a profit making
scheme for post-war profiteers? Is Belle Vue just
one more embezzlement for businessmen with
suspicious capital making use of our ineffective
and corrupt authority?
20.
CUSTOMER: As if we didn’t know that.
21.
SFX:
MAYOR TURNS THE RADIO OFF.
22.
MAYOR:
Who turned the radio on?
23.
SFX:
SILENCE.
24.
ALMA:
I did.
25.
MAYOR:
Come to my office. And I don’t want to hear that
ever again.
26.
SFX
(TURBO-FOLK MUSIC – AD)
Belle Vue! Belle Vue PKZC. Businesslike, cultural,
and with entertainment! On top of the world, with
the best view, the best service, the most cultural
events. A place built to suit everyone. Welcome to
Belle Vue!
70
SCENE 4 (INT) MAYOR’S OFFICE
27.
ALMA:
You wanted to see me?
28.
SFX:
SILENCE. PAPER TURNING.
29.
MAYOR:
Have you been employed here for many years, Mrs.
Alma …?
30.
ALMA:
Yes I have, Mr. Mayor. I have been working here for
fifteen years …
31.
MAYOR:
I don’t know what it was like before, but I personally am
not in the mood to listen in my working environment,
to some radio programmes spreading lies about the
municipality. Especially in a sector dealing with clients.
If you’ve been working in this municipality for such a
long time, you should’ve learned some basic rules …
32.
ALMA:
It wasn’t loud… I apologize, I didn’t know it was such
a big problem …
33.
MAYOR:
While we are trying to improve the situation, you are
giving customers material to complain about…
34.
ALMA:
I admit … I was wrong. But, I do have evidence that
what they’re saying on the radio is true…
35.
MAYOR:
I am struggling to introduce European standards in
the municipality, and what do I find – what I find on
the streets! My advice to you is that you don’t leave
that counter so often in order to look for so-called
evidence of yours! It is easy to lose a job these days,
even if you have thirty years of working experience!
36.
ALMA:
Mr. Mayor, you have got it totally wrong…
37.
MAYOR:
You better be going now. Clustomers are waiting. And
if I hear any complaints regarding your work…
38.
ALMA:
No one has ever complained about my work …
39.
MAYOR:
This conversation is over. Please, go now.
40.
SFX:
ALMA CLOSES THE DOOR.
SCENE 5 (EXT) THE STREET
41.
SFX:
VOICES. CARS. STEPS.
42.
NUNE:
Where are you going? What’s being given for free?
Humanitarian aid? Ha? You’re doing well! You’re
glowing, clean, and white. Your forehead is bright,
your outfit smells nice. Who lured you into a charity
group?
71
43.
ŠERIF
Nune, get away from there! People can’t get in!
44.
NUNE:
What? Because I haven’t shaved, or is it my haircut
which bothers you? I’m a good man, Šerif, but I admit,
I have lost a bit of my glow!
45.
ŠERIF:
Nune, don’t make me chase you away! Come on, I’m
telling you nicely.
46.
NUNE:
Well, if you put it like that. But, look at them, how
pretty they are! As soon as morning breaks, they are
already labelled. Lad, are you tired of life, huh? Are
you?
47.
ŠERIF:
Go on, Nune, go. Nune.
48.
NUNE:
I’m going, flying away, on my way …
SCENE 6 (INT) OPENING OF THE SECOND PHASE OF HOTEL
49.
SFX:
MURMUR OF VOICES. OFFICIAL RECEPTION. EASY
LISTENING MUSIC IN THE BACKGROUND. GLASSES
CLINKING.
50.
MAYOR:
Today we are opening a second phase of the Belle
Vue complex. The name Belle Vue symbolically
marks a pretty view of our municipality’s future
owing to the fact that this complex is intended for
cultural events, as well as providing an area for
youth entertainment. The owner of the building,
Mr. Bužo, has been the municipality’s partner in
its charity projects for years and once again his
business ethics have been proven today. For a
brighter future and better prospects! Thank you.
51.
SFX:
APPLAUSE. VOICES. MUSIC.
52.
MAYOR:
Congratulations, Mr. Bužo. I am glad to see you
again.
53.
BUŽO:
Thank you. It was a very nice speech, Mr Mayor.
You are the sort of person this country is in need
of!
54.
FENKARELI: My congratulations too, senor Bužo!
55.
BUŽO:
72
Oh, Fenkareli! Look at your great Gatsby! Well,
where are you, my man? Are you leaving or have
you just arrived? I haven’t seen you, wow, since
Rome!
56.
FENKARELI: You must mean Milan... Well, I’m here now, I have
a bit of business, you know what’s it like ... It’s
easy for you! You’re building something grand,
right? (LAUGTER)
57.
BUŽO:
Well, nothing grand, my Fenkareli! A small hotel, a
bit of a culture, a bit of entertainment for people!
Everything to people’s fancy and all above board!
Isn’t that right, Filipović?
58.
MAYOR:
Of course, Mr. Bužo! But, I called you the other day
to talk about PKZC.
59.
BUŽO:
Well, we can talk now … What is it about?
60.
MAYOR:
Well, you know, several candidates applied for
tender for offices space allocation. But, we should
put out a tender for ex war veterans and war
invalids. Our policy is to give them opportunity
whenever it is possible.
61.
BUŽO:
For sure. In any case, that is your area. I am a
businessman, Mr Mayor. I deal with politics only
when something is rocking the boat and balance
needs to be restored. But, I think … that’s a good
idea.
62.
MAYOR:
But you should help me out with this…
63.
BUŽO:
Of course. And I will help, as I always have done
so far!
64.
MAYOR:
But, Mr. Bužo, one piece of advice: I kindly ask
you once more to finish that business with the
construction permit. Understand, things could get
complicated …
65.
BUŽO:
Ah, but you know what’s it’s like, Mr Mayor. This
is business, there are priorities. In any case we
will sort that out. And about citizens complaining
… explain to them: this is a charity project, and
veterans and invalids are citizens as well! All
humane and above board!
66.
MAYOR:
I am glad we talked. I have to go now …
67.
FENKARELI: That’s a good one: all legal. Listen, this is no place
for major talks. Come on, I’ll give you a call later
and we will meet up. I have some good propositions
for you.
73
68.
BUŽO:
You never change! You came up with so many in
the last couple of months and I am fed up! It’s not
all about business you know! And do give me a call,
we should get together, my man! And how come
you know Filipović?
69.
FENKARELI: The Mayor is a kid from my street. When me and
his brother were chasing girls, he was kicking a
football. A good boy. He has a future.
SCENE 7 (EXT) STREET
SFX:
STREET. CARS SPEEDING. SOUND OF NUNE’S
ACCORDION IN THE BACKGROUND. BRAKES
SQUEAKING AND A WAILING CAR SIREN.
70.
ZLATAN: (shouts) What is it, why are you looking at me?! You
in a hurry to get somewhere, are you?! Why
are you looking at me that way…? Come on,
get out of that car, you shmuck…..
71.
NUNE:
(FROM FAR AWAY) Zlaatan... Zlaja, my
brother, you are the only one with no tie! …
Shall I give you a push?
72.
ZLATAN
Nune where did you come from?
73.
NUNE
Šerif chased me away…
74.
ZLATAN:
In front of the municipality?
75.
NUNE:
No, there’s no one in the Municipality! All the
crème de la crème is at Belle Vue!
76.
ZLATAN:
At Belle Vue?
77.
NUNE:
The Mayor, directors, Bužo: they are all there
partying. (laughter)
78.
ZLATAN:
They are there, you say … Mother fuckers!
I’m gonna tell them everything straight to
their faces?
79.
NUNE:
To their faces, to their faces….
80.
SFX:
NUNE’S ACCORDION IN SLOW GALLOP
RHYTHM. THEN, ZLATAN’S WHEELCHAIR
SPEEDING UP
81.
ZLATAN
They should build on their own doorstep! I
can see neither people, nor hill,….. nor sky.
82.
NUNE:
74
(WHEELCHAIR)
Hey, wait for me… slow down.
83.
ZLATAN:
Don’t run after me. Go!
84.
NUNE:
Wait, I should push you... (WHEELCHAIR
GETTINGAWAY)
Dear Lord, look, as if we were naked.
Dear Lord knows what fake is.
Dear Lord, dear Lord…
85.
SFX:
NUNE’S ACCORDION SLOWS DOWN THE
RHYTHM. WHEELCHAIR SOUND IS FADING
INTO THE DISTANCE
SCENE 8 (INT) MARIJA’S BUFFET “THE BASE”
86.
SFX:
87.
FENKARELI: And that Šerif of yours, did he fight in the war?
BUFFET ATMOSPHERE. VOICES. MUSIC.
88.
MARIJA:
89.
FENKARELI: So, he was on the frontline?
90.
MARIJA:
91.
FENKARELI: Really, it is so obvious that you two are in love…
92.
MARIJA:
93.
FENKARELI: Why are you getting so het up, Marija, for Christ’s
sake? It’s no wonder Šerif needs a break sometimes!
That is what I wanted to talk you about now. You
would get much more favourable rent if you were a
family member of a veteran.
94.
MARIJA:
He got three grenade shells on that hill behind the
building hotel. He still carries them.
Of course he was, he just didn’t get a medal! But
he messed something up just before the end. He
smuggled cigarettes over the border. He is not that
bad a guy, just a bit of a crook occasionally. He
always messes up somewhere in the middle or just
at the end.
In love? ... I thought we were going to discuss
business, and this is turning into a marriage
counselling session! What happened to PKZC? You
told me I almost got the space for my restaurant.
What happened with that?
I am, so help me God! My grandfather was a first
line veteran, a Partisan …
75
95.
FENKARELI: Look, I can’t stand around making idle chit chat.
But listen, you bring the documents about Šerif
being your husband and about him being in the
army when he was hit by those grenade shells,
and you will get the space! Bužo put aside three
shops for that purpose, and I will confirm it with
the Mayor. Of course, you won’t forget that I did
you this favour, huh?
96.
MARIJA:
97.
FENKARELI: Why don’t you think of it as an investment, if that’s
gonna make it easier for you. I shall be leaving
now.
98.
MARIJA:
I have to marry Šerif again?! For the third time,
my Fenkareli?! I couldn’t bear to do it again! We
tried it all, we went to see both an Imam and an
Orthodox Priest … I went to yoga once too…
Poor me, just when I could have had it all. But my
friend, maybe, the best thing for a woman is to
merely sit, with her knitting in one hand, and the
other stirring the casserole….
SCENE 9 (INT). ASSOCIATION OF INVALIDS
99.
SFX:
VOICES. (CHESS AND CARDS TIME SLOTS)
100. VOICE 1:
Oh, Zlaja, what’s up?! Where were you my man!? You
haven’t been around for a long time. Your wife doesn’t
let you out, or what?
101. ZLATAN:
No, not the wife, what are you on about? I’m in deep
shit. I came to see if there are some jobs available.
There are some rumours going around the municipality
about it.
102. VOICE 1:
This is the first time I have heard about it, and from
you! Did Alma tell you about it?
103. ZLATAN:
Yes. The Association signed a contract with the
municipality ten days ago… for a security guard in the
parking area , or something like that.
104. VOICE 2:
I only know about getting ready for demonstrations.
It’s about us getting some benefits as war invalids.
Both you and I, we lost our legs in the war, but on the
streets, not on the frontline, and we get nothing…
105. ZLATAN:
It’s high time something was done about that.
106. VOICE 2:
It’s like everyone is protesting, but some have gone
completely silent …
76
107. ZLATAN:
I haven’t heard anything about that, but I will come.
So, you don’t know anything about that job?
108. VOICE 1:
Listen, I haven’t asked around, but if you go to the
office, they might know something.
109.
You are right, I should. See you later.
ZLATAN:
110. VOICE 2:
Good luck!
SCENE 10. THE MAYOR’S OFFICE
111. SFX:
SLAMMING A PILE OF PAPERS ON THE DESK.
112. ALMA:
Here you go, your papers, Mr. Mayor!
113. MAYOR:
What is this?!
114. ALMA:
Complaints from thirty seven citizens regarding the
case of a Hotel and Cultural Centre being built in my
backyard! Among those are twelve complaints from my
husband, it says down at the bottom: Zlatan Nikolić.
No construction permit for the hotel, nor was there any
ground for construction to start in the first place, and
they are building a second phase already, of a so-called
Business – Cultural – Entertainment centre!
115. MAYOR:
Easy, Alma, slow down, I just wanted…
116. ALMA:
Yes I did! I voted for you and supported your ideas.
And yes I am – I’m a fool! And yes I did – I had a
respect for you as a young, ambitious man who will
bring prosperity to the municipality.
117. MAYOR:
Mrs. Alma, we cant sort all this out nicely …
118. ALMA:
We can’t solve a thing anymore! I know that because
seldom does anything get solved around here! And tell
that Bužo and all those big ‘charity people’ led by you
- I will not allow my house, my husband’s family house
to fall down! Because of some PKZC its foundations are
crumbling… I will not allow it, that’s my right! I swear
this both before God and before the people. There is a
Court of jurisdiction for that too... You wanted to see
me? You are disturbed by a radio in the counter hall? Or
by the truth you heard? Tell me, what is the problem?
… So, no problem! Good (alright!)! Good bye!
119. SFX:
ALMA SLAMS THE DOOR BEHIND HER.
77
SCENE 11 (INT) ZLATAN’S HOME. NIGHT
120. ZLATAN:
Are you feeling better now? Headache gone?
121. SFX:
SILENCE.
122. ZLATAN:
I… got a job.
123. SFX:
SILENCE.
124. ZLATAN:
Alma, do you hear me? I got a job!
125. ALMA:
Job? What job?
126. ZLATAN:
The one you were telling me about, for invalids,
security attendant for the parking lot. Ten marks (KM)
per day. And, I went to check it out: it’s a small booth,
the same as a guard-house, it has a heater, a small TV
… A job is not that difficult. Are you alright?
127. ALMA:
Are you sure you can do it?
128. ZLATAN:
I start tomorrow! Yes, I might be a bit slower; it will
take me more time to get out of the booth in the
wheelchair. But, that’s life, eh! I used to drive a taxi,
and now I’m guarding someone else’s cars! But at
least I stayed in the same profession! (LAUGTER)
Alma?
129. SFX:
SILENCE.
130. ALMA:
And what are we going to do about Belle Vue?
131. ZLATAN:
Even if the house falls down, we will build it again! As
long as it’s ours, we can make it.
SCENE 12 (INT) MARIJA’S BUFFET “THE BASE”.
132. MARIJA:
So, where were you, my love? The coffee is getting
cold. You said you were gonna be here at twelve.
133. ŠERIF:
Ah, give me a break woman, what’s got into you? Did
you suddenly start warming to me?
134. MARIJA:
Me, warming to you!? ... You poor sod, look how
grumpy you are, one couldn’t kiss you even if they
wanted! You’re not used to tenderness, but instead
ice, rocky ground and a leash! Come on, tell me: What
does the Mayor want?!
135. ŠERIF:
Well, why do you get upset so quickly, he wants a
strong one …. Fenkareli is there too, he wants Earl
Grey tea, or something like that …
136. MARIJA:
Uh, look at great Mr. Fenkareli, who is nothing but an
ordinary crook! What’s good for the goose……….
78
137. ŠERIF:
What was that? Today a crook, and yesterday you
would use him as a healer!
138. MARIJA:
I ask him nicely to help me with a space for a restaurant
at Belle Vue, and he now he denies it and, on top of
everything else, he asks things of me, then you, then
me again…….Uh, my dear, dear… Šerif, really, you are
such a redneck…
139. ŠERIF:
What now?!
140. MARIJA:
And you’re asking me? You were about to leave,
without even kissing me!
141. ŠERIF:
Oh my god, woman, what’s got into you? You were
not like this before. (KISS)
142. MARIJA:
Eh, go now, and take this with you!
143. ŠERIF:
You’re no woman, but the Devil himself!
144. MARIJA:
(for herself) Eh, my Šerif, we will never make a decent
husband or a man of you…
SCENE 13 (INT) MAYOR’S OFFICE.
145. SFX:
SILENCE.
146. ALMA:
What would you like to know, Mr. Mayor?
147. MAYOR:
Well, everything, Mrs. Alma, I am interested in
everything you want to tell me.
148. ALMA:
Alright. My husband and I live in the house that is now
six feet away from Belle Vue Hotel. We look at one
wall and two windows. It is cold, we never get any
sunshine. My husband is an invalid, he lost his legs in
the war, but not as a result of direct conflict.
149. MAYOR:
I know it all of this, but you shouldn’t have taken it so
far. Surely you know that this case is no more under
the municipality’s jurisdiction…
150. ALMA:
Even when it was within the municipality’s jurisdiction,
our complaints were rejected. You are familiar with all
those complaints.
151. MAYOR:
You should have come to me personally earlier, and
not gone to the Court … the building has almost been
completed … and even if all those complaints were
taken into consideration, the municipality budget
does not have the money to destroy the building …
You know what they say, one has to move on…...
79
152. ALMA:
We moved on a long time ago, Mr. Mayor, but you see,
Belle Vue, has got in our way.
153. MAYOR:
I think, considering the conditions you are living under
at present, the best thing is to move out. I could help
you with that. You see, the municipality has started
a new initiative which is allocating council flats to
invalids and veterans. I can speed up a procedure for
you to get a council flat …
154. ALMA:
Thank you for your offer, Mr. Mayor, but … We will
manage to get by somehow… The Municipality has
never been capable of fulfilling our requests, not
before, not now. My husband and I are not leaving our
house. The case will come to Court sooner or later. If
our house falls down by then, we will build a new one
on the same spot.
155. MAYOR:
I can get you approval for the council flat by tomorrow
This is a good opportunity.
156.
I’m sorry, but to me it seems like big trouble.
ALMA:
157. MAYOR:
Alright, Mrs. Alma, I just wanted to help you out…
158. ALMA:
Thank you for that too. Goodbye.
SCENE 14 (INEX) ZLATAN’S SENTRY BOX. EVENING
159. SFX:
TV IS ON. THE VIDEO ABOUT HOW TO FILL A VOTING
BALLOT IS ON:
“You either circle one candidate party’s name, or mark
a name of one party. You are not allowed to mark
names of candidates from two different parties …”
KNOCK ON THE DOOR.
160. ZLATAN:
Alma, what are you doing here?
161. ALMA:
Here, I came home from work, and I made you
something to eat …
162. ZLATAN:
But, you shouldn’t have, my sweetie, I took something
from home earlier…
163. ALMA:
Never mind, I didn’t know… it’s not so bad in here!
Thanks God, it’s warm, God forbid you catch some
illness.
164. ZLATAN:
How did it go at work, is the Mayor still bothering you?
165. ALMA:
No way, he can’t say a word. When he comes in to
work, he only glances at me and waves at us. And,
what can he do? I wouldn’t like to be in his shoes.
80
166. ZLATAN:
Hold on a second, a car is coming.
167. SFX:
ZLATAN LEAVS THE BOOTH. A SOUND OF A CAR.
168. ALMA:
(for herself) Eh, look at them, bastards...!
169. ZLATAN:
Two marks (KM)! Thank you. Good bye!
170. ALMA:
Do you know, my Zlatan, who that was? Bužo and
Fenkareli!
171. ZLATAN:
Let them be, I have had enough of them…
172. ALMA:
How come you didn’t say anything to them…?
173. ZLATAN:
I’ve said enough. I wouldn’t want to lose my job
because of them.
174. ALMA:
Just look at his car… thieves.
175. ZLATAN:
Let them be, Alma, they won’t take anything to their
grave.
176. ALMA:
Well, I don’t know what each of them will take to their
grave, but the Court will say what they are going to do
while they’re alive! Come on; eat, before it gets cold.
(ZLATAN EATS FROM THE POT)
177. NUNE
(ABSTRACTLY): (with accordion, recorded)
Dear Lord, dear Lord, look, it was as if we were naked
… Dear Lord knows what’s not for real. Dear Lord, dear
Lord…
THE END
81
2.3 The Pilot Programme Testing by the Mediacentar
Sarajevo
About the Pilot Programme Testing
Three pilot episodes of the radio drama were developed by the creative
team of the BBC WST using Dr Irwin’s survey. To get a picture of how the
drama would be received by the target audience, we chose to employ the
method of focus group testing.
The research included a total of 12 focus groups with potential listeners
and was conducted from February 23, to March 11, 2004. Six Focus
groups were conducted with officials coming from six BiH municipalities,
and six groups consisted of respondents of the general audience.
The Municipalities included in this research were:
1.) Centar Municipality, Sarajevo;
2.) Mostar City Administration;
3.) Banja Luka City Administration;
4.) Kasindo Municipality, Istočno Sarajevo;
5.) Novi Grad Municipality, Sarajevo; and
6.) Lukavica Municipality, Istočno Sarajevo.
Eight focus groups were conducted in Sarajevo (four with municipal
officials and four with the general audience), while two focus groups (one
with municipal officials and one with a general audience) were conducted
in both Banja Luka and Mostar. The focus groups included a total of 110
respondents.
Summary of Findings
by Ratko Đokić, Mediacentar Sarajevo
This research had three major objectives:
1. To obtain feedback from potential listeners of the radio drama “A gdje
sam tu ja?”
2. To explore possible similarities and differences in the perception of the
radio drama between civil servants and the general radio audience in BiH
3. To obtain comments and suggestions from the potential listeners with
the purpose of improving the programme.
The following sections provide details on key results of this research,
divided by presenting different elements of the programme.
82
Programme Content
The participants found the topics of the individual episodes of the radio
drama to be current and relevant.
PPROBLEMS AS PRESENTED IN THE RADIO DRAMA
The way in which the radio drama portrayed the performance of BiH
municipal authorities (regarding the issue of objectivity) was a point of
significant divergence in opinion, as indicated by the research target
group, illustrating substantially different positions. It appeared that the
major factor of such discrepancy was the background of participants
within the individual focus groups. Generally, the participants can be
divided in the three following groups:
The First Group consisted of research participants who strongly disliked
the content of the episodes presented are the employees of the following
local administrations: Centar Municipality Sarajevo, Novi Grad Municipality
Sarajevo, and Mostar City Administration. One point on which all of these
research participants almost unanimously agreed, was that they felt that
their organisations are effective in carrying out their work.
With regard to the content of the radio drama, criticism fell into the
following categories:
The lack of objectivity regarding the portrayal of the way in which
municipal employees carry out their jobs. This predominantly concerns
the portrayal of the way in which municipal officials relate to citizens.
A bias portrayal of the relationship between municipal officers and citizens
in day to day dealings. In other words it was felt that only the misconduct
of municipal officials was presented and reference was made towards bad
behavior on the part of citizens (towards municipal officials).
The fact that the radio drama only focused on negative issues and ignored
anything positive, was also widely criticized.
The participants (municipal officials from the above local administrations)
considered that the programmes failed to address possible reasons which
objectively limit municipal administration to improve and achieve better
results.
The radio drama was criticized for oversimplifying and giving a stereotypical
portrayal of the work of the municipal administration. The participants
also believed that the radio drama presented a number of issues and
related inconveniences which do not fall under the responsibility of every
municipality. Additionally, that each BiH municipality was portrayed in the
same, negative light.
83
The Second Group consisted of participants from the three focus groups
and was made up of municipal officials employed with the following local
administrations: Kasindo and Lukavica Municipality and Banja Luka City
Administration. The general opinion of these three groups was that the
programmes provided a fairly realistic reflection of the current situation
in BiH local administrations. Although the participants in this group
voiced certain objections to some of the material- similar to those of
the participants in the first group, those views were not dominant in the
discussions.
The Third Group consisted of the panelists from the general audience. Most
of these participants agreed that the programmes provided an objective
portrayal of problems related to the work of the municipal administration.
Only a smaller number of participants in these groups shared the opinions
of the participants in the first group.
SOLUTIONS OF PROBLEMS AS PRESENTED IN THE
PROGRAMME
The research population generally felt that programmes which they were
presented with failed to offer concrete solutions to specific problems
or even if there was an implied solution to the problems, it was not
acceptable.
The participants also felt that the way in which the radio drama was
structured was inadequate. This was most probably due to the fact that all
the panelists expected the programmes to provide concrete solutions.
The municipal officials a potential consequence of what they believed to
be inappropriate presentation of problems could further widen the gap
between municipal administrations and citizens and lead to increased
dissatisfaction on behalf of the citizens. On the other hand, the participants
of the group consisting of members of a general audience expected
concrete solutions to arise from the episodes, which could be effectively
put into practice in reality.
A number of participants felt that one of the problems related to the
programme was the fact that it promoted an approach which showed
the least resistance to dealing with relevant issues. In addition, the radio
drama itself did not take any kind of stance with respect to such an
approach in dealing with issues.
Only a small number of participants felt that that the concept of a
programme which does not provide concrete and definitive solutions to
the problems raised could inspire the listeners to think for themselves
and in turn find the most appropriate solutions. Thus such an approach
to the programmes could be beneficial in that it would contribute to an
increased sense of awareness in the citizens of BiH.
84
Primary Objectives and Target Audience
PRIMARY OBJECTIVE
In a similar fashion to the disagreement raised with respect to the content
of the radio drama, participants from different focus groups also had a
different opinion on what was the target audience.
•
The most radical opinion was that the main objective of the
programme was seen as something destructive, i.e. the programme
was aimed at inducing negative reactions in citizens and further
widening the gap between the municipal administration and
citizens. Such an opinion was expressed by some participants in
the first group.
•
Another opinion expressed regarding the objective of the
programme was that it was not clear, which was held by the
participants in the first group but also by a number of participants
from the general audience.
•
On the other hand, participants from Banja Luka City Administration,
Kasindo Municipality and Lukavica Municipality, including a number
of participants from the general audience considered that the
primary objective of the programme was to educate listeners, i.e.
increase civic awareness and indirectly influence municipal
administrations with the aim of improving their work.
•
Finally, a number of participants in the groups comprising both
municipal officials and general audience saw the entertainment of
listeners as primarily objective of the programme.
TARGET AUDIENCE
•
The target audience was also an issue on which participants
disagreed significantly. Comments that the programmes were
intended for disgruntled citizens who could possibly be further
provoked by these programmes reflected the grave discontent of
participants in the first group.
•
However, some of these participants felt that municipal officials
should be included in the target audience but only if the way
in which the programme presents the general work of the municipal
administration is changed.
•
On the other hand, a number of participants from the second
‘municipal group’ believed that the radio drama, in its current
form, was mainly intended for municipal officials. In addition,
some of these participants felt that the radio drama was intended
to reach out to all population categories. This opinion was supported
by a majority of participants in the general audience groups.
85
First Episode versus second and third one / entire
programme
•
The majority of respondents felt that first episode represented a
good introduction for the subsequent ones.
•
Furthermore, majority of participants thought that each presented
episode fits into a wider, bigger picture.
Presentation
ORGANISATION AND PROGRAMME PRODUCTION
•
While a number of participants said that they experienced certain
difficulties in following the story, other participants noted that
keeping their focus on the radio drama was demanding due to
sudden ‘jumps’ from one topic to another, one character to another,
or one location to another which were not accompanied by
elements to indicate, explain or contextualize such sudden
changes.
•
The participants described the programme as sufficiently dynamic
and balanced in its pace
•
Although several participants explained that the similarity in the
voices of certain actors was a source of confusion and that they
were not pleased with the way in which the programme combined
actors’ voices and supporting sounds, general assessment was
that the production was satisfactory.
DURATION OF INDIVIDUAL EPISODES
While some of the participants (municipal officials from the second group
and some of the general audience participants) considered the duration
of individual episodes to be quite satisfactory, the remaining participants
felt that the episodes were too long and thus, listeners would have to
spend time that they would not normally spend on the radio as a choice
of media outlet, listening to the programmes.
QUALITY OF ACTING
Generally, the quality of acting was considered to be satisfactory.
THE CHARACTERS
The majority of participants agreed that characterization in the radio
drama was effective.
LANGUAGE
The presence of ‘everyday’ language in the radio drama was considered
by the majority of the participants as positive. However, some of the
86
participants felt that the slang in the radio drama was inappropriate for
a radio broadcast.
INTRODUCTORY THEME SONG
•
The participants had opposing opinions on the theme song. A
number of participants (Kasindo and Lukavica Municipality officials
and a number of general audience participants) liked the song and
its lyrics.
•
On the other hand, officials of Mostar City Administration, Centar
and Novi Grad Municipality officials and the remaining participants
form general audience actually did not like the theme song.
Municipal officials thought that the lyrics are offensive, while the
general audience felt that it lacked seriousness (or it was
oversimplified) and was not in line with the sentiment of the
programme.
SURVEYS
The majority of respondents had no major difficulties in identifying
actual vox pops inserted into the programme. In addition the majority of
respondents supported the underscoring of fictional elements with actual
opinions from the citizens.
Broadcast times and partner radio stations
•
The participants felt that the radio drama should be aired at prime
time and on radio stations with the highest ratings.
•
Public broadcast radio stations were indicated as the most suitable
to broadcast this kind of programme. This is because they cover a
larger territory than the local radio stations. In addition, the
programme profiles of these radio stations were considered to be
serious and this would facilitate the presentation of the radio
drama as a programme with a specific, relevant message.
General impressions
Most of the participants from the groups consisting of a general audience
thought that the way in which the drama was designed would be well
received by BiH citizens. Such an opinion was primarily based on the
appeal of the satirical tone of the programme. On the other hand,
municipal officials again stressed their concern that such programmes
could fuel the stereotypes which citizens already have regarding the
municipal administration. However, they believed that the programme
will appeal to the BiH population in general.
•
Suggested common topics which respondents would like covered
in the radio drama were: success stories of work done by the
municipal administration (suggested by municipal officials), the
87
promotion a culture of civilized living and behavior (suggested by
general audience respondents).
Recommendations for Programme Improvement
Suggestions for improvement of the radio drama chiefly related to the
modification of its content and not the way in which the programme was
presented. Suggestions to illustrate this are provided as follows:
•
Municipal officials, predominantly those from the first group, felt
that the programme should be more realistic, or in other words,
it should reflect the actual situation in the municipal administration
(which they did not consider to be as ‘depressing’ as the programme
suggested). This could be done by the following changes or
additions to the programme:
a.
A comparable contrast of both positive as well as negative aspects
of the work of the municipal administration.
The programmes should show both effective and ineffective
municipal administrations, i.e. describe the situation in both the
successful and less successful municipal administration;
The trivialization of complex issues should be refrained from,
i.e. the programme should draw from meticulous research of
municipal administration and related problems in order to avoid
a bias approach in presenting the actual situation and holding
municipal administration responsible for certain matters which do
not fall under their authority at all;
The informative and educational value of the programmes should
be enhanced. The programme should provide solutions to problems
addressed. In addition, the programme should include some
concrete information on how to successfully deal with problems
or to whom to refer in order to solve such problems. Another point
to consider would be the combination of radio drama and talk
programmes (featuring competent speakers to discuss a topic
covered in the individual episode) or a studio discussion on the
different legal aspects of presented issues. Alongside with
municipal officials, this suggestion was supported by participants
from the focus groups comprising the general audience.
b.
c.
d.
•
A number of participants, both municipal officials and the general
audience respondents, thought that the programmes should be
profiled better in terms of their objective.
•
Furthermore, some of the participants felt that the duration of
individual episodes could be shorter.
•
In addition, several respondents in each focus group proposed
ways of how to improve the programme with respect to the theme
88
song (more specifically its lyrics), the acting and the language
used in the drama.
2.4 Results of the Audience Research
2.4.1 The Audience Survey
Aims of the audience research
The audience survey was commissioned by the CDRSEE and implemented
by Strategic Marketing between February and April 2006. Two months
after the radio drama was broadcasted 1000 citizens of BiH, 500 of which
were municipal workers, were interviewed about the drama episodes.
The aim was to find out how the radio drama was perceived by the target
group, what impact it left on attitudes and if the creative approach of
using radio drama for education succeeded.
Report on Findings
By Prof. Dr. Svetlana Logar, Strategic Marketing
Methodology
The survey was conducted as an ad-hoc research with face to face
interviews. Prior to implementation the questionnaire was tested.
Methodology of the survey with the General Audience:
Data collection method:
Target population:
Sample frame:
Face to face with respondents home
Population of B&H 18+
Population Census 1991, UNHCR statistics,
Official vital statistics and data on migrations,
and SMMRI population estimates for 2005.
Type of sample:
Representative stratified three stage random
sample - with listeners boosted
Sample stages:
1st stage:
2nd stage:
3rd stage:
Sample selection:
Local communities (PPS sample – population
18+)
Households – random walk (simulation of
SRSWoR sampling scheme) and
Kish scheme (simulation of SRSWoR sampling
scheme)
Lachirie method
89
Size of sample:
500 responders: 250 listeners of the radio
drama “A gdje sam to ja”, and 250 nonlisteners
Margin error
n=500
+/- 4.4
n=250
+/- 6.2
Sample description General Audience: Listening to the drama in
the past six months
50,5
49
48
53
51
52
47
49
0.58
Total
Federation
BIH
No
104
R. Srpska
51
182
50+
49,5
257
Stratum
40-49
Yes
sig
30-39
237
18-29
494
N
Age
Female
Gender
Male
Total
95
113
174
320
43
47
44
52
57
53
56
48
0.44
0.08
100 per cent
Methodology of the Survey with Municipal workers
Target population:
Sample frame:
Type of sample:
Sample stages:
1st stage:
2nd stage:
Data collection method:
90
Municipality officials
Municipalities
Quota sample
Municipalities
Municipal workers
Face to Face at respondent’s working place
Sample description Municipal workers: Listening to the drama in
the past six months
198
Yes
43.0
46
41
No
57.0
54
59
sig
Total
0.22
Federation
BIH
310
R. Srpska
211
50+
521
N
Stratum
40-49
18-39
Age
Female
Gender
Male
Total
206
117
188
333
0.75
0.70
44
44
40
44
42
56
56
60
56
58
100 per cent
Key findings
Taking into account only declarative statements of the impact the drama
had on the listeners, the impact was much stronger on the municipality
officials than on citizens: 90 per cent of the municipality officials stated
that the drama had an impact on them, while the same was reported by
42 per cent of the citizens.
In comparison to citizens, municipality officials are reported to like the
drama at a substantially higher percentage, 51 per cent and 71 per cent
respectively (83 per cent of more frequent listeners and 59 per cent of
less frequent listeners).
Most of the municipality officials who listened to the drama, 72 per cent,
stated that they learned something helpful with regards to work.
On the other hand, and in spite of declarative statements from the listeners
that drama had made an impact on them, differences between listeners
and non listeners among the municipality officials in their evaluations of its
significance were less clear and much less striking than in the case of the
citizens. The municipality officials who listened to the drama, in comparison
to non listeners, evaluated the issues of corruption and governance as
91
significant at a slightly higher percentage, but the differences were quite
insignificant and much less striking than in the case of the citizens.
The attitudes of citizens towards issues of corruption and governance
were found to be different between listeners and non listeners. In spite of
the fact that these differences are not substantial from the point of view
of evaluating each particular issue, the general picture of the attitudes
shows that listeners are more aware of corruption and consider this issue
as more significant for society.
In evaluating the impact of the drama just by taking into account
differences between listeners and non listeners, caution shoud be taken
since the effect of the drama cannot be discerned from the attitudes the
citizens had before they listened to it. It is highly probable that people
who were more aware and more sensitive to the problems of corruption
and governance were more motivated to listen to the drama. In spite
of the fact that the effect of the previous attitudes cannot be complitely
eliminated, at least three findings show that listening to the drama had
an impact on the listeners from the general audience alone:
42 per cent of the listeners reported that the drama had had an impact on
them (beside just entertainment), and the evaluated impact was higher
with the frequency of listeners (greater number of episodes listened); 49
per cent of those who listened to three or more episodes stated that the
drama had had an impact on them, in comparison to only 34 per cent of
those who listened to the drama just once or twice.
Listeners who listened to more episodes in comparison to those who
listened to just one or two episodes showed a higher awareness of
corruption and governance problems and stated more often that the
drama made them aware of their citizens rights and inspired them to
think about the solutions.
Issues related to corruption were far the best remembered parts of
the drama, and the most striking and clear cut differences in attitudes
between the listeners and non listeners of the drama were also related to
corruption issues.
Perceptions of the solutions by municipality officials who did and did not
listen to the drama were also not different.
In comparison to citizens, municipality officials evaluated corruption issues
as well as the governance issues as less significant. The evaluations of
the significance of the corruption issues between municipal officials and
citizens were especially striking with regard to issues directly related to
the work of municipality officials: corruption of public services, municipal
officials giving jobs, municipal officials giving documents. All these issues
were evaluated as less significant by municipality officials than by citizens,
no matter if they listened or did not listen to the drama.
92
The same differences between the evaluations of the citizens and
municipality officials were found concerning governance issues. The points
of greatest agreement between the citizens and officials in evaluation of
the importance of the problems were on the issues which are not directly
related to the work (responsibility) of the municipal officials: not enough
decision making power on municipal level and poor use of international
resources, while the differences were much greater on the issues more
critical towards the work of the municipality officials. The most striking
differences were found in the evaluation of the significance of the issues
like arrogant civil service and lack of transparency. Both of these issues
were evaluated as more significant by the citizens.
ATTITUDES TOWARDS THE RADIO DRAMA AND THE IMPACT ON
THE LISTENER
Most of the municipality officials who listened to the drama stated to like
it 71 per cent (83 per cent of more frequent listeners and 59 per cent
of less frequent listeners). In comparison to citizens, municipal officials
reported to like the drama at a substantially higher percentage (62 per
cent and 71 per cent respectively).
Most of the municipality officials, like the citizens, reported that what they
liked the most was that the drama reflects the problems of Bosnia and
Herzegovina. In comparison to citizens, a substantially higher number of
municipality officials (49 per cent and 59 per cent respectively), reported
this aspect of the drama as the one they liked the most (61 per cent
of more frequent listeners, and 57 per cent of less frequent listeners).
The second most liked was good humour, reported by 31 per cent of the
listeners. Good humour, as in the case of the citizens, was more frequently
mentioned by less frequent listeners, 32 per cent, than by more frequent
listeners, 29 per cent. In comparison to citizens, municipal officials in the
higher percentage reported also that the drama made them think (13 per
cent and 20 per cent respectively).Each fifth of municipality officials (20 per
cent) stated that they liked the fact that the drama initiated discussions.
What did you like the most about the drama?
93
The main criticism was again compatible with perceptions of the citizens;
26 per cent of the municipality officials thought that drama did not pay
enough attention to young people’s problems, and this was the most
often mentioned disliked aspect. Second most disliked aspect was that
drama did not pay enough attention to women’s problem, 16 per cent,
while 10 per cent thought that drama was not reflecting the reality and
not giving suggestion for their own problems with municipality.
What did you dislike the most about the drama?
Issues related to corruption were by far best remembered as the most
relevant issue of the drama. In comparison to the citizens municipal
officials mentioned corruption as the most relevant topic they could
remember (a substantially lower percentage). In total, 37 per cent of the
municipality officials reported corruption as the issue they found the most
relevant that they could remember (42 per cent of the more frequent
listeners and 32 per cent of the listeners who listened to the drama just
once or twice), while 47 per cent of the citizens reported corruption as
the most relevant (54 per cent of the more frequent listeners and 39 per
cent of the listeners who listened to the drama just once or twice).
Only 13 per cent of the
work of the municipality
could remember (15 per
cent of the listeners who
94
municipality officials mentioned the quality of
administration as the most relevant issue they
cent of the more frequent listeners and 11 per
listened to the drama just once or twice)
Three most relevant issues you remember from the drama?
(municipal survey)
Listened
to the
drama
3 and more
episodes
Total
one-two
episodes
In absolute numbers and per
cent
Nr. of respondents
224
108
116
Corruption
37.4
32
42
Work of municipal administration
12.9
11
15
I do not remember anything, I
can not remember
04.6
04
06
Relation between citizens and
municipal administration
04.3
02
06
General questions from
everyday life
04.2
01
07
Good humour
03.8
06
02
Problems of the young
03.2
01
05
Illegal building
03.1
03
04
Employment
03.0
01
05
Discrimination of women
02.5
03
02
Too complicated work of
municipal administration
02.5
01
03
Selection of Head of municipality
02.1
04
Employment of women
02.0
02
02
Kindness of staff towards the
client
02.0
02
02
Nepotism
01.9
02
02
Arrogance of municipal workers
01.5
01
02
Culture and art
01.5
Work of municipal workers,
conscious work
01.4
02
01
Chief Filipovic
01.4
01
02
Disabled veterans
01.3
03
Social problems
01.2
02
Arrogance of director of
municipal services
01.2
02
Guest appearance of the Mayor
01.0
02
Only Bosniaks are calling in
01.0
02
Other < 1 per cent
09.4
09
09
DK\REF
15.5
18
13
03
95
In general, 90 per cent of the municipality officials reported that the drama
had made an impact on them; 94 per cent of more frequent listeners
and 86 per cent of those who listened to the drama just once or twice.
The incidents of impact reported by municipal officials were considerably
higher than the impact reported by the citizens (42 per cent).
One third of the municipality officials, 32 per cent, stated that the drama
made them think about their work environment, 28 per cent stated that
the drama made them aware of the citizens needs, and 25 per cent
that the drama made them aware of the problems citizens have with
municipalities. Quite a substantial number of the municipality officials, 22
per cent, reported also that the drama made them think about what they
could change to improve the situation.
The most striking difference between the groups of more and less frequent
listeners was in reporting the impact of the drama on their awareness of
the citizens needs: 38 per cent of more frequent listeners and only 16 per
cent of those who listened to the drama just once or twice stated it made
them aware of the citizens needs.
What impact did the radio drama leave on you as municipal
worker?
The majority of the listeners, 72 per cent, stated that they learned
something useful for their daily job (77 per cent of more frequent listeners
and 66 per cent of those who listened to the drama just once or twice),
and 57 per cent that they were inspired to discuss the drama (73 per
cent of more frequent listeners, and 40 per cent of those who listened to
drama just once or twice).
96
DID YOU LEARN SOMETHING FROM THE RADIO DRAMA WHICH
HELPS FOR YOUR DAILY JOB?
Base: those who have listened to the drama
(43 per cent of total population)
87
Yes
71.7
69
74
73
No
28.3
31
26
27
sig
0.42
Total
Federation
BIH
126
R. Srpska
98
50+
224
N
Stratum
40-49
18-39
Age
Female
Gender
Male
Total
90
47
83
141
72
68
61
78
28
32
39
22
0.80
0.01
100 per cent
DID YOU DISCUSS THE RADIO DRAMA?
Base: those who have listened to the drama
(43 per cent of total population)
sig
40-49
50+
R. Srpska
Federation
BIH
Stratum
18-39
224
Age
Female
N
Gender
Male
Total
98
126
87
90
47
83
141
0.63
0.02
0.00
Yes
57.1
55
58
69
47
55
71
49
No
42.9
45
42
31
53
45
29
51
Total
100 per cent
DIFFERENCES IN THE ATTITUDES TOWARDS CORRUPTION AND
GOVERNANCE ISSUES BETWEEN LISTENERS AND NON LISTENERS
OF THE DRAMA
Differences in perceptions of corruption and governance issues
In general, municipality officials evaluated the issue of corruption as
a more important issue than that of governance, and as regard this,
evaluations of the municipality officials are in agreement with citizens’
evaluations. However, in comparison to the citizens, the municipality
officials perceived both the problems of corruption and problems of
governance as less significant than the citizens; this difference was found
97
in average estimations between the municipality officials and citizens as
well as between the listeners.
The evaluations of the significance of the corruption issues between municipal
officials and citizens were especially striking with regard to issues directly
related to the work of municipality officials: corruption of public services,
municipal officials giving jobs, municipal officials giving documents.
LISTENERS: Corruption issues - per cent answers “Significant”
and “Very significant”
The same differences were found for governance issues. The points of
greatest agreement between the citizens and officials in the evaluation of
the importance of the problems were on the issues which are not directly
related to the work (responsibility) of the municipal officials: not enough
decision making power on municipal level and poor use of international
resources, while the differences were much greater on the issues more
critical towards the work of the municipality officials. The most striking
differences were found in the evaluation of the significance of the issues
like arrogant civil servants and lack of transparency.
LISTENERS: Governance issues - per cent answers “Significant”
and “Very significant”
98
The municipality officials who listened to the drama, in comparison to non
listeners evaluated the issues of corruption and governance as significant
at a slightly higher percentage, but the differences were less striking than
in the case of the citizens.
Like the citizens, the municipality officials evaluated the problems of
corruption as significant - at a higher percentage than the problems of
governance. While most of the 50 per cent of the municipality officials
evaluated most of the issues related to corruption as “very significant”,
less than 50 per cent evaluated the issues related to governance as “very
significant”
Differencies in perceptions of solutions
Municipality officials who listened to the drama evaluated the listed
solutions as essential or desirable, at a somewhat higher percentage
in comparison to citizens. The differences were especially striking with
regard to better salaries for managers and public officials. While less
than one third of citizens were of the opinion that better salaries for
managers and public officials (34 per cent and 22 per cent respectively)
are essential or desirable, more than 60 per cent of the municipality
officials thought that this is an essential or desirable solution (68 per cent
and 66 per cent respectively).
Listeners: Public corruption and reform - per cent answers
“Essential” and “Desirable”
Differences between citizens and municipal officials in evaluation of the
solutions related to governance and reform were insignificant except for
the following: the head of the municipality should delegate, professional
qualifications for managers and good managers should be rewarded - all
of which were evaluated as more important (essential or desirable) by
municipality officials.
99
Listeners: Governance and reform - per cent answers “Essential”
and “Desirable”
Perceptions of the solutions related to corruption by municipality officials
from those who did and did not listen to the drama were the same.
All of them, and quite compatible with the citizens’ perceptions, found
in the highest percentage that the essential solutions are: to build an
efficient state to fight the corruption, prosecution of all corruption, make
the universities responsible for issuing honest degrees, and promotion
and hiring conducted on merit.
Solutions related to governance issues were evaluated as essential by a
substantially smaller percentage of municipality officials, as in the case
of the citizens. Only three solutions were evaluated as essential by more
than 50 per cent: Hire top proffesionals for the project, make civil servants
responsible for the public, and provide clear lines of responsibility.
Finally, municipality officials who listened to the drama expressed more
need for further training than non listeners: 39 per cent of non listeners
and more than 50 per cent of listeners of the drama reported that they
would need more training.
How do you evaluate your need for further training?
100
Conclusions by the editors
The above report provides the empirical basis of learning the impact
the radio drama has had on listeners and compares their views to non
listeners and it allows us to draw conclusions on how the drama met the
following two central aims of the project:
•
to change the attitude of staff in municipal authorities by raising
awareness of poor governance issues and by informing these
groups of best practice and malpractice through popular radio
drama and extensive outreach work.
•
to empower local communities to take action and better present
their needs and demands by encouraging their active involvement
in the development of the radio drama and in subsequent debates/
discussions.
The radio drama clearly succeeded in raising awareness for malpractice in
municipal administration and contributed to enhancing the public debate
on the issue of corruption. 72 per cent of municipal workers listening to
the drama, stated that they learned something helpful for their daily job
and 57 per cent felt that the drama initiated discussions, which is the first
step and basis of changing attitudes.
The citizens were involved in the drama through the baseline research
and local consultative testing and 62 per cent of listeners reported that
they liked the drama. Although 27 per cent considered the drama mainly
as entertainment and only 15 per cent felt that they are now more aware
of their needs and rights as citizens. Nevertheless almost 60 per cent of
the listeners amongst citizens stated that the drama is useful for raising
awareness amongst municipal workers, of which 29 per cent were of the
opinion that the drama would also contribute to changing attitudes in
municipalities. In comparison to the municipal workers only 34 per cent
of citizens discussed the drama, of which 30 per cent discussed their own
problems in relation to the plot.
Regarding the findings it is evident that the drama had a far more important
impact on the primary target group that of the municipal workers, and
succeeded in drawing their attention to practices which have to improve.
The drama in its humouress approach to tackling sensitive issues even
succeeded in getting a positive resonance from the target group, instead
of leaving them insulted, since 72 per cent of listeners amongst municipal
workers liked the drama. Therefore the drama met the first and most
important goal of the project and even the citizens considered the drama
useful in changing the attitudes of their municipal workers.
101
2.5 Analysis of the Phone-Ins
ANALYSIS GOALS
This analysis is the product of 53 transcripts (out of 315) of the educational
and entertainment shows broadcast by 26 radio stations across BosniaHerzegovina, following the airing of the radio drama series “A gdje sam
to ja?”. Each of the 15 episodes, aired in the September-December 2005
period, was followed by a 30-minute phone-in show, and the listeners
had the chance both to comment the episodes, and, notably, to talk
about the specific problems bothering them and render their opinions
about the work of municipal staff. If the authors had intended to use
communication and media for development and to offer the audience
(ordinary citizens) content that would educate them and provide them
with greater opportunity to address their problems with the municipal
administration, then the endeavour was successful.
Methodology
The analysts applied the method of random selection of radio stations and
episodes to arrive at conclusions about how the target group perceived
the radio drama and how the latter affected the views of the citizens.
The analysis concentrated solely on the opinions of the listeners who had
taken part in the live phone-ins of the 26 radio stations. The analysis of
this segment was not aimed at comparing the opinions of citizens and
municipal staff, although that would have been possible because municipal
staff took part in the phone-in shows, on a regular basis, as guests in the
studio. Such shows presented the citizens with the opportunity to talk
more openly about the everyday problems they face in various areas of
their lives.
The table below gives an overview of the radio stations included in the
analysis of the opinions of listeners who phoned in after the broadcasts of
the episodes; the number of phone-ins analysed; and the ordinal number
of the episodes followed by the phone-ins.
In particular, after the first episode, the analysts reviewed the transcripts
of phone-ins of eight radio stations. They opted for such a high number of
samples because they wished to obtain as much information as possible
about how the series was initially received, as at the time, it marked a
breakthrough in terms of programming of both specific radio stations and
media in Bosnia-Herzegovina in general. They analysed the transcripts of
phone-ins of between 2 and 5 stations for each of the other episodes.
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Findings
By Dževdet Tuzlić, CDRSEE Thessaloniki
Episode 1 – “First Day”: 8 Radio Stations
BH Radio 1 – Seven phone-ins from across Bosnia-Herzegovina, i.e.
both entities; most of the listeners, who phoned in, live in Sarajevo,
Bugojno and Doboj.
The episode focused on the municipal practice of clerks working at
municipal counters with clients and the experiences of the citizens.
One listener was grateful that the show was an opportunity to hear useful
advice from a representative of the Sarajevo NGO “Your Rights” on how
to resolve legal problems related to property.
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While the show host wanted to view to problems globally, without naming
the municipal officials, whom the questions and criticism were addressed
to, a listener from Bugojno insisted on openly naming the people to blame
for specific problems.
A number of listeners praised the municipal staff (e.g. in the Centar
Sarajevo Municipality), while others were of the opinion that some
municipalities linked the problems of citizens to their ethnicity “although
a citizen is a citizen”, says Ibrahim Abazović .
Listeners in both entities also phoned Radio Bobar, which broadcasts
across Bosnia-Herzegovina, like BiH Radio 1.
The first listener who phoned in (and probably one of the first two
listeners to phone in any of the radio stations after Episode 1 and thus
win the BBCWST prize) said the plot of the first episode seemed like a
fairy tale and spoke about the problems her husband faced when he tried
to address the problem of water supplies in a refugee camp. She and
several others callers believe that they need to pull strings to resolve
problems, i.e. that there is corruption. She says that it is obvious, as the
leading municipal positions are held by party members, and that fewer
and fewer people see the point of voting at elections.
“The greatest reward for me would be if there wasn’t any of that anymore,
if we did not talk about it anymore.”
But the drama series is an excellent opportunity to identify the problems.
Maja from Bijeljina says that she “liked the show tremendously, although
the show is on live in our town every day”.
The callers also spoke about the problems of unqualified staff in
municipalities, noting that the citizens themselves would have to rectify
those mistakes by voting for better people.
A caller of Federal Radio, who lives in Sarajevo, also thinks the drama
episode was extremely realistic, “almost documentary” and that there
should be better control of the staff if the situation in the municipalities
is to improve.
A listener of Radio Kameleon from Sarajevo recognised himself in one
of the characters playing a user at the counter and advises the municipal
staff to be more efficient and prompt. A caller from Tuzla first reacted to
the content of the series: “It was just like in the drama. Just like that. As
the saying goes: You scratch my back, I scratch yours.” She went on to
say that the services should be organised better, that too many fees are
charged, and that many more formalities ought to be dealt with in one
place.
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Listener Kristina is an invalid and she thinks it is very important that
municipal staff are pleasant to the citizens, “even if I don’t get what I
came for”.
Radio Kameleon also utilised a public opinion poll of the citizens, who
highlighted the positive examples of service provision in the Centar Sarajevo
Municipality and noted that although the municipal administration’s
provision of services was incomparably better than before, it was still far
from satisfactory.
The show host’s persistence to stimulate the listeners to phone in had
significantly contributed to the excellent response; this also proved to be
the case with many other shows on other radio stations.
On the other hand, how interesting the topic of a show was, notwithstanding,
the audience was not prompted into calling the studio up if the show’s
hosts, both at rural and urban radio stations, were not persistent and did
not urge the citizens to phone them. For instance, not one listener phoned
Milići-based Radio Magic, even though, the municipal official charged
with repairs of the homes of returnees was in the studio at the time.
However, only two listeners called up after the first episode broadcast
on Radio Kladanj although the show host did his best to animate the
audience and the series was advertised by jingles. Amela praised the show
but criticised the listeners for not phoning in and taking the opportunity
to voice their views.
A similar thing happened to Episodes 1 and 5 on the Mostar-based Radio
Herceg-Bosna. Listener Radoslav from Drinovac kod gruda thinks Episode
1 should have been re-aired at least once during the day “because I like
it, there is truth in it”. He adds that there is corruption in municipalities,
that he himself never offered a bribe, but that bribes happened. He also
thinks the jobs should go to younger people.
Zdenka from Kreševo, a town at the other end of Bosnia-Herzegovina,
also called up Radio RH in Mostar, which testifies to the broad coverage
of that radio station as well. The radio drama left a strong impression on
her “I haven’t heard something like that for a long time.” She has had a
bad experience with the municipal administration.
Adnan, who listened to the episode on Radio Slon in Tuzla, best liked the
character of Sheriff; he says the drama protagonists do not resemble the
administration in his municipality, but that he knows that most of those in
power are just like the characters in the drama series, i.e. corrupt.
Jusuf says this is the first time that bribes and corruption have been
addressed as real problems, thanks to good acting.
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“This is a democratisation of the interpretation of the problem, I think
people of all ages and different schooling can understand it; it was
impressive and easily digestible audio literature.”
The other seven listeners also had a favourable opinion of the series,
qualifying it as a “show illustrating our everyday lives”, “the series can
help improve the situation, if our municipal bodies all get together, the
services will be better too”. Dijana listened to the show in her car. “I was
on my way to the registry office and the topic coincided with my problem,”
she said and added: “I hope my bad experiences with municipal staff will
become a thing of the past”. Zijad from the village of Dobošnica hopes
the shows will help improve the situation, introduce discipline into the
administration’s systems. “It was always like this: wait, wait and then
wait. They go into another office with our documents, they’re gone for
half an hour, resolving their own problems, all they want to do is while
their time away, they don’t want to be efficient.”
A Doboj listener who called up ZOS Radio is dissatisfied with how
municipal staff treats the public. “No-one will receive you, as if they were
sitting in their own homes and I were an unwelcome guest.” Rade from
Doboj is also dissatisfied “I know our Mayor has several apartments and
houses in Doboj, a villa on the Montenegrin coast, it turned out our Obren
Petrović has lived for 200 years and has a monthly salary of 3000 KM, so
I wonder, where did he get the money from? I expect the court to its job,
although it, too, is under the influence of the municipality.”
Stanimir, a refugee from Zenica: “I have no-one to turn to in the
municipality, I don’t believe those authorities.”
Episode 2: “Transparency” – 4 Radio Stations
Transparency of the municipalities and ways in which information reaches
the public
This episode on BH radio 1 had an audience in both entities and
seven callers from Bosanska Dubica, Banja Luka and Sarajevo. All their
questions pertained to legal issues related to property because Mrs.
Nedžmija Kukrić, the chief legal officer of the NGO ‘Your Rights’, was the
guest of the show. The discussions focussed least on transparency and
the Access to Information Law, despite the show host’s efforts to steer
them in that direction. The guest underlined inter alia that more citizens
turned to NGOs than to municipalities for help. She thinks the problem
lies in the fact that the citizens abandon even the idea of turning to the
municipalities for help, discouraged by the experiences of those who have
tried and failed, so they do not want to waste time.
When a Novi Grad Sarajevo municipal official came on the air of BH radio 1,
a caller from Sarajevo took the opportunity to ask how she could schedule
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a meeting with the Mayor. Her question went unanswered because the
show guest had already got of the phone and thus off the air.
Radio Gradačac joined the project with great ambition and even recorded
jingles to support the topic. Although the journalist who hosted the show
is eloquent and animates the audience frequently, only one listener,
a former municipal councillor, phoned in. The whole show, however,
focussed totally on the topic of the radio drama, because one show’s
guest, a representative of the NGO sector, spoke extremely critically
about the municipalities’ attitude towards the public. The situation in the
municipality of Bosanski Šamac, where Radio Gradačac can be heard,
was plastically elaborated by the other show guest, the municipality’s
PR officer. She described the municipality’s efforts to introduce European
standards in terms of equipment and services in the counter hall, and the
municipality’s brochures and website.
Radio Kameleon again combined phone-ins and the opinion poll its
journalists conducted on this specific topic. A regular listener of the radio
(she phoned in after the first episode as well), again praised the show.
She thinks the character of Fenkareli was taken from her municipality,
although she personally, had never had any bad experience with its
transparency “because I have never requested something the municipality
would want to hide from me”.
The poll shows the citizens think the municipalities should be more
transparent as they exist because of the citizens.
A caller, who would not give his name (and the show host did not insist),
compared several Sarajevo municipalities and highlighted the Centar
Municipality “which is working really well. So is Tuzla and the whole Tuzla
Canton, their website is full of data, they display the fees for the services,
the timeframes, but not all users have access to the Internet.” One caller
notes the following problem: “Our people are still not used to managing
what belongs to them, i.e. to seeking information; they continue hearing
it through the grapevine.” She agrees with the man who phoned in
before her - that only a small number of citizens can communicate via
the Internet and that mayors should communicate with the citizens much
more via the media.
Studio N Livno had as its guest, the Mayor of Livno. However, only one
citizen phoned in and asked the Mayor to answer the question on the
misrepresented final account. The guest also responded to questions sent
to the radio station in writing.
The Mayor gave general answers to very specific questions in a small
community in which everyone knows everyone. It is surprising that there
were not more phone-ins.
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Episode 3: “Women aren’t
Birth” – 4 Radio Stations
Meant
to
Help
Cows
Give
Representatives of the Gender Commission were guests of Radio Brčko.
None of the listeners phoned in so only the guests spoke about the problems
and rights of women and their representation in political bodies.
The same happened after the episode was broadcast by Studio N in
Livno. Only one question in writing arrived and it concerned women’s
rights in municipalities and the private sector. The guest, a representative
of the Livno Municipal Council, responded to the question.
Radio Zenica had 4 phone-ins, both from Zenica and the towns further
away, such as Donji Vakuf and Bugojno.
The male listeners were critical towards men, voicing the opinion that
women are equally capable of performing all kinds of jobs and representing
the people in parliament. “If someone is a doctor, his or her sex does not
matter. Women make excellent doctors, but if you look at the outpatient
health clinics, you’ll see that most directors are men. So I wonder, why
can’t excellent women doctors also be directors?”
Another listener cites the example of successful Zenica companies
managed by women, and says “the Balkan mentality is such that women
are loath to apply for directorial positions.”
A caller from Bugojno lists the example of the female MP in the BiH
Parliament and the female director of the Veterinarian Station. The
director “Mrs. Mlaćo assists in cow birthing and fertilisation in the drama;
that means she is capable of doing that, so why shouldn’t other women
be?” he concludes drolly.
Only one listener, a female, phoned Radio ZOS Doboj South during its
show discussing participation of women in government, equal employment
opportunities, discrimination at work and the difficulties pregnant women
face when applying for a job. Her name is Ranka Ivić from Doboj. She
admitted she was involved in politics, as could have been surmised from
her knowledge of the subject.
Ms. Ranka Ivić was an extremely useful interlocutor, a source of
information, advice and encouragement to women not to stand back,
but to actively involve themselves in the shaping of their destinies, win
themselves better representation in parliaments and change the current
90 per cent predominance of male members in job recruitment boards.
On the other hand, Bijeljina Bobar Radio had less luck with the episode
entitled Hotel Bellevue on illegal construction, bribery and corruption.
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The only listener who phoned in wanted an answer to a specific question
which the show host could not answer. The whole show boiled down to
playing the jingles announcing the series, repeating the station’s phone
numbers and playing music.
Episode 4: “Hotel Bellevue” – 4 Radio Stations
In addition to Radio Bobar, the analysis encompassed listening to the
phone-ins of three other stations: Radio Slon, Busovača and Konjic
after the episode was aired. Radio Konjic had the most phone-ins, seven
in total. The mayor would respond to their questions later, after checking
their allegations.
This was a good example of how mass media gives citizens the chance to
ask their mayor something; it would have been much more difficult for
them to go to the Town Hall and seek a meeting with the mayor.
The show also dealt with the (lack of) concern for war invalids through a
report and the studio had the representative of the war invalids association
as a guest on the show.
Episode 5: “Miracle in the Province” – 5 Radio Stations
This topic, also analysed by listening to the phone-ins of four randomly
selected radio stations, was also presented by a combination of comments
of the radio drama, discussions with the studio guests, and a special
public opinion poll.
The Una-Sava Canton Radio in Bihać, although covering a large area,
mustered little feedback. The only listener, who phoned in, gave a critical
review of the subject - investments in small business and corruption.
He first said he was glad to be able to speak about what bothers him
as a citizen, then he recognised himself as a kind of ‘miracle in the
province’ because he returned from the city and was contributing to the
community by educating youth. He concluded that the fruit is reaped by
the uneducated, who will not allow the educated to come to the fore. “It
seems to me they are working for personal gain, not for the welfare of
the community, of all of us, for a better future, that they are ruling in the
name of the party they belong to, hiring their own, not giving capable
people the chance to get a job.”
The citizens polled said there was a lot of corruption and that the investments
were insufficient, complaining that the state did little to help …
The Mostar station “Dobre vibracije” had only two phone-ins; the
listeners asked the guest how they could open a business.
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The guest was himself surprised that not more people called. “Maybe it’s
all clear to them, life’s all beer and skittles.”
Zvornik Radio Osvit elaborated the topic through a public opinion poll
and by putting a municipal councillor on the air over the phone.
The journalist was uninformed about the topic, failed to grasp both the
episode and how it applied to everyday life and the relationship between
the citizens and the municipal staff. For councillors are not part of
municipal administration, they are the elected representatives of the
people. Their activities are political in nature, while the series focussed on
the work of the municipal administration and its attitude towards citizens
and vice versa.
The guest of Radio Republika Srpska found the drama episode
interesting because ‘Miracle in the Province’ has many different meanings.
Only two listeners phoned in, a negligible number considering that the
Radio broadcasts to the whole entity.
The show on Mostar’s Radio Herceg-Bosna did not attract phone-ins
either, none actually. But perhaps this is because the owners of smallsized businesses do not wish to talk publicly about their problems, even
ones that had been discussed in the episode.
The show host called up Marika Djolaj, BBCWST Executive Director in
Sarajevo. She spoke about the goal of the series and noted that during
the preparations of the series, it had been establsihed that as many as 70
per cent of the citizens polled had never personally filed a request with
the municipality. She said the series aimed to improve the communication
and noted that there were two sides to the problem.
“Response in some of the phone-ins after the radio dramas we’ve
listened to was excellent, but you are right, people are reluctant to make
comments, give their names or talk about their problems. The reason
possibly lies in an unstable situation in society, the lack of improvement
of the state system, i.e. the local administration system. I’ve been living
in BiH for 16 months now and I have the impression that the people do
not feel safe. Not that they fear for their lives, but that they had difficult
experiences, had probably lived through times when it was unwise to
express one’s opinion, when it was dangerous to call someone corrupt,
and they still do not feel safe enough and the society is not providing
them with the security to come out and openly relate their experiences.
It seems to me there are many people, who phone in and then do not
want to express their opinions or give their names, but they are obviously
facing many problems and they probably worry what will happen if they
identify themselves and speak publicly about their problems.”
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Episode 6: “High School Rebellion” – 3 Radio Stations
As many as 17 callers from across BiH phoned in Radio Federation
BiH. They recognised the former school principals, now senior politicians
who have usurped power in the drama characters. The callers also spoke
about the need for people to change for the situation to improve.... A
listener in Sarajevo thinks the drama series drew on the lessons found
in the works of writers Meša Selimović and Derviš Sušić. A caller from
Zenica said each episode prompted her to phone in. As far as this specific
episode was concerned, she said: “I don’t condemn the school principals,
they are doing what they think is right, the state is letting them, so it is
to blame as well; punitive measures are the only answer.”
A listener from Doboj would sack a principal not doing his job properly.
The radio host skilfully drew the callers into a heated discussion.
A listener in Bosanska Krupa cited the example of the principal renting
out the school gym, whereby the pupils could no longer use it for physical
education classes.
“I think you presented the topic well in the series. It’s disgraceful to
deprive the children, who are the future.”
“What are the ministers doing while the principals are laying waste, as
we here say?”
One caller wondered about the purpose of such shows, where all the
questions ended up and who was to provide the answers to them.
“This seems to be like a shrink’s office, helping the citizens vent their
anger. The BBC should do something so that these discussions have
effect, otherwise you will have wasted money.”
A listener from Tuzla was very satisfied with the show. “Thank God
someone remembered the children, to protect them... so much talent is
going to waste while the gym halls are rented out and we have no one
to turn to.”
Radio Kladanj had no callers, while the guest – a professor and municipal
councillor – tried to explain the topic comprehensively and highlight the
key problems and how they can be addressed.
Studio M in Teslić had two calls, one of them related to the topic. An old
man from Blatnica said the drama reminded him of the wrongs done to
pupils in Teslić.
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The journalist said there had been a lot of calls but that the callers had not
wanted to go on air. This indicates the low level of public awareness of how
media can be used to transmit its problems regarding the municipalities,
he claims.
Episode 7: “The Attic in the Basement” – 4 Radio Stations
The radio stations devoted the phone-in show after the episode devoted
to the building of additional floors on houses and construction of
apartments. While Magic Radio in Milići had no callers, although its guest
was an official responsible for the repair and construction of houses and
apartments, Radio Foča had nine excellent phone-ins. When the callers
omitted to ask about all of the relevant vital issues, the journalists would
raise the questions themselves and ask the guests to answer them. The
station thus served as the mouthpiece of the citizens.
Radio Pegaz in Trebinje had no luck either. Only two listeners phoned
in, but the guest, who was to have answered them, did not turn up for
the show.
The journalist was forced to play jingles and music, entertain the audience
and read out the phone numbers so they could call.
The Teslić Studio M radio show host skilfully and provocatively criticised
the municipal authorities with the intention of inciting the listeners to phone
the station up, but only one of them did. The journalist later said that there
had been many calls but that the callers had not wanted to go live.
Episode 8: “Powder Trick” – 2 Radio Stations
The chairman of the Farmers’ Association was the guest of the radio show
on the role of municipalities in investments in agriculture on BH Radio
1. He made critical remarks about the state’s farm policy and three
callers spoke emotionally and critically about the situation in agriculture.
Former farmer Habiba, now a refugee in Sarajevo, thinks farming has
been sidelined and urges support for the people protesting against the
situation in the field by sleeping in tents in front of the BiH Parliament for
months now. Zineta wonders why they do not set up a green market and
market locally produced organic food. “Trust me, they would sell it in no
time, I’d rather pay more for local produce.” Halil from Ilidža thinks that
the guest wants to become the minister of agriculture and that the people
in the tents are the victims of his ambitions. “He wants that ministerial
post, I know him personally, he was a meat technologist in the Petrinja
company in Gavrilović.”
The show host warned the callers not to mention names.
No one phoned in Radio Gradačac during the show on the same topic.
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Episode 9: “Youth Council” – 2 Radio Stations
Radio Pegaz in Trebinje and Radio Konjic attracted quite a lot of
attention of their callers with their guests and reports on youth activities
and NGOs focussing on youth. The audience in general found all the
discussions constructive and educational. The show focussed on the
extent to which the youth dealt with its problems, how well it co-operated
with the municipalities, how much help it got from the municipalities and
to what extent it itself was to blame for finding itself on the margins of
society. The callers in Konjic praised their municipal administration. The
callers in Trebinje, all of them women, criticised their own community and
said the youth itself was to blame for many of its problems.
Episode 10: “Return is Difficult” – 3 Radio Stations
The role of the municipality in resolving the problems of returnees and
their reintegration into mainstream life was a topic that aroused much
attention amongst the audiences of the Una-Sana Canton Radio in
Bihać, Radio The Best in Šipovo, while Radio Magic in Milići had no
phone-ins, just like after the episode on the repairs of and building of
additional floors on houses.
Only the poll conducted in the village of Žilići gave the show some colour.
The poll and the pre-recorded interview with the chairman of the Milići
Municipal Commission for Returns and Development formed a clear and
strong link to the episode broadcast before the show. The audience
of the Šipovo Radio The Best was extremely interested in the guest,
Dedo Bahtić, a returnee who had in the meantime become a successful
fish farmer. His appearance was a perfect add-on to the episode. Many
listeners phoned in and the callers praised both Bahtić’s entrepreneurial
and human qualities. The Bihać Una-Sava Canton Radio also succeeded
in arousing the audience’s interest after Episode 10 by its poll and the
extremely illustrative comments of its callers.
Episode 11: “Trick Box” – 3 Radio Stations
While Radio Nevesinje was phoned in by only one listener, Radio
Republika Srpska had quality contributions from callers living in Laktaši,
Srbac and Banja Luka during its show with a guest who spoke about
experiences with municipal counter clerks. They succeeded in painting a
vivid picture of the horrors of endless waiting in the counter halls, but also
cited the excellent headway visible in the Banja Luka Municipality although,
as opposed to the Laktaši Municipality, it charges extremely high fees.
The public opinion poll shed additional light on the positive and negative
features of the counter services in the Banja Luka City Administration.
The show on Šipovo Radio The Best was so interesting, that it went on for
55 minutes. A poet, a veterinarian and an ecologist gave their views of
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the difficulties in communicating with the municipal administration. The
Mayor was the guest of the show. The most colourful caller was a villager
from Vagani who presented his problems in verse.
Episode 12: “In the Registry Office” – 2 Radio Stations
On recruitment and downsizing of the administration, the clerks’ attitude
towards citizens, municipal administration job classification ...
Bosnian Podrinje Canton Radio in Goražde had a guest who had not
listened to the episode and, consequently, no one phoned in during the
show. This indicates the show’s host did not do enough to link the episode
and the topic of the show or animate the audience. He did so only once,
at the beginning of the show, and failed to remind the audience of what
numbers they should dial throughout the show.
Radio Stari Grad Sarajevo steered the discussion on the topic in a
professional manner, as a heated debate about the case of 58 dismissed
Centar Sarajevo staff developed between a dismissed employee and the
former mayor. This prompted many reactions amongst the audience.
Episode 13: “We are the Champions” – 4 Radio Stations
Legality of municipal administration operations was a topic that prompted
five listeners of Radio Zenica, three listeners of Radio Foča, two of
Sarajevo Radio Stari Grad and two of Mostar’s Radio Dobre vibracije
to go on the air.
Like the other stations, Dobre vibracije linked the topic to corruption.
Caller Željko thinks the radio drama has similarities with Mostar “everyone
takes a bribe here, from the cleaning lady to the Mayor”.
Radio Foča’s caller is of the opinion that the construction of the town
square was an opportunity to launder money, while both listeners of
Radio RSG Sarajevo think that corruption is widespread in municipalities.
“There is corruption in the administration bodies, you set the episode in
a municipality, but I think it pertains more to cantons, because they are
responsible for projects and targeted by donors.”
“The choice is either to grease someone’s palm with 200 KM or wait for
a document two years. Everyone knows that’s how it’s done in the court
in Sarajevo, but no one is willing to talk about it, because you need the
document urgently.”
Two callers from Zenica praised the Mayor’s openness with the public and
efforts to fulfil his election promises. One of them wanted to voice his
opinion about corruption and said that “there is corruption, in the interest
of individuals holding topmost government positions”, but praised the
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Zenica administration because “they have always been fair, especially the
clerks at the counters; we don’t have major corruption in the city”.
Episode 14: “Everyone Has Garbage” – 3 Radio Stations
Radio Nevesinje’s audience was more active on the topic of waste
management and environmental protection than the listeners of Radio
Busovača and the Bosnian Podrinje Canton Radio in Goražde. None
called the latter two, although the show’s guests - the Mayors of Foča
and Goražde and the Director of the Busovača Public Utility Company
– harshly criticised the communities for exacerbating the situation in the
municipalities by disposing of garbage at sites not intended for waste
disposal. Radio Nevesinje received three extremely useful questions on
the insufficient number of garbage containers and the safety of drinking
water and received satisfactory answers from the Head of the Public
Utility Police.
Episode 15: “Concert” – 2 Radio Stations
The topic on culture prompted only one listener of Radio Foča to call
up and ask about the work of the local cultural society Prosvjeta, while
Radio Osvit in Zvornik had three live phone-ins and one poll.
The calls were extremely critical and focussed on the community’s need
for cultural institutions, cinemas and culture halls, above all. A large
number of listeners said what they thought about the drama series in a
poll conducted by the Zvornik radio.
“I listen to your show regularly, every week, you have real life topics,
regarding the lives of us ordinary people, young and old alike.... Both
the people who organised the programme and you who are broadcasting
it deserve credit. Unfortunately, it’s coming to a close. In the drama we
listened to, young people organised a concert and the money from the
tickets was to be spent on renovating the culture hall. Maybe we should
do that, too.”
“I’ve listened to your shows several times, they are interesting, I’m glad
the people can join in and say what they think.”
“It’s fantastic, bravo! I like it when everyone can say what they think
without someone stopping them.”
“I had the chance to listen to it a couple of times and I think it’s really
great. The topics are excellent, related to the work of the municipal
administration and it’s great the people have the chance to say something
they never had the chance to say before.”
“I’ve listened to the show; the topics mostly regard everyday lives of
115
citizens and reflect our reality. It would be good to keep it going because
these topics are what interests us.”
“I’ve listened to one show, it reflected our reality in a humorous way and
the citizens really do have a lot to say.”
“I never phoned in because I don’t like voicing my opinions publicly, so I
didn’t call. My friends have listened to the show and think it’s good.”
“Popular show on Radio Osvit. Extremely instructive, the work of the
municipal administration is part of our everyday life. The show on
corruption was interesting, the questions and answers were interesting,
although I think corruption has been on the decline recently and that the
municipal administration is getting better. “
“I’ve listened to several episodes, the situations and problems the citizens
face are interesting, the topics were presented well and can provoke us
into taking a more decisive stand on what we dislike about municipal
governance. I was once a guest of the show and I have phoned in, too,
and I would like to recommend to the citizens to join in and voice their
opinions, not only about the topic of the show, but about their other
problems as well. Don’t forget to praise, because praise can motivate
people to work better, but also criticise what you don’t like. My friends
discuss the show, not too much, maybe because of the time when it is
aired, but they like it.”
“The show is fantastic, I don’t know who thought of it first, I’d like to take
part in it, I speak Polish, but I’d like to ask: who to turn to?”
Main Findings
The radio drama series achieved the main objectives of the project. Most
episodes aroused the interest of the listeners, who asked the guests
about issues that interested them or voiced their own opinions.
Thus, they used the radio to state their opinions without fearing that they
would suffer any consequences.
The reason why there were not more phone-ins lies in the persisting fears,
relics of the past, when such actions were punished and the individuals
suffered consequences for speaking their minds.
The situations that the heroes of the drama series had found themselves
in, caused the reactions of the audience, of both the ordinary citizens and
the municipal staff, which were the most frequent guests of the phone-in
shows that followed the episodes.
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The higher the position of the guest was, the more interesting the phoneins were. Also, the attractiveness of the show depended on the skill of the
host, how well s/he conducted the interview with the guest and linked it
to the stories in the episodes.
The analysis of the content of 53 shows leads to the conclusion that
the series supported learning and that the audience could hear more
about the problems plaguing them and whom to turn to. The frequency of
phone-ins was mostly proportionate to the efforts the show host invested
in urging them to join in the discussion.
In their comments, the callers highlighted the importance of humour in
the series and the fact that it filled a large gap in radio dramas, which
rarely focussed on everyday life.
The audience recognised the topics were extremely important, that they
reflected the complexity and essence of corruption of both municipal staff
and ordinary citizens. For, corruption is never unilateral.
The audience, i.e. the callers mostly asked about and commented
corruption, the municipal staff’s attitude towards citizens, transparency, the
municipality’s role in education and misuse of school grounds, equality of
women, illegal construction, problems of youth; however, response was low
when returns were discussed, which is extremely surprising, or when the
shows focussed on investments in small businesses, agriculture or culture.
Apart from asking questions and making comments, the callers contributed
to the phone-in shows with their humorous presentations of the problems,
as the quotes in the preceding part of the analysis show.
Apart from phone-ins, Studio N Livno and Studio M Teslić also received
questions in writing from their audience.
The BBCWST team’s poll of the editors and show hosts of the radio stations
complemented the analysis of the opinions of the audience. Herewith
some of the answers to some of the questions the team asked.
A total of eighteen radio station staff polled, qualified the series as
extremely educational and informative, concluded that it had an excellent
reception in the audience and that it was useful because it enabled direct
contact between the audience and the municipal officials. Dražena Vidović,
who works in Radio Busovača, thinks the series will allow both the citizens
and service providers to treat each other with greater consideration in
the future. Danko Travar of Radio Zenica, on the other hand, thinks that
some callers had totally missed the point of discussion and used the
opportunity to criticise the municipal staff they did not like.
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The episodes on corruption and the Mayor’s first day at work were the
most interesting to the listeners of Studio N in Livno. “First Day” also
aroused the most attention amongst the audience of Radio Nevesinje and
Radio Busovača.
“Attic in the Basement” and “Everyone Has Garbage” were the most
interesting episodes to the audience of Sarajevo’s Radio Stari Grad.
Illegal construction, transparency and corruption were the most interesting
topics to the audience of Mostar’s Radio Herceg Bosna, while municipal
governance sparked the most interest amongst the listeners of Radio
Kladanj and Šipovo’s Radio The Best.
Counter halls generated the most phone calls to Radio Zenica, while Radio
BPK Goražde got the most calls when it discussed illegal construction. Youth
employment and corruption sparked the greatest interest amongst the
audience of Radio Kameleon Tuzla & Sarajevo, while the episode Powder
Trick i.e. a revival of farming through cooperatives, was the show that
most interested the audience of Radio Republika Srpska. The audience
of the Bihać Una Sava Canton Radio was the most struck by the episode
Hotel Bellevue and the listeners of BH Radio 1 by illegal garbage dumps
and construction. The attitude of the municipal staff towards the public
and code of conduct of elected municipal councillors aroused the greatest
interest of the listeners of Milići-based Magic Radio, while Radio Osvit
in Zvornik highlighted “We are the Champions” as the most attractive
episode, which covered issues of bribery, corruption and pressures on
municipal authorities.
The fewest calls were made with regard to topics the radio stations had
focussed on in other programmes before the series “A gdje sam to ja?”.
The BBCWST poll showed that the topics, which had not attracted the
attention of the audience, varied from station to station.
Apart from Studio N in Livno and Radio Nevesinje editors and show hosts,
staff of other stations said in the poll that the listeners had not sent their
stations written comments.
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Summary Analysis of Phone-Ins
Total
phone-ins
+
comment
comment
neutral
coment
+
-
First Day (1)
70
18
21
31
25,7
per cent
30,0
per cent
Transparency (2)
79
22
31
26
27,8
per cent
39,2
per cent
Women aren’t Meant to Help
Cows Give Birth (3)
54
22
17
15
40,7
per cent
31,5
per cent
Hotel Bellevue (4)
73
10
36
27
13,7
per cent
49,3
per cent
Miracle in the Province (5)
34
0
15
19
0,0
per cent
44,1
per cent
High School Rebellion (6)
45
2
25
18
4,4
per cent
55,6
per cent
The Attic in the Basement (7)
56
3
33
20
5,4
per cent
58,9
per cent
Powder Trick (8)
40
4
15
21
10,0
per cent
37,5
per cent
Youth Council (9)
58
8
24
26
13,8
per cent
41,4
per cent
Return is Difficult (10)
42
3
20
19
7,1
per cent
47,6
per cent
Trick Box (11)
84
29
29
26
34,5
per cent
34,5
per cent
In the Registry Office (12)
87
28
31
28
32,2
per cent
35,6
per cent
We are the Champions (13)
50
3
33
14
6,0
per cent
66,0
per cent
Everyone has Garbage (14)
81
9
55
17
11,1
per cent
67,9
per cent
Concert (15)
38
5
11
22
13,2
per cent
28,9
per cent
119
Part 3 – The Local Authority Conference
3.1 Conference Concept and Objectives
The conference was organised to provide additional training to municipal
managers in BiH and to create a forum where they could exchange
examples of best practice and discuss obstacles, malpractice, corruption
and the protection of human rights.
The vision was that improved understanding of good practice, particularly
in the area of accountability, will help these groups identify corruption at
a senior level and will also enhance the capacity of even the most junior
municipal staff to promote and protect human rights. The key to the
success of the conference was to contribute to improving the co-operation
between the three different ethnic groups in Bosnia and Herzegovina. The
CDRSEE engaged experienced moderators to steer discussions away from
dead-end arguments and instead towards constructive contributions. The
moderators were briefed beforehand with a comprehensive moderators’
guide, which provided them with a clear concept of the sessions involving
working groups and discussion topics.
The conference was also meant to develop a network of municipal staff
trained in good practice and thus, more able to respond to the needs of
their local communities. A total of 170 municipal employees in middle
management positions participated and discussed current weaknesses in
BiH municipalities and formulated recommendations for improvement.
The conference was opened by the Mayors of Sarajevo and Mostar and
the Deputy Mayor of Banja Luka, thus illustrating the high level of local
commitment to the event shown by local authorities. The conference included
plenary speakers and working group sessions, which were opened with the
popular radio drama episodes in order to facilitate debate on dilemmas.
The participants listed major obstacles to good governance, such as, the
lack of funding for modernising facilities and providing training for staff.
They also identified political differences as an obstacle to a joint approach
to installing an efficient administrative body. Despite the many obstacles,
some municipalities could act as good examples having installed help
desks, put citizen hotlines into place and removed corrupt civil servants.
The moderated working group sessions concluded with specific
recommendations which municipal workers considered useful in improving
the system and themselves. The recommendations clearly indicate that
there is high interest in training. The participants found it important to
receive further education on the actual meaning of transparency and
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believed that international experts should provide further training in
general. They proposed that study trips be organised to municipalities
that have been modernised and are functioning well, both in the country
and abroad. Municipal staff felt that stricter internal controls are necessary
and they encouraged regular opinion polls on municipal service quality in
order to receive feedback from citizens.
3.1.1 Welcoming Address
Nenad Šebek, Executive Director, CDRSEE, Thessaloniki
Before introducing Mr. Michael Docherty, who will open our gathering, I’d
like to share with you several notes I made after the pleasant dinner our
hosts organised for us in the restaurant last night.
Sometimes you wait for years to say something, and last night, while I was
listening to the music of 20 or 30 years ago, I remembered something and
realised I had been waiting for this opportunity for three decades: a chance
to address a gathering like this one, to say a few words to the people who
represent the first authorities I personally had to deal with.
I was applying for my ID in the municipality and the local police station
and I remember well how I had to return to the counter 5 or 6 times
since there was always some document I lacked. It was on that particular
occasion that I faced the fact that each of the many counters I was to
approach in the municipality had a small round window set very, very
low; it was through those windows that I addressed those that symbolised
the authorities to me, a citizen, I had to stoop, bow my back in order to
address the authorities as a citizen for everything. I was only 18, I was not
a citizen at the time, we addressed each others as «comrade», and, at the
time, I was not even aware of what I am telling you about now.
I only became aware of it 10 years later, while I was living in England
and could not stop wondering about the fact that there were no little
round windows which I had to stoop to if I wished to have the honour of
being spoken to by authorities, or having them maybe listen to me. I also
realised that the procedures for everything under the sun were simplified
to suit me – a citizen, a taxpayer, and that the person on the other side
of the counter was aware of the fact that as a civil servant, s/he received
a salary because I, as a citizen, was paying my taxes. I admired the fact
that in contrast to my Balkans, a civil servant in Britain is not regarded as
authority, but as someone in the service of citizens. And that being a «civil
servant» is not a privilege, but an honour, and above all an obligation.
Please do not take offence at what I said, I am reminiscing about what it
used to be like once, I am not talking about what it is like today. What it is
like today, and more importantly, what it is going to be like tomorrow, that
121
is why you are here now. All I can do is ask you to see to it that there is no
more bowing, neither physical nor figurative, tomorrow or ever again.
On behalf of the organiser, I wish you the will to hear out those whose
opinion differs from yours, the strength to critically review your own work
and the readiness to change yourselves and your municipalities. In other
words, I wish you all the best in your work.
And now I would like to introduce Mr Michael Docherty, Head of Democratic
Stabilisation and Social Development Section of the European Commission
Delegation to Bosnia and Herzegovina.
3.1.2 Keynote Address
Michael Docherty, Head of Democratic Stabilisation and Social
Development Section, European Commission Delegation to Bosnia
and Herzegovina
Thank you. Dear mayors, council chairmen and all distinguished guests,
thank you for your invitation to join you this morning. I would like to
congratulate the BBC World Service Trust (WST) and their partners for
organising this conference within the framework of the project ‘Our Town
Our Future’. Ambassador Humphreys has asked me to convey his regrets,
he was unable to attend this morning as he has other commitments in
Brussels today.
This project is appropriate for several reasons. First of all, it comes at
the time when the transformation of the BiH broadcasting service and
system into a genuine public broadcasting service, rather than a state
service, is nearing completion. The BBC, DfID and the EU have played
an extremely important role in this transformation, and as far as we are
concerned, we will continue playing it. I am extremely honoured to have
been invited to take part in this gathering of such a cross-section of
municipal representatives and I’m looking forward to participating in one
or two workshops later this morning.
The BBC World Service Trust, which I too, used to work for, is no stranger
to the challenge; it has trained journalists in programme production and
ethical standards in some very difficult places indeed.
This gathering addresses issues and problems arising in municipalities
and the performance of municipalities, i.e. the lowest level of government
closest to the citizens and impacting on people’s daily lives more than
state or entity governments do.
Our support to this country is not extended only through major
infrastructural projects; and Bosnia and Herzegovina will continue to
122
benefit from the funds of the European Initiative for Democracy and
Human Rights, both this year and next year.
We hope that the issues addressed here shall get to the heart of many
of the problems the society of Bosnia and Herzegovina faces today and
that this noble and unusual way of approaching them will help change
attitudes in the country. Before going any further, I should perhaps say
that in many respects this country is doing things right with regards to
human rights. Legislation is in place, basic UN documents and the CoE
conventions have been signed, freedom of expression is respected, the
press is free, TV and radio stations are operating, imparting information.
Nevertheless, I don’t think it would be very controversial to say that
there is a major gap between legislation and its implementation.
It is often said that the path to Brussels leads through Strasbourg.
Although this saying is geographically incorrect, it does indicate that there
is much more that needs to be done to join the European Union than just
draft a feasibility study. The electronic media once used to ignite hatred;
now they are to be used to heal wounds. In addition to large projects
such as this one, BiH NGOs can also apply with micro projects, costing
between 10,000 and 100,000 Euros. They can also apply with projects
worth more than 800,000 Euro at a tender that will open later this month
(November).
The two topics the Initiative concentrates on are human rights education
and training and rights of minorities.
And by the latter we do not mean constituent nations living in areas
where another constituent nation is in the majority, but Roma and other
non-constituent peoples. In my past life, I worked for a unit in Brussels
which was responsible for implementing this Initiative and that is why I
am extremely glad to see the implementation of projects that had been
initially submitted as ideas.
I have been in Bosnia and Herzegovina for 15 or 16 months now, I have
visited all the cantons, I have visited all the major towns of Republika
Srpska, as well as Brčko. During my visits, I have seen many good things,
but some bad things as well. I was struck by the dedication of many
mayors and municipal council chairmen working in their municipalities
and how they have been transcending ethnic and party lines.
NGOs have reported favourably about their relations with councils in
many towns across the country. One of the areas we are focusing on is
the Tomorrow project that we are co-implementing with the UNDP and we
hope the project will continue building on sustainable refugee return and
concentrate on building the capacity of municipalities. Implementation in
municipalities was one of the major successes of the project and I feel we
123
can regard the Tomorrow project as an experimental endeavour proving
decentralisation is possible in Bosnia-Herzegovina and that municipalities
are capable and willing to fully assume their roles and responsibilities.
The municipalities involved in the project have demonstrated their capacity
to design and implement complex integrated return programmes which
are in accordance with international standards.
We in the European Union are conscious that, while Europe can help, the
people here working on the project deserve the credit for success. The
association of civil society in Bosnia-Herzegovina and the citizens who
have genuine ownership of these societies is necessary if we wish these
activities to be sustainable.
I know that more subsidies are now allocated to non-governmental
organisations on the basis of objective criteria and project tenders. And
this project, preceded by the pilot project implemented in the Centar
Sarajevo Municipality, will now be implemented in other parts of the
country. But, we must be objective. No matter how good or bad a
government is in terms of percentages and numbers, it has been elected.
And the elected councillors account for their work to their electorates;
that is the qualitative difference between their position and that of nongovernmental organisations. And in the final analysis, decisions are
reached by the elected officials and not the NGOs although good advice
is always welcome. So, what I want to say today is what I have often
told NGOs in various parts of the country: the role of NGOs is to advocate
better services, compel politicians to meet the needs of citizens, take
their priorities into account when preparing and implementing projects,
and to do so in a clear and transparent way.
The civil society should therefore not take on the role of the local authorities
and start offering services, nor assume that NGOs are the only source
of democratic legitimacy. Partnership between these two sectors is really
the only way forward. I think the number of attendants today shows that
there is commitment to change in many areas and I would like to wish
the whole team involved in this project every success in this project,
which our Delegation in Sarajevo was following with great interest in the
recent months and will continue to do so over the coming months. I am
confident that the professionalism and dedication of the BBC staff and
their local partners will ensure that the conference is a big hit, and that it
will have multiplying effects throughout the country.
Thank you.
124
3.2 Municipal Workers are Citizens Too
3.2.1 Municipal Administration as a Gatekeeper for
Development Contributions:
Dževad Bećirević, Mayor of the Sarajevo Municipality Centar
Hello everyone. I must say I regret that each presentation can last only 15
minutes. This is a very serious topic, but I hope we shall further address
this problem, which so important for the functioning of the municipality,
through questions and working groups.
I would first like to take you through the municipality and give you the
basic data about the setting in which the Centar municipal administration
works. I will try not to speak only about the Centar Municipality, but also
to compare it with other municipalities. The Centar Municipality has about
70,000 inhabitants and works in 13 departments, which I shall elaborate
on later. It has so far received 18 international awards for quality of
service. It is very important to point out that over half a million people
use our services, most of them in the counter hall, referred to in the
‘Welcoming Address’. That hall is the mirror of every municipality, and the
whole municipal administration needs to invest every effort to make as
much headway as possible there and to be as polite as possible so that
citizens leave with a positive impression of the municipality.
The Centar Municipality represents the administrative, economic and
business nucleus of the State. Nearly all state institutions, embassies
and consulates, banks and major companies are headquartered in it.
Maternity wards, hospitals, colleges, and high schools are situated there,
so it is clear how many people circulate through this part of the city. The
Centar Municipality realised there were deficiencies in its work and that
it was disorganised. It began preparations to attain the ISO Standard
9001 certificate, and, on 15 April 2003, it became the first municipality in
Bosnia-Herzegovina to obtain this quality management system certificate.
Ten or so municipalities have since followed suit; I met their mayors or
other representatives in Neum today.
After introducing ISO standards, we divided the municipal administration
into 13 departments managed by a Secretary and Mayor. The Municipal
Board comprises 15 officials and I think it significantly reduces the once
excessive number of managerial positions. We are now drafting a rulebook
on internal organisation and further downsizing may follow.
The principles by which Centar Municipality operates are based on the
essence of ISO Standards 9001. Those who have the certificate will know
what they are. The first principle entails a focus on the users of services
and I think it is the key to everything. The administration staff must
125
understand that they are there for the citizens, and not vice versa, as had
been the case before. The Centar Municipality used to be open to citizens
twice a week from 11 am to 1 pm. Now, all staff are obliged to receive
citizens at any time from 7:30 a.m. to 4 p.m. every day and in this way,
show they are at the service of the citizens.
The second principle is leadership, followed by full staff participation.
Regarding leadership, we must pay attention to staff motivation.
However, the Law on Civil Service does not address the issue; it needs to
be considered more deeply and the legislator needs to be influenced to do
something about it. Under the Law, you can neither reward nor penalise
staff; staff motivation is, therefore, almost impossible.
Full staff participation: the process approach
It means that certain activities in the municipality are managed by process,
and the set of processes constitutes a single municipality administration
system. The sixth principle regards continuous improvement. It means that
every organisation that has the ISO Standard 9001 Certificate is obliged
to make specific improvements in all segments within one calendar year
and between two external audits by a certified auditor. Therefore, once
you attain an ISO Standard Certificate, you cannot remain at the previous
year’s organisational level, you have to make some improvements, even
minor headway.
Fact-based decision making
It entails gathering various kinds of data. The data are analysed,
conclusions are drawn from them and the next steps decided on. And,
Principle 8: partnership with suppliers, not only with primary suppliers
(of materials or services), but also with NGOs whose projects we fund
during a financial year.
Quality policy of the Centar Municipality
If you take a look at the text of the policy, you will see we are aware
that headway in economy, culture or other areas depends on the Centar
Municipality staff. That means we put the employees first. Of course, you
can have great financial resources, but you cannot achieve good results
unless you have enough trained administrative staff. The quality policy in
our municipality entails that all employees do their work in accordance
with the law, professionally, in an open and pleasant manner, responsibly
and reliably. Sarajevo was qualified as politically neutral on 1 November
2005; indeed, municipal administration is no place for politics. The
municipal administrations which respect this last point and are politically
neutral, will yield better results than those where politics interferes too
much in their work.
126
Our objectives:
- Provide an efficient service through rational use of available resources.
- Fulfil tasks,
transparency.
ensure
professional
equitability,
openness
and
- Continuously abide by the quality management system – twice a year
we have internal audits and once a year an external audit. The audit
is performed by the Slovenian organisation SCQ. In order to receive
feedback on the work of our administration, we ask our users to complete
a questionnaire. In March 2004, it included some 15 questions, which can
be completed online, at the counter or via a special hotline. Some of the
results are outlined here:
•
•
•
•
63 per cent of the service users say that the Centar Municipality
recognises, cares about and tries to meet their needs and
expectations;
81 per cent of the users are satisfied with the setting in which the Centar
provides services;
73 per cent of the users are satisfied with the promptness and
completeness of information provided by Centar Municipality
staff;
61 per cent are satisfied with the level of professionalism.
We aim to improve these results each year, even if that is only by 1 per
cent, to sustain the trend of progress.
I will now tell you about the other areas the municipal administration deals
with, from infrastructural development, work with national minorities to
work with youth… It covers a broad scope of activities and I am glad to
say that good results have been achieved in all areas.
There has been a lot of investment in infrastructure and beautification of
the facilities, because a large number of people circulate and important
business is conducted here. People investing in a business want to
have nice surroundings, and much has been invested in parks, streets,
sidewalks and so on.
It must be mentioned that two years ago, the Centar Municipality invested
1.5 million KM in the construction of a modern Roma settlement and 30
Roma families now enjoy perfectly good living conditions. Furthermore,
a Youth Home was established at Gorica, and one room was allocated
to the Roma Association. We also want to start a library in the Roma
language and integrate this national minority. That’s why we earmarked
20,000 KM this year, for one-off aid to Roma children regularly attending
one of the 11 primary schools i.e. to a total of 102 children.
127
Now I will tell you about the changes in the internal organisation that
used to be ineffective. We reduced the number of employees from 307
to 218. We downsized staff by 30 per cent over a multi-year period,
by some 90 staff, releasing up to 1.5 million KM per year that are now
used for modernising the administration and other capital facilities and
stepping up the development of the Centar Municipality.
Doubling share of staff with university degrees
We are constantly accepting volunteers with various qualifications,
mostly lawyers, social workers and architects, but we at all times have
25 volunteers with university degrees who are in this way gaining their
first work experience, and, indeed, there is a lot they can learn in the
municipality. We are satisfied with them as well, so the satisfaction is
mutual. This is good practice and I can recommend it to other mayors, to
give young people a chance to gain their first work experience. We have
to intensify staff training programmes, which we are obliged to meet ISO
Standards 9001 as well. Every department is continuously obliged to
undergo training at seminars throughout BiH and Europe.
What I have left for the end is very important and this is the first time
someone is publicly mentioning it: a working group of experts formulated
strategic goals in a document entitled «Strategic Plan of Local SelfGovernment Development in BiH». The Plan is a vision of the development
of BiH, i.e. municipal administration, until the year 2020. It is called “New
Local Self-Government – New Quality of Life in BiH”.
What is it about?
A year ago, in Banja Luka, we set up a partnership group comprising 9
municipalities and 5 NGOs that have good practice and I am inviting the
other municipalities to join us too. I think it was a good initiative. The
strategic goal of future development is to achieve substantial functional
decentralisation, enabling and stimulating balanced local community
development.
I would like to draw one more conclusion about the Centar Municipality
administration. Although it now operates at a respectable level, I am not
satisfied yet, since we can always do more and do better. I hope other
municipal administrations will reach this level of organisation. I take this
opportunity to offer our help, so that as many municipalities as possible
in BiH have the best possible administration, as they will thus help our
citizens solve their problems faster and more efficiently. I also have to
mention that our Municipality has been visited by over 100 municipal
delegations from throughout BiH in the last 2 years and we were always
happy to be able to assist.
128
Jasmin Komić, Deputy Mayor of the Municipality of the City of
Banja Luka
The problem all of us face is omnipresent and multifaceted.
I shall start by pointing out that the local authorities, i.e. local
administrations, are the ones that face the human and social problems in
their local communities directly; they are the ones enforcing the law and
other general enactments in accordance with which citizens realise their
rights and assume obligations. And the citizens expect the highest quality
of service from them; they expect to participate in reaching decisions of
interest to the local population in all walks of life.
As we this year mark the 20th anniversary of the Charter of Local SelfGovernment, commonly regarded as one of the most significant Council
of Europe documents, a document, comprising the basic principles of
local democracy. It is necessary to point out that, despite the declarative
acceptance of its provisions, the application of its fundamental Article on
the funding of local authorities enabling them to assume the role of local
community development has not been ensured in Bosnia-Herzegovina.
Another problem related to local community development and aspects
relates to the lack of clearly defined provisions on funding of local
communities in terms of the introduction of VAT. This is a very important
and very sensitive issue, because such an approach renders the planning
of budget revenues and, thus, development planning, impossible. Besides,
misallocation of resources can on the one hand have strong adverse
effects on the motivation of undeveloped municipalities to develop faster
and, on the other hand, such allocations can considerably hamper the
development of municipalities with higher development trends.
Local communities get a negligible share of revenue from various taxes,
fees etc, collected (which form the budget of Republika Srpska). Only a
small share (between 8 per cent and 35 per cent) of 16 out of 73 various
types of revenues collected in Banja Luka, are allocated to the city budget.
If the local communities received a larger share of the revenues, the city
and municipal budgets would be able to earmark more for development.
The insufficient material and financial resources of local governments must
be increased and must conform to the guidelines of the European Charter
of Local Self-Government; this would help implement the fundamental
idea of local self-government – that citizens independently manage and
decide on local affairs.
The Banja Luka city government is committed to a modern administration
that will truly serve the citizens. That is why it introduced a quality
management system in accordance with ISO 9000 standards in the
work of the city administration. The vision includes establishing a high
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level of quality management system as the administration’s strategy:
to continuously improve the quality of service by respecting European
standards and applying new knowledge and technology in this area.
The main goals of the quality policy comprise:
Ensuring stable growth of the gross national product (GNP) through
increasing investments and employment;
Developing small and medium-sized enterprises;
Developing social activities and public utility infrastructure;
Improving the efficiency of the city administration by faster
accomplishment of tasks and more efficient monitoring
and accountability;
Improving the quality of life of citizens and other users by
organising public services and city administration departments to
meet their requirements;
Improving regulations and decrees and consequently city
administration operations.
The fulfilment of the above goals will simultaneously reduce and even
eliminate abuses of power and position, i.e. corruption and other
adverse phenomena that may undermine the citizens’ trust in the local
government.
Economic development plays an important role. It is not a formal, but
rather the essential prerequisite BiH needs to fulfil on its way to European
integration. Moreover, local economic development is its natural and
inseparable part and ought to be fully within the jurisdiction of the local
communities, i.e. cities and municipalities.
Local communities face a series of constraints which hamper creative
guidance and render the intensification of economic development
impossible. The following constraints are especially prominent:
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Cities and municipalities do not own property; therefore, the local
communities cannot play the central role in economic events, nor
have access to development credit arrangements or play an
intensive and active role in investments. On this issue, we should
consider a different constitutional approach;
Cities and municipalities either cannot or have extremely limited
capacity for public borrowing needed to sustain their macroeconomic stability in funding various development or other
projects. These restrictions on borrowing are imposed by law and
do not depend on the communities’ financial credibility;
One of the fundamental resources - urban building land - ought
to be in the function of local economic development;
Lack of sufficient influence on activities of strategic companies
and other economic potentials;
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Lack of influence on the privatisation of state capital, especially of
public utility companies although the local community is legally
obliged to provide public utility services.
We in Banja Luka and the other local governments are obliged to provide
services, such as heating under the Local Administration Law. The
Government of the Republika Srpska holds the title to the heating plant,
because the state owns the majority share of the plant. So, on the one
hand, the city, which is obliged to provide heating, does not own the
heating plant, while, on the other hand, the Government, which is not
obliged to provide heating, owns the plant. This is a major problem and
there are similar problems in other areas as well.
The local community has no jurisdiction over institutions such as specific
institutions at the entity level, for example, the Geodetic, Property and Legal
Affairs Bureau, i.e. there is a need to decentralise the functions. Finally,
specific legal provisions, such as those on registration, public procurement,
etc., considerably complicate and prolong various procedures.
I would like to point out another problem, the lack of conformity: Republika
Srpska has a Law on Local Self-Government but the Federation does not.
This inevitably leads to different statuses of local self-governments and
directly reflects on the living and working conditions and business in the
two entities.
Efficient strategic planning and the elaboration of strategic development
plans have not been coordinated sufficiently in terms of methodology and
dynamics both at the entity and state levels. In other words, a methodology
for formulating strategic development documents needs to be defined
and coordinated at the level of BiH. The same applies to dynamics. We
would then have prerequisites for a balanced and congruent approach to
development; this could have additional synergetic effects and directly
impact on efficient strategic planning at the local level.
Another problem is the lack of reliable statistical documentation needed
for a proper analysis of all aspects, demographic, economic and others.
It is necessary to establish high quality databases, such as registries
of the population, households and other dwelling units, main registries,
registries of companies and agricultural firms…. All these databases need
to be transparent and accessible to enable analysis that will facilitate
valid decision making. It is especially important to ensure dissemination
of statistical data at city and municipality levels; that would enable
comparative analyses. We do not have that now.
Cities and municipalities need to continue finding ways to form credit
guarantee funds and specific types of financial institutions. Notably, city
savings banks could support small businesses, and, as opposed to banks,
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commercial profit would not be their chief criterion; their criteria would
be based on the main strategic and operational goals formulated in the
local community’s development plans. This would help create jobs, in
view of the fact that unemployment is the gravest problem in BiH. I think
that we, as municipal staff, face this problem every day, since most of
the citizens who turn to us are actually looking for a job. Transferring
good practices and experiences from one municipality to another, and
I hope that this meeting will contribute to this process, like the BICOM
scheme and others, is a worthy endeavour, especially when it comes to
developing new and different programmes. In this respect, it is necessary
to consolidate partnerships between cities and municipalities in BiH and
those in developed countries, especially in countries whose transition
was similar to ours and has been successfully completed. Similarly,
regional integration and sound social plans give impetus to and facilitate
development and efficient strategic planning.
Of course, we must not forget that there are quite a few internal weaknesses.
I would only like to point out that the rational implementation of the
policy on utility taxes and fees, management of resources, especially
urban building land, are strong levers that could prove extremely
helpful in that respect. On the other hand, it is of utmost importance
to provide local communities with systemic prerequisites allowing them
enough manoeuvring space for internal restructuring to achieve greater
efficiency. As far as development is concerned, the local communities
need to establish their own levers of development, inasmuch as the law
allows them. In other words, local communities do not enjoy the status
in which they can affect the business environment and create a positive
atmosphere for investments and economic development – that is the goal
we should strive towards in all future legislative reforms.
Under the present laws, local communities can partly stimulate private
entrepreneurship et al. In Banja Luka, we have set up the City Development
Agency, the Rural Development and Improvement Centre, the Tourist
Organisation and other organisations, since that is a way to spark the
interest of the academia, expert public, businessmen and everyone else…
to focus their activities on what we call development.
Involvement of NGOs, their partnership with local community institutions
on various developmental issues are another strong source, of both ideas
and opportunities arising from the broad scope of activities covered by
the NGO section. We in Banja Luka have succeeded in engaging a wide
range of individuals by our practice of funding good NGO projects. I think
that this should be the goal of all processes of democratisation and the
creation of civil society.
I have often come across the expression: “It is not important how much
you have, but what you do with it.”
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I have rephrased the expression somewhat: “How much you have is not
unimportant, but, of course, it is more important what you intend to
do with it.” This is why I think efforts should be invested in upgrading
economic activity which will result in better and stronger local economic
development, and hence, facilitate progress towards the European
Union.
The task ahead of us is obviously not easy at all, the constitutional
provisions obviously refer to us only in passing; and, we are obviously
focussing mainly on the citizen. A balance must be struck in that sense,
at least to allow us to influence development by active involvement. Only
then can we be a gatekeeper. I think our possibilities are limited at the
moment. I think there is a lot of scope, especially in the reform processes
called decentralisation, and which are heading in the opposite direction,
to allow for what we have talked about.
Ljubo Bešlić, Mostar Mayor
Ladies and Gentlemen,
Even though it is a nice day outside, we shall spend our time in here,
discussing ways to improve the efficiency of local authorities. However,
I don’t believe that this will be time spent in vain and I am sure that in
our discussions, we will identify the problems we confront in our work on
a daily basis.
I would first like to refer to an essential issue raised by Mr Šebek in
his Welcoming Address, about citizens not bowing before the local
administration. We must understand that we are in BiH, a state which
wants to be integrated into Europe, and must thus organise itself on
new principles. As a state, we have signed certain agreements with the
Council of Europe, various human rights documents… In any case, the
municipal administration must be a gatekeeper for development; leading
both the citizens and all of us working in administrations and municipal
authorities towards a better future.
I would just like to recall that the right to local self-government is definitely
one of the fundamental determinants ensuring the highest standards of
human rights and freedoms. How a community functions depends on how
its local self-government is organised; how the latter operates reflects
both on the economic development of the community and the strength of
its civil society. I would like to recall that local government is operationally
the closest to the citizens and that communication at this level is the most
direct. Our work and how we approach it are reflected in our contact with
citizens and bad local administration gives the whole state administration
a bad image. We are the mirror of administration at all higher levels.
Municipal administration is an executive agency managed by a mayor,
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who is the person held responsible for the administration. If we wish to
have an effective, functioning administration, it must be based on specific
principles and all vital elements must be taken into consideration.
We know that local government has a tradition and continuity, both in BiH
and the rest of the world; looking back, we see that people know how to
organise local self-governments. The capitalist model differed significantly
from the socialist model in which a strong local government denoted a
strong state. Nowadays we have a completely different situation. We
must be a service for the citizens, we must respect the taxpayers who
pay our salaries, i.e. we must respect all citizens. We must respect the
money that they contribute, and we must create a service that will meet
all their needs. For an administration to guarantee development, it must
be organised on some fundamental principles, and I will thus highlight
some important issues.
First of all, the laws and regulations implemented by the municipality
and adopted at higher levels must be applied. The administration must
be capable of drafting specific high quality plans and carrying them
out. The administration is also the body that drafts all municipal council
decisions and its work mirrors the work of the local authorities on the
whole. The administration must be able to manage specific bodies,
facilities, institutions, companies and throughout, respect the human
rights of the citizens in the local community; it must also cooperate with
ombudsmen in accordance with the Constitutions of the FBiH, the RS and
BiH. The computerisation and equipping of an administration, as well
as the evaluation of its performance and addressing its deficiencies all that is doubtlessly very important for the proper functioning of an
administration, for it to meet the citizens’ needs in the shortest possible
time. We are the ones who have to initiate this cooperation between the
citizens and the administration and highlight specific problems in our
contacts with non-governmental organisations, local communities and
directly with citizens.
Administration is a living tissue that needs to adjust to the given
circumstances and situation. I do not think I need to add anything
special here, only that administration must be based on the principles of
cost-effectiveness, transparency and accountability. As Mayor, I must be
aware that I am held responsible for how the taxpayers’ money is spent
and whether it is spent economically. To prove that this is the case, our
work must always be completely transparent and every single citizen
must have access to such information.
Furthermore, the administration must be subject to internal auditing, which
is an integral part of good administration. A contemporary administration
must be built on these principles. Performance cannot be excellent without
independent internal monitoring of both the administration and NGOs and
some independent bodies operating at the municipal level. It is of utmost
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importance that this monitoring is completely unbiased and identifies all
the deficiencies and thus advises mayors how to eliminate them.
The administration’s main problem concerns staffing. Municipal
administration employees have direct contact with citizens on a daily
basis and they are the ones who create the impression that the citizens
have of the administration. Therefore, when recruiting, we must recruit
qualified staff; staff with experience, staff that will be continuously
trained. Moreover, administration staff need to reflect the ethnic makeup of the population it serves.
De-politicisation is another very important issue. If you wish to provide
a high quality service, your civil servants must not be politicised or
susceptible to political influence. Mayors are selected by the political elite
and they implement specific political decisions. In my opinion, direct
elections for mayor are very important, and certain standards have been
achieved in that area, except in the cases of Mostar and Sarajevo, where
they are appointed by the municipal i.e. city council. However, I think this
too will change and that the procedure will be harmonised throughout
BiH.
Involvement of citizens in local self-governments is relevant from the
viewpoint of civil initiatives and ensuring communication with citizens in
various ways. BiH has not yet resolved the issue of the so-called “mjesne
zajednice” - local communities (hereinafter MZ), the traditional form of
civil involvement in local self-governments. Laws have not resolved the
problem in my District. These communities are a relic of the past and
people work there in the same way as they once used to, but the law does
not regulate the issue. All this leaves a bad impression on the citizens.
I shall mention a few more issues. Municipal administration must be public
and protect public, not private interests. And it is the responsibility of the
Mayors to ensure this; they must take the remarks and suggestions of
citizens into account and act in their interest. But, whilst all this sounds
good, it is not the reality, and I will now outline how we reorganised the
Mostar City administration, which I head and know a lot about.
By amending the City Statute, the city of Mostar was reorganised in the
following manner: six municipalities were merged into one municipality
– city and we then encountered a series of difficulties. However, it is
important to remember that it was the first process launched at the local
government level; it was painful and costly.
Having made the decision to reorganise, the City of Mostar faced the
task of uniting 6 city municipalities into one single city administration
operating in accordance with European norms. These norms prescribe that
there should be one civil servant per 375-500 users. We were assisted by
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Mr. Norbert Winterstein, who helped draft the City Statute, organise the
administration and apply the set norms, under which administration is to
have 224 staff, plus the Mayor.
The administration presently employs 674 people and many people stand
to lose their jobs. That is a big problem; it is a social and political issue.
We are here dealing with the lives of real people and not everything can
be done at once. Therefore we in the City of Mostar have reached political
agreement - to reorganise gradually, over the next 5–7 years.
The first step is to implement the political decision to reduce the
administration to 398 employees. The High Representative assesses
that the best qualified people must be hired for positions in the new
administration. Mostar is organised like Heidelberg, our partner city, i.e.
in accordance with Western norms and standards, and the conventions
that have been signed. This is why I often say that Mostar is going to
spearhead Bosnia’s movement towards European integrations.
However, I am facing a series of difficulties because the large number of
staff, who are going to lose their jobs, are creating problems. Addressing
their concerns and cooperation with the trade union are not simple at all.
We have been involved in the process for a year now and we are not even
half way there yet. In addition to the disorganised city administration,
Mostar also faces other difficulties, like the separate institutions we are
merging at the City level. To date, we have merged the social centres,
old people’s homes; we are trying to solve the problems related to the
merging of public utility companies - one of which has gone bankrupt and so we have postponed the merging until the bankruptcy proceedings
are completed. We have solved the issue of water management and I
have to emphasise that the situation is difficult because the process of
merging and creating a single administrative body involves downsizing in
these areas as well. We have reached political agreement as we wish to
solve the problems, but all this requires a lot of money. Under the Law
on Civil Service, we must abide by certain norms during downsizing. As
far as our financial obligations are concerned, we are obliged to provide
severance packages. But that is not always the way out, because people
are dissatisfied, they want to keep their jobs and the new administration,
which has been only partly established, is forced to address the issue. We
have just had the swearing in ceremony, we have a number of vacancies,
but the painful process will ensue after the New Year, and this is a problem
we will focus on very much in 2006.
This was a short overview and we can clarify issues during the
discussions.
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3.2.2 Professional Skills, De-politicisation and Improving
and Reforming Local Administration
Adnan Bešlagić, FBiH Association of Cities and Municipalities
Presidency Board member
I want to welcome all the participants. I am going to speak on behalf of
the Association of Cities and Municipalities of FBiH, together with Mr Štitić,
the Secretary General, and Ms Vesna Travljanin, the Executive Director of
the Association. My position is that of an adviser, expert consultant.
Our goals coincide with those of today’s gathering, to improve local
self government, notably: to improve administration as an extremely
significant part of the overall constitutional and legal system of BiH, or, to
resort to the terminology of the Venice Commission, local self-government
at the entity level. On this occasion I want to criticise the phrase in the
Venice Commission report, because it limits local self-government to the
entity level.
Local self-government is an exceptional field, directly linked to the
constitutional system and all annexes related not only the field of human
rights, but to everything we imply under European and international
standards. That is why local self-government needs to be placed properly,
at the level of BiH, and not only at the entity level. And that is a point I
would like to make.
I was also assigned a topic entitled «Professional skills, de-politicisation
and improving local administration». It is a very complex matter and, as
I only have 10 minutes, I want to use them the best I can.
With regards to professional skills, we all immediately understand what
that means. Laws and regulations, notably the Federation’s Law on
Organisation of Administration Bodies, which gives a general definition of
administration in the Federation, cantons and municipalities, very clearly
outlines the administration and officials in charge of it, and the Mayors
are the officials in charge.
We have heard here a lot of data and details about the Centar Municipality.
Incidentally, I want to mention that I live in the Centar Municipality. It is a
city municipality, but not a typical one, and it would be more interesting
to hear about a typical municipality that has more features in common
with the other municipalities. I remember the Centar Municipality before
the war, 27,000 members of the Communist Party lived there, the largest
number in BiH, I am talking about the span of the municipality. I do not
want to go into politics, I am merely trying to move onto the following
topic, the matter of de-politicisation.
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I intend to explain this topic by reference to three enactments and specific
provisions: to two Laws and a Code of Conduct for civil servants (integral
part of the Council of Ministers’ Recommendation R2010). I would first like
to quote Article 4 of the Federation Law on Organisation of Administration
Bodies which explicitly says that the work of public administration
bodies is based on the principles of legality and transparency, openness,
accountability and efficiency, good governance, professional impartiality,
political independence, unless otherwise provided by the Law.
Legal provisions correspond to the goal: professionally trained civil
servants. But I am also talking about the professional qualifications of
mayors. We are talking here about the qualifications of the staff, and
the administration starts with the municipal mayor, who symbolises the
executive, independent from the administration, of the staff applying
the law and whose skills we are always talking about. My question is:
how qualified are our municipal mayors for carrying out the duties of
their posts? And second, a municipal mayor has full executive capacity.
Municipal mayors are like city mayors and are even trying to assume
more power than they are entitled to. They have very much power, and
notwithstanding the fact that they are elected, what guarantees are there,
that they will carry out their duties with quality and professionalism? This
issue remains open.
What does de-politicisation of mayors entail? Do you remember Mr. Milan
Kučan, a party leader in Slovenia, who became President of the country?
After winning the elections, he returned his party membership card and
said he would not be a member of any party while he is president. When
talking about de-politicisation, we must talk about specific concepts.
Different states deal with the issue in different ways. We need to find
out what kind of de-politicisation suits our country best. At the moment,
considering the public’s prevalent negative views of political parties, we
should strive towards conceptual and full de-politicisation. How would
that be mirrored in the municipality? By the elected mayor returning
his party membership card. I am saying this as a citizen, in view of the
mistrust of municipal governments and mayors.
De-politicisation of municipal services
This has been partly resolved in terms of concept. There is a limit to
their political involvement. Human rights conventions allow political
association and membership in party leaderships. We have partly accepted
the provisions, because administration body representatives cannot be
members of party leaderships.
But that’s not the essence. The essence is that municipal bodies operate
in accordance with laws and codes. Professional skills entail excellent
knowledge of regulations because municipal staff must apply regulations,
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perform inspections and answer questions from legislative bodies or the
Municipal Council. However, the staff is inadequately paid. Therefore,
there is the issue of more equitable remuneration of municipal staff in
some undeveloped municipalities which cannot afford to pay experts in
those areas.
Anton Štitić, FBiH Association of Cities and Municipalities
Presidency Secretary General
Ladies and Gentlemen, since Mr Adnan Bešlagić, Member of the Association
Presidency Board presented our Association, I would like to address the
issue of the “Local Self-Government System Reforms” - the constitutional
and legislative pre-requisites for the autonomous, efficient functioning of
the local authorities.
I will briefly outline my observations and update you on all the activities
under way.
By reforming its social and political systems, BiH, with its two entities, has
embarked on the democratic transformation of its social and state order,
respect and protection of human rights and freedoms and introduction of
the rule of law.
The territorial autonomy of city and municipal communities is extremely
important and indispensable for the democracy of any state system and,
in general, for consolidating peace and cooperation in Europe.
In addition to natural and fundamental human rights (the right to freedom,
life, property, security) citizens also hold specific political and civil rights
in local democracies. This set of rights and freedoms ought to be fully
realised in a local democracy. A local community, based on an agreement
of citizens to protect and preserve human rights and freedoms, contributes
considerably to the establishment of a new democratic society.
Local democracies play an important role in the systems of European
countries, and the very definition of local self-government in the FBiH
Constitution as an autonomous part of the political system constitutes
the basis for the legal elaboration and regulation of the concept and
definition of local self government.
Democratisation and parliamentary democracy are taking root in the BiH
Federation on the basis of mutual tolerance and understanding, respect
and equality of constituent peoples in a multi-ethnic, multi-cultural and
multi-lingual environment.
Every constituent nation wants to ensure that their tradition and
participation in the economic, cultural and spiritual life of the country are
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preserved in accordance with the principles of democracy and that political
authority is exercised by the people vested with supreme authority.
The current reform of the legislation and its harmonisation with the
European Convention on Human Rights and the European Charter of Local
Self-Government is expected to enable reorganised local communities,
cities and municipalities to ensure a life together in keeping with the
historical tradition of coexistence and respect of diversity of our peoples
through democratically elected bodies.
When drafting laws, the
Federal (and in particular) the cantonal
authorities (both the government and the ministries) do not respect the
European Charter of Local Self-Government, especially the provision
that “local authorities shall be consulted, insofar as possible, in
due time and in an appropriate way in the planning and decisionmaking processes for all matters which concern them directly”,
nor do they acknowledge that the association of local authorities is a
legitimate representative of local authorities protecting and supporting
their common interests.
In accordance with the appeal of the CoE Forum and after the conferences
in Sarajevo, Prijedor, Srebrenica, Mostar, Novi Travnik, Brčko and Banja
Luka, the Associations of Cities and Municipalities of FBiH and RS, have
begun to take into account the new role of citizens in connecting and
consolidating civil society on the values of human rights protection and
democracy and have launched the following initiatives:
•
•
•
•
To establish local democracies in accordance with European legal
standards and the European Charter principles;
To develop and improve the constitutional concept of the local
administration system and its originary powers and material and
financial autonomy;
To develop the Association institutions to protect common interests
and participate in formulating national policy and drafting laws
directly related to local democracies;
To establish the municipalities as gatekeepers for citizens,
independent and autonomous communities that can independently
collect revenues and fund public expenses.
The FBiH Association of Cities and Municipalities has been a member of the
Congress of Local and Regional Authorities since 1994 and launched an
initiative for constitutional and legal reform of the local self-government
system when the procedure of BiH’s accession to the CoE opened. The
initiative to amend the Constitution was accepted by the FBiH Parliament’s
House of Representatives as grounds for amending the FBiH Constitution
provisions regarding local self-government.
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The CoE, which has developed binding conventions and charters on
human rights and local democracies, has highlighted ethnic, territorial and
financial problems and the deficiencies in the organisation of the society
and the authorities. Its Committee of Ministers has laid out requirements
in regard to local and regional democracies and recommended the
necessary constitutional, legal, organisational and financial reforms.
In cooperation with the Constitutional Commission of the FBiH Parliament’s
House of Representatives, democratic institutions and organisations,
and with the active participation of CoE legal experts in the Legal Affairs
Directorate and the Venice Commission, the Association has over a fiveyear period drafted amendments to constitutional provisions relating to
local self-government, the Law on Civil Service, the Public Income Law
with special focus on the status and position of the municipal councils and
the mayors.
In accordance with the CoE appeal and after the conferences, consultations
and round tables in Mostar, Sarajevo, Banja Luka and Novi Travnik, the
FBiH Cities and Municipalities Association has in cooperation with the CoE
Forum invested huge efforts in bringing together and consolidating civil
society in the field of protection of human rights and democracy. It has
launched constitutional and legislative initiatives to amend provisions on
local administration and self-government, ensuring that the improvement
of the constitutional concept of local self-government is in conformity with
the originary powers of legislative, material and financial autonomy.
It has to be emphasised that there was much opposition to ceding greater
powers, jurisdiction and funds to local democracies. After spending five
years and completing the draft constitutional reform of the local selfgovernment system, the authorised legislators, like the FBiH President
and the FBiH Government, rendered the following opinion on the draft
constitutional amendments already in parliament procedure: that there
is no need to alter the status of local authorities in the FBiH Constitution
and that the division of powers between FBiH and the cantons is
satisfactory.
I would like to voice another appeal at the end and it regards the SEE
Ministerial Conference which adopted the NALAS Declaration. We, too, took
part. During the conference, entitled «Effective Democratic Governance
at the Local and Regional Levels», Mr. Erhard Busek, Stability Pact
Coordinator, pointed out the significant role of strong local administration
as the key element of stability and sustainable development in Southeast
Europe and urged a clear definition of the role of local administration in
countries with different social and political systems. Municipalities need
to be organised and empowered to manage, not to rule social, cultural
and economic development in a democratic society in an organisation
suiting the needs of the citizens.
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Ranko Karapetrović, Former Mayor of the Municipality of Laktaši
Hello. I’ve based my presentation of the principles of good local
administration and the obstacles standing in its way, with some specific
discussion about IT systems in local administrations. I will also speak
about proposed reforms. At the panel discussions, I spoke a bit about
the SDC project on local administration development, so I will say a few
words about that at the end.
Laktaši was mentioned as an example of good local administration.
When I first got there, with 25 years of experience, after spending twothirds of my career in administration, starting out as a trainee, and being
promoted to civil servant, secretary, municipal assembly chairman and
finally becoming the Mayor… I simply faced the principle of efficiency.
I called my associates together and said: if I see more than 2 people
waiting in line in front of a counter, the clerk behind it won’t fare well. You
can turn to each other, to me for help. A user cannot wait because a clerk
is not at his desk or because there is no one to sign an enactment. I think
I managed to achieve much by this approach and then things just moved
on from there. And we finally introduced ISO standards and significantly
improved the work of the local administration.
What does good local administration entail?
It is usually assessed on the following three principles: whether it is
efficient, transparent and user friendly.
Look at this matrix. We have three principles: efficiency and effectiveness,
transparency and accountability and participation… and we have these
three segments through which these principles are realised. A good local
administration is the one in which all three principles are realised through
all three segments. So, you need to have an efficient assembly i.e. council,
which is transparent and participative; the municipal administration i.e.
municipal services must be efficient, transparent and participative as
well, as must the public services that are provided. The latter is the most
interesting, as the quality of life is measured by it. I hope that we, too,
will soon have parameters and be able to evaluate the quality of municipal
administration. Because a citizen may come to the municipality for a
specific service today, or in a month, or in a year or in 10 years’ time,
but public services must be accessible to him or her every day. But the
citizen is interested in how those services are provided all the time: he is
concerned with the quality of the drinking water, the heating, the roads,
waste management... this segment has been somewhat sidelined in all the
training sessions. I think the municipalities lack mechanisms to provide
such services. I am speaking on the basis of experience in Republika
Srpska and the problems during privatisation of public companies, from
which the municipalities have been virtually excluded, although they are
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accountable to the citizens for providing public utility and other services.
That is why I think future training needs to devote more attention and
make use of exchange of experiences with other developed countries
(bench marking) on how to organise that successfully.
I will now say a few words about the principles:
Efficiency
It entails speedy, economic and quality provision of services and addressing
of problems within the jurisdiction of the local administration to satisfy
the needs of citizens and tax payers. This principle entails strict abidance
by deadlines for the provision of services and aims at shortening them as
much as possible. High quality of service and quality attitude towards the
users of the services implies above all that the product is high quality, that
the enactments you pass are brought into question as rarely as possible
and user friendliness – that users waste minimum time while they are
served. Procedures need to be adjusted and the services must be more
accessible to the users. That means you need to ensure that the citizens
have to walk as little as possible. Information and documents ought to
circulate, but the citizen needs to stay in one place, in the counter hall
and finish everything there, from making payments at the post office
counters to fulfilling all other needs.
Maximum cost-effectiveness of services
This principle means that service fees are not excessive. Let me quote
you an example, although it does not concern the municipalities. I was
in the Banja Luka central registry of securities. Since my father died, the
inheritance procedure is under way and I was to get the 20 vouchers
he was entitled to. To receive them, I had to pay a 10 KM fee. The real
value of the service cannot exceed 1 KM, because they have a computer
programme and they obtain the certificate by pressing merely one key.
But, to make things worse, I had to photocopy my ID, submit copies of
all documents, fill a form. When you analyse the procedure, you realise
you can simplify it and make it more cost effective. First of all, you do not
need to file a request, it can all be done in electronic form. They could
have just written down the number of my ID next to my name and that
would have been proof enough that I may have insight in the registry.
Copies of documents are totally unnecessary as they prove nothing. The
data I had to enter in the form were already there, so they, too, were
unnecessary. Moreover, the building is big, but the counter hall is old;
they opened two counters in a corner, so many people crowded in such
small space, with no air to breathe, while the other counters remained
closed. There are many other examples of inefficiencies. This example
shows that, once you have analysed everything, much can be done to
improve the situation.
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Abolishing monopolies and introducing competitiveness
Many affairs conducted by the local administration in the US have been
privatised and delegated to NGOs and companies, like that of the notary
public. That should be done here as well.
Obstacles to efficiency
What are the main obstacles? The underdeveloped IT system. You have
municipalities which have perfect IT systems and others which do not.
Furthermore, we do not have a state database that would simplify the
whole process. In Laktaši, we ourselves developed a registry project
and we received a donation to computerise the (birth/death/wedding)
registries. There had been mention of amending the Law on Registries at
the time we and Banja Luka were involved in the pilot project, because
everything is done twice now, data are registered in both electronic and
paper forms. But at least we issue the certificates efficiently, because we
can do that rapidly.
Complicated procedures
They can be simplified if we review them and after a while assess what
can be changed. We analysed the process of issuing construction licences,
how many times someone must come to the municipality and how many
fees s/he has to pay. We realised the process took four visits. We then
decided to change the procedure, and to charge fees only at the time of
issuance or submission of requests. We added up all the fees the citizens
had to pay, lowered the amount and decided to charge only one fee. You
can always improve something.
Lack of counter halls
There are quite a few projects now, which is commendable.
Insufficient expertise, motivation and user-friendliness of municipal staff.
I think seminars like this one help, because we learned the most through
projects like this one and similar SDC projects, through the capacity
building projects conducted by other organisations. When I mentioned
insufficient expertise… there are no specialised schools, we must train
staff ourselves. An increasing number of municipalities that introduced
ISO standards also adopted training plans and conducted them with the
help of their own staff and outside experts.
Lack of regular surveys of customer satisfaction with administrative
and public services
I’m sure this can be organised in a very simple way. It does not require
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much funding and it has proven extremely useful in terms of improving
work. The quality management system was introduced in only a few
municipalities. I see the developmental Sarajevo Region decided to
introduce the quality management system in all municipalities, and that
is commendable.
Transparency
It entails that the work of the municipality is public, open and that all
segments of local administration are accountable for all their work and
conduct, with a view to increasing trust in local administration. Polls show
us there is not much trust.
Pre-emptive anticorruption activities, preventing nepotism and
conflict of interests
What does this principle entail?
Transparency of decision making and work in all segments of local
administration, budget and public procurement transparency, good and
clear layout of all municipal services, from the marking of all offices to
clear instructions on every action and service provided. Clear directions
at the entrance of where everything is. Openness to all types of audits
and controls, transparent staff recruitment and hiring….
Preventing nepotism and conflict of interests and improving public
relations
We realised we had lots of problems in public relations… but there are
unpleasant questions and one cannot joke about them. What you say is
one thing, but you must be responsible. Good public relations need to be
developed. They can significantly help improve the municipality’s image.
They helped Laktaši gain the image it now boasts. We always tried to
meet all public requirements. We never found that difficult.
Obstacles to transparency
Services and procedures are not presented to the users in a simple and
understandable way: brochures, web pages, notice boards…. We are
heading towards electronic administration. I visited The Netherlands;
there, you can apply for and receive specific documents via the Internet.
I’m sure that will be introduced here faster, we had fallen behind and IT
is developing by leaps and bounds.
Insufficient transparency of the budget
We must pay more attention to budget planning. When planning an
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investment for the following year, we must be sure we have all the
documents, like the construction licence mentioned here. The construction
of the Banja Luka – Gradiška highway has begun although not all property
issues have been resolved. Now, all of you know a construction licence
cannot be issued until all property issues have been resolved. So how
are they building the highway then? Either someone issued it or forged a
document. It shows that we envisage we will do something under political
pressure, to appease the citizens and we are aware we cannot do it. We then
rebalance the budget, because rebalancing does not require application of
the procedure, which although legally required, cannot be implemented.
That’s why one should avoid rebalancing the budget, even at the expense
of carrying specific revenues over to the following year; one needs to plan
them transparently, so that the citizens know what the plans are.
Insufficient transparency of public procurement
Regulations change frequently and we will need training in this area, but
good planning will help the consistent application of regulations on public
procurement and its greater transparency.
Inadequate public relations
We must improve the situation. We ourselves must enable the media to
operate normally, especially in undeveloped municipalities that cannot
afford their own media. But, in any case, that is the simplest way of
reaching the citizens. If we have good relations with the media, we will
have more satisfied citizens.
Civil participation and involvement
Why civil involvement?
Because decisions reached in such a way can be implemented more easily
and they give citizens greater satisfaction.
A citizen should be regarded as an employer. Just by entering a shop,
the citizen allocates part of the income of the local community, of a local
government employee. We now face the following problem: the citizens
are not interested in participating in the decision making process. We
must stimulate them and show them the effects of such participation,
how it improves their lives on the whole, build their awareness that they
themselves had contributed to that.
Active role of MZs in decision making and providing local
administration services
MZs are now operating in a stereotypical way; they are burdened by the
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role they used to play in the past, when they were the smallest units of
local self-government. They should now be interlinked, as provided by the
law, to participate qualitatively, but more attention should be devoted to
the appointment of bodies and the latter should be made responsible for
proposing and implementing development in their MZs and for addressing
the main problems of the citizens.
Acceptance and promotion of open society values
I am referring to the NGO sector with which I have cooperated well and
I can recommend to everyone to forge partnerships with NGOs because
they can help and do many things more easily than the local community.
For instance, we helped the community Susret, which fights drug abuse
in Croatia, to begin working in a monastery in Aleksandrovac… so there is
a broad range of activities which we can delegate to the NGO sector. That
should be done transparently, funds in the budget need to be allocated
for their work and they should be invited to apply with their projects at
local tenders.
Partnership of the public and private sectors
All of you are aware that you cannot have a good development strategy
and a good economic development plan without the participation of the
private sector.
Obstacles to participation
Bad communication between citizens and councillors, symbolic civil
participation in the work of assemblies or councils, low quality and
stereotypical public debates, insufficient civil participation in the work of
the municipal administration, council of citizens, youth council, business
council..
The Laktaši Municipality this year nominated its youth policy for the good
practice in participation project. We implemented the project and set up
an advisory youth board. I enjoyed when young people showered me
with ideas on how their status can be improved.
I will also say a few words about the project aimed at formulating
the local administration development strategy by the key local
stakeholders.
The raison d’etre of the project lies in the minimum local involvement in
the reform of public administration in BiH. The reform process was mostly
imposed on us. Local administration reform is not a priority within the
public administration reform in BiH. Decisions regarding the local level
are made ‘at the top’ and those who are the most interested and most
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competent are not really involved in them. All of you can corroborate that
local communities were not adequately involved in the drafting of any
legislation, at least not in Republika Srpska.
Chaos in the field
A series of uncoordinated, mostly international projects targeting local
administration, lack of a single system-based and commonly accepted
strategy of local administration development.
Project goals
Formulation of a comprehensive, system-based and commonly accepted
local administration development strategy in BiH, establishing of a new
quality approach to policy and practice of formulating policy at the local
level in BiH. Thus, local communities need to assume the key role and
responsibilities via their associations included in the ‘partnership group’,
via municipalities with best results in introducing good local governance.
Ensuring official endorsement of the strategy by relevant local
and international institutions
The partnership group initially comprised 10 or so municipalities. It has
now expanded; some NGOs are involved in its work and it was joined
by the RS Association of Cities and Municipalities; we expect the FBiH
Association of Cities and Municipalities to join us soon, so that all local
communities will be involved via the two associations. The project enjoys
the support of the SDC and the Open Society Fund; a creative expert team
analysed the situation and is now drafting the strategic plan. Dragoljub
Davidović chairs the partnership group. Fadil Šero is his deputy.
Vision of local administration development
It has been drafted and is to be endorsed by local administration
representatives in all of BiH. New local administration will imply new
quality of life in BiH. We tried to link local self-government to quality of
life in the document. It comprises 7 strategic and 35 operational goals
and some 60 projects that will accompany implementation.
I will speak about the topic instead of Mr Brano Jovičić, the representative
of the RS Association of Cities and Municipalities. However, Mr Jovičić is
far more familiar than I am with the topic. He is the Coordinator of Brčko
District Government, which is a specific local self- government unit.
The District is a fine example of fiscal decentralisation. There has been
significant improvement in all walks of life and the salaries are much
higher than elsewhere. That substantiates the notion that both financial
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and functional decentralisation is the solution to many problems. I think
there is a problem in the implementation of the European Charter of Local
Self-Government which says that public responsibilities shall preferably
be exercised by those authorities which are closest to the citizen. The
local government does not have many powers or resources. But since
citizens want to fulfil their needs, the local administration is forced to
conduct affairs which are not within its competence. Take education: the
local community is responsible for repairing the school building so that
children have a decent place to study in, but decisions on education are
taken elsewhere.
3.2.3 Accountability of Local Authorities
Mustafa Kurtović, Goražde Municipality Mayor
Ladies and Gentlemen, I shall speak as a sociologist, Mayor and athlete.
Speaking as an athlete, I think that many of us are annoyed because we
are often invited to education and training events. Nevertheless I have
always been in favour of education and training, and now, in the capacity
of lecturer, I would like to suggest that every local municipality in BiH
undergo all stages of the past and present OSCE projects, starting from
drafting the vision of municipal development, strategic development plan,
to the adoption of the code of conduct for appointees, which comprises
councillors, and all others working in the local administration. We would
thus automatically increase the accountability of all civil servants, mayors
and their assistants.
The next step we have to take is to build on the projects implemented
in BiH, the GAP (Government Accountability Project) or projects on
administrative accountability with a view to establish a modern local
administration in line with the highest European standards. We have
gained much experience in the Centar Municipality in Sarajevo and I
take this opportunity to express my gratitude to Mayor Bećirević. We
are currently implementing the project of establishing a Centre for the
provision of services to citizens, and the second segment of the GAP
project which entails capital investments.
The implementation of these projects represents a step towards the
realisation of the vision of municipal development, the development
of municipal strategic plans, if municipalities have them. Whilst on the
subject of plans, I would like to urge those who have not yet developed a
strategic plan, to form teams in line with the topmost European standards
outlined in the European Charter of Local Self Government. These teams
would draft strategic plans and then monitor the implementation of
local community projects in the municipality. For those interested in this
subject, I can recommend the website of the Goražde Municipality, which
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is prerequisite in terms of the accountability of local authorities. I think
that every local community should have a website updated on a daily
basis with information about municipal events, from the meetings of the
Mayor and his assistants to other issues, so that citizens across the world
can read about what the municipal authorities do the same evening.
Another extremely important prerequisite is to establish close and
direct communication with non-governmental organisations. Mayors and
municipal representatives of the RS and FBIH have recently in Gornje
Podrinje signed an agreement among municipal councils, mayors and
local NGOs. This is a big step towards establishing of a civil democratic
society in BiH, which is what all of us want. Some of us have perceived
NGOs as parallel political institutions, which is incorrect. In light of the
European Year of Citizenship through Education, NGOs can improve our
transparency, efficiency of our performance and help establish normal
local self- governments in BiH.
Finally, I would like to say that preparations are under way for a conference
of mayors and civil society representatives. It will be held in Mostar in
early 2006 and I urge you to prepare for this conference thoroughly, since,
as the representatives of local authorities, we can help establish a strong
mechanism to achieve the civil society we are striving towards.
Regarding civil servants, we need to insist that all those who have not done
so yet are sworn in. Local communities need to respect the oath and view it
through the 10 levels of responsibility it comprises. I believe that this is not
merely a formality, but guarantee of the relationship between the citizens
and the Mayor, as the manager who ought to be the most responsible for
establishing normal communication with the general public.
Finally, I would like to especially thank the organisers of this gathering
and just mention that I participated in the phone-in after the first episode
of the radio-drama, on Radio Goražde. I think it is a sound initiative. I
don’t know how many people listen to it in other parts of BiH, but it is one
of the most popular shows on cantonal Radio Goražde and can be heard
in most of East Bosnia.
Dr. Milan Blagojević, Banja Luka District Court Secretary
I would like to present the legal solutions concerning the allocation of
revenues in RS, between the entity and the municipalities as the basic
local self-government units. I think that these solutions can be found
almost «mutatis mutandis» in a similar form also in the BiH Federation
and in every canton.
The fact is, as Mr Komić and our colleague from Maglaj have already
said, is that Law on VAT shall come into effect on January 1st. It is also
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a fact that a state law on the collection of revenues to a single account
and on revenue distribution regulates merely the distribution of revenues
collected on those grounds between BiH and the two entities. This law
thus does not answer the following question: how to distribute the entity’s
share of funds between the entity and local self-government units. It is
logical that the law does not hold an answer to this question since the issue
needs to be passed at the entity level. So, just to give you some food for
thought, if you, the representatives of local authorities, have not launched
a campaign yet, do so as soon as possible. What kind of campaign? A
campaign for a separate law on distribution of revenues collected through
VAT. You should immediately start lobbying the representatives in the
entity and cantonal assemblies for such a law that will empower you to
more efficiently and effectively exercise powers entrusted to you by law.
Just recall that the representatives themselves come from municipalities
and are aware of the needs of the local population, as well as the burdens
of the local self government units; therefore, you are likely to gain their
support for the adoption of a high quality law.
There is another important issue. We all know that VAT will replace the
turnover tax. Why am I mentioning this? The RS Law on the Budget
System already regulates distribution of revenues between the entity
and the municipalities. Article 8 of the Law prescribes how the collected
tax is distributed between the RS and the developed, undeveloped and
extremely undeveloped municipalities. If a separate law is not adopted,
the current ratios of allocation shall be brought into question, as will any
suggested ratios until a law regulating the issue is adopted.
Kimeta Ljeljak, Mostar Municipal Court Secretary
You are probably wondering what a representative of the judiciary is doing
amongst municipality representatives. Well, Mostar is a very specific city
and I belong to a specific genus - court administration. We are not only
handling matters at the municipal level, but have been delegated partial
cantonal powers and we are already hearing commercial disputes relating
to the whole Herzegovina Neretva Canton.
We were formed in February 2004 by the merging of 4 former courts. We
too had a surplus of staff. Downsizing was especially sensitive since we,
as a Court, had to pay special attention to laws and subsidiary legislation,
collective agreements … and how to downsize as painlessly as possible
and set an example to others. I am glad to say that we did solve the
problem well. Now, we are facing new challenges.
One is to dispel the deeply rooted prejudice that a Court is something
untouchable and that people come to it only when being punished, or
when they have no other choice. We did our best to dispel belief that it is
non-transparent, shrouded in mystery. At the very start, the President of
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the Court and Department Heads decided to do a ‘spring cleaning’ of the
whole court. We are a pilot-court and we accepted the reform because we
realised it was high time to dispel the prejudices.
The implementation of our project has come to an end and we have opened
our doors to citizens. We will have leaflets and brochures, the Court will
be accessible and even physically reorganised. We have computerised
our system and it will be launched on 5 December 2005. We will no longer
have huge registry books, everything will be computerised, and citizens
who come to the Court will be immediately given their case file number,
the name of the judge and the date of the hearing; they will no longer
need to return to the courthouse several times.
We are working on educating both ourselves and the citizens. There are
posters setting out the codes of conduct for staff and visitors. I head
the Personnel Department and I am always reminding the employees
that they can dismiss citizens’ complaints about cases because they are
not obliged to comment on them, but that I have to take into account
any comment about staff conduct and pleasantness. For that reason, we
installed a box where we collect complaints; the citizens are asked to
leave their contact details and the staff will respond to their concerns.
In the brochures, we explain to citizens what kind of questions they can
ask and the kind of answers they can expect to receive from the court.
The first and basic rule is not to comment on cases on trial; that is the job
of judges. Nevertheless we do accept complaints regarding dilatoriness
and non-transparency.
We will try to open our doors to citizens to give them insight in court
schedules and we are improving our cooperation with the Ombudsmen.
The judges are obliged to answer all inquiries forwarded by Ombudsmen,
and Ombudsmen, as well as the OSCE, have access to all court cases.
They often attend trials and ask to see the case files.
In cooperation with USAID, in June, we organised a seminar “Free Access
to Information” for judges and chiefs of departments. We tried to grasp
the scope of this law and will in the future try to be a pilot project both
on paper and in practice.
As there are many cases in Court in which the municipality administration
is the defendant, I would like to advise you to do your best and view
all aspects of a problem. When you are reaching a decision, look at
the problem comprehensively. Some of the suits filed against you have
nothing to do with your work, but we are often seen as psychotherapists.
We need to listen to the problem, and if the citizen feels better because
he told us about it, then we did help in a small way.
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3.3 Challenges before Local Administration in BiH
3.3.1 Economic Development and the Role of Municipal
Administration
Ljiljana Šimunović, Foundation for Sustainable Development FSD
There are quite a few representatives here of municipalities participating
in the “Local Development Project”, which I am Executive Manager of.
The project is an initiative of the World Bank and it targets development,
mainly the development of infrastructure which is a pre-condition for
economic development. We have, over the past few days talked a lot
about various challenges municipal administrations face, but economic
development seems to be the most important one. It seems to me that
the role of municipal administration is the least defined in this area, and
the municipality is the first authority citizens will turn to in expectation
of initiatives to fulfil the goals before them. If you have resources you
want to invest, you will first analyse the features of a municipality, the
natural resources that determine the type of investment, the historical
and cultural heritage and the age and professional breakdown of the local
population. These will be the factors impacting on your decision. You will
need to know which branches of the economy are developed, which are
just emerging, what the employment rate is, the breakdown of the labour
force, and, notably, the quality of the public utility infrastructure, which is
prerequisite for economic activity.
At this conference, we are discussing public services, public goods,
and what the municipality can offer you and how it can support your
entrepreneurial activities. All these factors are interlinked. The greater
the natural resource, the greater the interest. The quality of the network
of the roads and the sewage system, of environmental protection, air,
water, forest, land protection.... all these factors impact on investments.
Especially in light of EU environmental protection requirements, which
will pose a major challenge to future investors and municipalities and will
require a lot of funds. All these elements affect the type of investment
and the areas in which to invest.
So, what is the challenge a municipality faces? The complex relations
between different levels of authority. There are overlapping competences,
municipal revenues and powers do not conform to one principle. The
share of budge revenues set by the municipality is negligible. In the US,
for example, municipalities can lower taxes to attract investors. Here, the
ratio of administrative fees set by the municipality that could be used to
attract investors is minimal.
We will need to respond to this challenge by amending and adjusting the
legal framework, starting with the Constitution, the Law on Local Self-
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Government, the Law on Concessions (under which municipalities cannot
grant concessions), the Law on Urban Building Land, the Law on Public
Revenues (which is challenged by the introduction of VAT).
As far as environmental protection is concerned, some municipalities are
already drafting plans. The point is how to explain this tax obligation
to the investors, how to attract them. Even Einstein wondered if there
is anything more complicated than taxes. How do the investors feel
in that jungle of laws, especially here, where levels of responsibility
overlap, rendering more difficult decisions on the best possible business
environment in municipalities?
We are dealing with the following tax paradox: by decreasing taxes we
support economic development, the lower the taxes the more people pay
their taxes, and the amount of taxes collected will ultimately be larger.
Many municipalities have tried the mechanism within the limits of their
jurisdiction and have proved that it works, and, in result, successfully
attracted investors.
The simplification of tax collection, assessment and control mechanisms
has proved to be an efficient way to attract investors. High taxes
discourage economic activities, while low taxes attract investors. The
municipal administration can create a more conducive environment for
investors simply by responding to the requests of entrepreneurs.
Municipalities elaborate development strategies, cooperate with
associations of entrepreneurs, exchange experiences and clarify
problematic areas; they mediate with donor organisations to facilitate
loans and grants. They can organise training and enable better and
more comprehensive access to information. Many municipalities have
set up business incubators, provided entrepreneurs with offices, IT and
accounting services, all of which reduces costs as the services are shared
by a larger number of entrepreneurs.
One such institution at the disposal of the municipalities is the Foundation
for Sustainable Development, established by FBiH in 2001 with the aim
of implementing 4 projects initiated by the World Bank: technical aid
for privatisation; a project for local initiatives developed by the microfinancial sector and enabling self-employment of hundreds of people all
over BiH; the community development project allocating 10,000 KM
grants to undeveloped municipalities incapable of public borrowing; and,
finally, the local development project for municipalities capable of public
borrowing, which can use the loans to fund municipal infrastructure.
A representative of a municipality that participated in the project is the Mayor
of Tomislavgrad, and we will hear how the project was implemented and
how it encourages economic development and attracts entrepreneurs.
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Zdravko Prka, Tomislavgrad Municipality Mayor
Mrs Šimunović proposed that I present the example of my municipality
and I am very glad to do so. We heard about the status of local selfgovernments in BiH. I would like to present some very specific examples.
I have been Mayor for 5 years now and, although I do not want to focus
on the past, I have to emphasise that we were one of least developed
municipalities in 2000. We therefore joined the Foundation project
«Odraz», but we soon left it because we improved some things. We
realised that money does not just come to you and I don’t think this is
merely a phrase. Like in life, everyone respects the strong and powerful.
In view of the circumstances, we decided to help ourselves and invest
our own fixed budget in economic development, with special emphasis on
infrastructure. Because we know that is the best way to attract domestic
and international capital. More than 5000 citizens of the municipality are
working in West Europe and they have capital, but they will not invest
unless they are assured the financial and political systems are secure.
However, I believe that these investments shall soon begin to pour in.
Tomislavgrad covers nearly 1,000 square kilometres of land, its altitude
ranges between 600 and 1200 m, we border the Republic of Croatia. With
the construction of the Adriatic Highway, Europe will be closer to us, and
we would like to bring it even closer. We have the lakes of Buško and the
glacier lake of Blidinje; 49 per cent is grazing land, 10 per cent are fields,
20 per cent are forests: these resources are used, but insufficiently.
We have the Duvanjsko system, which supplies the whole area with water.
The city is being reconstructed, since the first impression of the visitors
must be positive. If there is a lot of garbage, investors will run away. We’ve
done a lot in terms of ecology; we are one of cleanest municipalities, we
have garbage dumps and have involved schools in helping to clean up
the local environment… We may not be rich, but we can at least be clean.
We have invested considerable funds in the construction and equipping
of schools, provided them with computer labs. We take care of the young
generation, we are aware of drugs and other vices, and therefore we built
a fine sports hall, where young people can spend their time and energy.
Our 2001 budget was low, so we increased non-tax revenues, but we
did not impose large taxes on entrepreneurs. Half of the budget is spent
on capital investments: construction of roads, schools, the water supply
system, and environmental protection. We have about 750 registered
companies, some are closing down, but new ones are opening.
We have established a business zone for our people working abroad who
would like to invest their capital, we opened another business zone at the
state border crossing of Kamensko, which will definitely be attractive as it
will be near the new highway, close to the Dalmatia County and the City
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of Split. I think we can establish cross-border cooperation. As Mayor, I
have taken it upon myself to turn Tomislavgrad into a comfortable place
to live and feel good, a place no one will want to leave, a positive example
in BiH.
Extract of Discussions:
Mustafa Kurtović, Mayor of Goražde:
I propose that the two associations of cities and municipalities forge closer
ties, so that we Mayors can jointly submit certain projects.
Zdravko Prka, Mayor of Tomislavgrad:
We have been talking about the Public Income Law in recent months and
we expect a considerable drop in tax revenues in local self-government
units. What exactly are tax revenues?
As there had been no financial discipline until recently, tax revenues
comprise public utility fees and estate rents. We try to manage these
revenues as cost-effectively as we can. We get rent from the lake.
And second, there is not one state that does not charge tax. That’s what
states are based on and live off. Some people may find it expensive to
pay 5 KM for road maintenance every month, and it is true that we must
not impose excessive fees and rents, but we cannot completely exempt
them from all their dues. It is up to us to find the right amount.
Lecturer: Ljiljana Šimunović:
That is the picture of the tax paradox. Only cooperation and agreement
with business associations can lead to better results. If you expect the
municipality to provide better infrastructure as a prerequisite for your
businesses, then, you businessmen should not be against tax increases
either. Optimal amounts can be agreed on through dialogue.
3.3.2 Participative Governance, the Dissemination and
Exchange of Best Practices among Municipalities - the Swiss
Model
Alma Zukorlić, Programme Manager, Swiss Agency for Development
and Co-operation (SDC)
I am going to speak about a project supporting the municipalities in the
Doboj region, where the so-called Swiss model of good practice will be
applied. The Swiss believe models cannot be copied and if we want a
project to be sustainable, it must be adjusted to the local conditions. The
most that can be copied are the good practices and procedures, which
have proven useful in Switzerland and may possibly be applied here.
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Before starting the presentation about the project supporting
municipalities, I would like to give an overview of the organisation, which
is “to blame” for its implementation. The Swiss Agency for Development
and Cooperation, SDC, is an international organisation for cooperation and
part of the Swiss Ministry of Foreign Affairs. SDC is in charge of overall
coordination for development and cooperation, as well as humanitarian
aid, and it implements projects in about 80 countries across the world.
It implements its own projects and supports multilateral organisations
and programs like UNDP, OECD, the World Bank: it also provides financial
support to Swiss and other international organisations.
Now a few words about Switzerland’s activities in Bosnia. Switzerland’s
engagement in BiH can be divided into 4 phases: in the 1991-1995 period,
140 million Swiss franks were invested in humanitarian and emergency
aid to BiH and Croatia; in phase two, from 1996 to 1999, 220 million
were invested in reconstruction and rehabilitation through the special
“BiH” programme. These activities mostly focussed on housing and other
support to returnees and their reintegration. The third phase, from 2000
to 2003, concentrated on transition and reconciliation and 50 million
franks were invested in that period. The last, current phase started in
2004 and will last until 2008. We have developed a medium-term program
focusing on transition and supporting reforms. Eighty million franks are
to be allocated over the period.
We fund various areas, the social services, private business development,
promotion of SMEs, governance and basic services. Our project supporting
municipalities falls within the governance and basic services programme.
My colleague Mr. Đurić will tell you more in the following presentation.
The project started in November 2001 and the first stage, which lasted
until 2004, cost 3 million franks; 3.3 million franks are to be invested in
the second stage, which will last until 2007. The project encompasses 7
municipalities in the Doboj region.
Slaviša Đurić, SDC Programme Manager, Municipal Development
Project (MDP) Project Assistant
The Municipal Development Project - MDP is based on the agreement
the Government of Switzerland (represented by SDC), the BiH Council of
Ministers and the Bosnian entity Governments signed in April 2002. It is
implemented in seven municipalities in FBiH and RS.
The long-term development goal of MDP is to empower selected
municipalities in the Doboj Region to become examples of good local
governance in BiH, provide valid experiences for other municipalities, and
contribute to policy development on key topics for good (local) governance
and the functioning of decentralised state structures.
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The goal of the MDP project is to have selected municipalities in BiH
functioning in an increasingly effective, efficient, transparent, accountable
and participative way, in accordance with the rule of law.
MDP’s main partners are 7 municipalities in both entities of BiH (municipal
authorities and civil society). In the first year of implementation (May
02 - April 03), the following 3 pilot-municipalities were selected by the
MDP Steering Committee: Doboj, Doboj-Istok and Maglaj. In the second
year (May 03 - August 04), 3 other municipalities were selected: Usora,
Doboj-Jug and Petrovo; the municipality of Gračanica was included in July
2005 as the 7th partner municipality of the MDP.
The following basic problems were identified in MDP’s problem analysis
in which all relevant stakeholders at the municipal level took part:
municipal administration is not responding to the needs of its users;
poor public services; undeveloped civil society. These problems are also
linked to factors such as: the complex state structure; the new “Dayton”
municipalities; the return and reconciliation processes, lack of vision of
municipal development based on good governance principles, etc. In
response to the main identified problems the following three MDP
areas of activity (phasal objectives) were defined:
•
•
•
Support the strengthening of key instruments for developing
municipal policy, such as planning and managing
development, including principles of good governance, based on a
common and shared vision of municipal development (of both
the municipal administration and civil society);
Foster organisational innovation and mechanisms for
improving participative governance between local authorities
and civil society actors (and taking into account activities to
consolidate civil society);
Support the dissemination and exchange of good practices
between municipalities (horizontal dissemination) and their
introduction in the development of a policy on good governance in
BiH (vertical integration).
The three fields of activity are closely interlinked. The Common Vision,
to be used as the main guide for planning municipal development, the
Local Governance Mission and the Good Local Governance Code have
been jointly elaborated by local government representatives and relevant
civil society stakeholders (NGOs and MZs). They were adopted by the
municipal councils/assemblies of all six MDP partner municipalities during
phase I of the project (2001-2004).
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Phase II of MDP was launched in August 2004 and will last until December
2007. In Phase II, MDP will endeavour to respond to challenges such as:
the elaboration of strategic municipal planning, with appropriate project
components, such as local economic development or urban planning
strategies, human resource management in local governments and
the introduction of e-Government, further strengthening of the role of
civil society, the institutionalisation of mechanisms for civil participation
in planning and decision making processes at the municipal level and
strategic dialogue on policy related to decentralisation and strengthening
of local governance in BiH.
MDP Areas of Activity and Approach
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Main strategy: in order to achieve the objectives, the MDP project office
mainly acts as facilitator and coordinator and supports its partners with
its own resources and through its pool of predominantly local experts and
consultants, with training and capacity building measures responding to
the partners’ needs and demands.
By horizontal and vertical dissemination of good practices and lessons
learnt, MDP encourages the process of change in other municipalities and
contributes to policy discussion at higher government levels.
Project organisation: the MDP is governed by a Steering Committee,
comprising representatives of the SDC (Swiss Agency for Development
and Cooperation – Coordination Office in Sarajevo), relevant entity
ministries (RS Administration and Local Self Government Ministry and
the FBiH Ministry of Justice), the Justice Ministries of the Tuzla and Zenica
Cantons, RS Association of Cities and Municipalities and representatives
of partner municipalities.
All MDP partner municipalities are members of the Inter-Municipal
Advisory Group (IMAG) which serves as a platform for the exchange of
experiences and good practices, defining guidelines for policy discussion
on local governance issues in BiH, and for the definition and planning of
common projects.
There is another inter-municipal structure - the Monitoring and Validation
Group (MVG) - which encompasses the CAF team as well. The role of this
group is to establish quality monitoring processes in local administrations
and ensure the introduction of CAF methodology, which serves as a tool
for self-evaluation of local administration performance. The methodology
is based on the principle of comparing accomplishments and the exchange
of good practices among local administrations using the methodology.
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Municipal Development Teams (MDTs) have been established at
the municipal level. They comprise local government and civil society
representatives who plan municipal development and implement projects
using the participative approach in problem solving and decision making.
Project partner: The Open Society Fund BiH is a partner of the MDP.
MDP and OSF have organised several coordinated projects/activities
(seminars, exchanges of experiences and practices between partner
municipalities, joint study tours, a competition in best local governance
practices in BiH, a project of elaborating local government strategy in BiH,
etc). This partnership allows for better dissemination of lessons learnt at
home and encourages contacts and partnership amongst municipalities
both in BiH and in other countries.
Consulting agencies: In order to strengthen local capacities, the MDP
has established close cooperation with national consultants. The Banja
Luka Enterprise Development Agency (EDA) is the main consulting
agency which conducts training of municipal administration and civil
society representatives. EDA is mostly involved in the implementation of
activities related to reaching the MDP Phase I objective, the elaboration of
the local government development strategy in BiH, and the introduction
of the CAF methodology in municipalities.
The MDP has engaged the Banja Luka-based Centre for Civic Initiatives
(CCI) to implement activities aimed at improving the organisation and
strengthening of internal capacities of civil society, notably the NGOs and
MZs. The goal of the activities is to enable quality civil participation in the
processes of planning and decision making at the municipal level, which
helps foster relations between the civil society and local authorities; the
latter is closely to MDP’s Phase II objective.
Along with the above mentioned activities related to the strengthening of
civil society, the MDP has supported the project “Participation of citizens
in BiH- real obstacles and how to overcome them”, in cooperation with
OSF. This project has been implemented by CCI. Its goal is to establish
European standards in the field of civil participation in decision making
processes, which is one of the segments of the local government
development strategy in BiH.
CCI has completed an analysis of civil participation in decision making
processes in BiH and more information about the report is available at
www.ccibh.org.
The MDP and its partner municipalities will face many obstacles and
challenges on their road to achieving the goals of the project, and
together, they will seek solutions to problems like: the implementation
of human rights, return and reconciliation at the local government
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level, consolidation of partnerships with municipalities, institutionalising
processes of change and consolidation of strategic planning instruments,
inclusion of successful practices and issues regarding the status of local
administration in the policy discussions at higher government levels in
Bosnia-Herzegovina.
3.3.3 Article 19 – Free Access to Information and Public
Administration Bodies
Mehmed Halilović, Deputy Media Ombudsman FBiH
I am an ex journalist, and I had spent most of my career in “Oslobođenje”,
where I started out by reporting on local events and ended up as the Chief
Editor. In terms of local administration, this means that I progressed
from counter clerk to Mayor. However, you don’t have the post of foreign
correspondent in your administrations, and I reported from Egypt for
5 years. Now I am the Deputy of the Federal Human Rights and Media
Ombudsmen in charge of the implementation of the Access to Information
Law, and that is why I am here today.
I will not read out the Law to you; its implementation is much more
important. I will outline the key reasons for its adoption and how it ought
to be applied. First a few words about misconceptions. The first and basic
one appeared just before the Law was enacted and it still persists - that
the Law is about journalists although it does not mention journalists
or the media at all. There is only the word «information» in its title.
Nevertheless this misconception was favourable at the time of adoption
since those voting for the law were probably thinking that they were
passing a law on journalism that would impose restrictions on them and
they happily voted in favour of it.
Its adoption met with minimal resistance in all three parliaments, at both
the entity and state levels, probably because many of the parliamentarians
did not understand it. The misconception still persists amongst politicians,
and probably amongst some journalists. Journalists believe that under
this, they can Law call politicians up at any time and invoke this Law, but
that is neither the essence nor the point of this Law.
The essence of this Law is that it defines all information which is in the
possession of public authorities as accessible to everyone, not only
to citizens of BiH but also to foreigners, to NGOs, and legal persons.
Journalists as well, but they will not invoke the Law and file requests to
obtain information on a daily basis. I hope that journalists are not so
naive as to file such a request in the morning and use the information to
make the evening news or next day’s newspapers. If they did, they would
not be doing their job properly and there would be no prime time TV news
or newspapers.
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Journalists will use this law in order to “dig out” specific documents,
information that they cannot get through ordinary procedures or by other
means. We are talking about archives, documentation, travel orders and
financial reports. Journalists will invoke this Law to get access to this kind
of information, but neither here nor elsewhere are journalists privileged
in obtaining such information vis-à-vis other citizens.
Journalists have the same rights as all citizens. Why do journalists often
claim that they are entitled to privileges because they serve the public?
The answer is simple: the right of access to information is an authentic
right of every citizen, and no one has more rights than someone else.
The first law of this kind was passed in the US in the 1960s and according
to statistics, the largest number of requests, some 30 per cent, were filed
by legal persons, mostly companies. Why them? Because authorities have
a lot of information at their disposal, including commercial information,
which can be used for market research. Then came NGOs, lawyers,
various other organisations and associations, and at the bottom of the
list were the journalists, only 5 per cent or 6 per cent of the requests
were filed by them.
We had the opposite situation. When the Law was passed, most requests
were filed by journalists, but the situation has changed and most of
the requests are now made by citizens. According to statistics of public
institutions, including municipalities, most requests for information are
now filed by private citizens, which is a positive sign. Another positive
sign is that municipalities are the best organised public bodies in terms
of access to information. However, the situation is not ideal.
As we accept complaints from citizens and address them or act on their
behalf so that they can realise their right of access to information, we know
that even the best organised municipalities sometimes do not fulfil their
obligations. We in BiH have 3 laws and there are no significant differences
between them. Only the RS Law lacks a provision obliging a public authority
to pass a decision dismissing a request for information, and merely
prescribes notification of the petitioner that his request was dismissed. I
hope this deficiency, will be remedied. Notification cannot be grounds for
administrative proceedings, filing a law suit, addressing the ombudsman.
We had a case like that in FBiH, where a public authority failed to pass a
decision and merely notified the petitioner that it had dismissed its request.
The petitioner’s lawsuit was dismissed on formal grounds, since a suit can
be filed against a decision, but not against notification.
What are the key issues in the application of this specific law? Most of the
court and legislative bodies in FBiH are well prepared and have fulfilled
the legal requirements. They have produced their own guidebooks
which citizens can refer to when searching for information. They have
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lists - registries of information in their possession and have assigned
employees to deal with the requests. The Centar Municipality has 2 or 3
employees processing requests for free access to information. Since public
authorities, and thus also municipalities, are obliged to submit quarterly
reports on the number of requests filed and how they were addressed, we
have insight in those statistics as well. The Centar Municipality receives
an average of between 300 and 500 requests every day and deals with
most of them within 24–48 hours. Other municipalities also receive large
numbers of requests, while smaller municipalities sometimes receive no
requests at all in 3 months.
When applying this Law, it is crucial to be aware of its basic aim and
purpose. The Law enforces the obligation of publicising information and
that is the basic rule of the law. Of course, exceptions are possible,
but the Law allows only the exceptions it foresees. There is some
misunderstanding on the part of some public authorities charged with
internal affairs, security services and tax offices etc, which believe that
the Access to Information Law ought not to apply to them. But, this Law
is a lex specialis and it explicitly stipulates in its final articles that it is
always applicable and that no subsequent law can limit or restrict the
rights set forth in this Law.
The FBiH Ombudsman maintains that this Law needs to have priority
and that all requests must be dealt with on a case by case basis. In
other words, you cannot automatically reach decisions on access to
information, the laws in other countries also follow that basic principle.
Why am I referring to this issue? Both at the municipal and other levels,
the administration often labels information as “classified”, “top secret”,
“restricted” or “military secret”, out of habit and although no laws currently
prescribe that such information should not be made public.
This Law requires consideration of every single request, whether the
information may be publicised or not. If a body maintains that specific
information should not be publicised, it must establish whether there is
overriding public interest and may rule to exempt the information despite
any damages that may cause the legitimate interest of the cantons or
FBiH. In its decision, the body must prove exemption is justified in a legal
procedure prescribed by the Law and that is the key obligation of public
authorities.
Another important provision of this Law is that the person seeking information
is not obliged to explain why s/he needs specific information, and public
bodies are not authorised to ask for an explanation. Soon after the law
was passed, an East Doboj journalist sought information from the Tešanj
Municipality. The request was dismissed because it had not been signed and
officially stamped by the manager of the radio-station he was working for.
This is nonsense. No request needs to be sealed or verified by a superior.
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Of course, the dilemma whether information is used or abused remains.
Information can be abused, but that is not your concern. It is not the
concern of the one who imparts information. If information is abused,
there are other recourses against a person who abused it to task. There
is criminal responsibility, there are provisions on slander, but all citizens
have the right of free access to information in the possession of public
authorities and that right must be respected.
Extract of Discussions:
Behija Švraka, Sanski Most municipality
My question is, if a public body possesses specific information is it obliged
to give an explanation or make a judgment?
Mehmed Halilović
It must issue a notice because citizens have the right to dispute what
the body claims. And then someone may have to establish whether it is
correct or not. The issue of “notice” is very important. The ombudsmen
do not insist on it; nor does the law. If a municipality reaches a positive
decision and provides the information, then a notice is unnecessary. I
think that Centar municipality does not issue notices for each piece of
information it provides access to within a period of 24 hours, since this
procedure would be much too formalistic, but notice of a decision to
exempt access to information must be issued in each case.
Mirko Mitrović, Novo Sarajevo East
Can you explain the difference between the terms under which a citizen
can require information “at the disposal” of a public body and information
“under control” of public bodies?
Lecturer: Mehmed Halilović
I will put it in simple terms: It is about the information which you possess
- it does not matter if you created it or if you obtained it from another body.
We often get explanations saying that the information originated from
another body or institution, which is irrelevant. If you are in possession of
such information, you are obliged to provide it, its origin notwithstanding.
Referring citizens to the institutions that originally created information is
out of the question.
Gospava Jeremić, Zvornik municipality
Is a public body obliged to create new information at the request of a
citizen or client, or is it just obliged to provide access to information it
has? We receive such requests frequently.
Mehmed Halilović
I am glad you asked that question. You are not obliged to create
information. Journalists, but citizens as well, often make the mistake of
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formulating the request as a question. You are only obliged to provide the
information you have, even if it is similar to what the citizen is requesting.
The citizen does not have to know the title of the information, whether it
is a plan or an analysis. But you are obliged to tell him or her if you do
not have it and what information you do have and let the citizen decide
what information s/he will seek access to.
Every year, we receive an average of a hundred complaints; this year
we received some 120 which we are reviewing. If you or your staff
implementing the Law have any dilemmas, you can address these to the
FBiH Ombudsman, regardless of where you are: we accept complaints
from RS as well. We do not address them, but we tell the complainants
what to do, give them recommendations and advice.
3.4 Case Studies
Zvonko Marić, Journalist FTV
I would like to thank you for inviting me to this conference and I hope that
the experiences gained here will be of help to you in your communities. I
am a journalist and editor at FTV and I would like to present two TV reports4
about a case that happened in the FBiH and another one that occurred in
the smaller BiH entity. Someone here said that citizens do not have the
sense that they belong to their community, but I think that municipalities
are not susceptible to the needs of the people living in the community.
This was the case in the municipality of Zvornik, where the fate of returnees
was deliberately left to the so-called “Committees for Return”. The story
tells us about corruption and nepotism in the allocation of donor funds
for returns and building houses for Bosnian families in villages around
Zvornik. The other story speaks about the misallocation of millions given
to the municipality of Prozor/Rama. Local HDZ power wielders with
excellent connections in the Herzegovina-Neretva County are to blame
for the embezzlement.
I do not know if any comments are needed here. In the TV report, you saw
a few members of the MZ forum who talked to each other but only in front of
a camera. You saw the protagonists of this story. It seems the municipality
does not want to have powers to deal with these sorts of problems and
cedes them to the so-called return coordinators. The absence of human
rights is evident and disgraceful. You laughed, I laughed, but it is a sad
story. In the other story, Mrs Šimunović spoke about the complexity which
Two TV reports shown to the audience revealed real cases of corruption. Unfortunately
transcripts are not available, but only the comments by journalist Zvonko Marić are
transcribed here.
4
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exists because of different levels of authority; but there is no complexity
when crime and illegal scheming are at issue. They know and understand
each other well, they know very well who is in charge.
Mr. Vukoja in the second story is still Mayor of Rama/Prozor. The municipal
administration is obviously not interested in what is happening there. The
fact that 980 Croats moved to Croatia to work there explicitly shows
there are no prospects in the municipality. I heard Mr. Prka say they built
a sports hall in Tomislavgrad for the youth. I also heard the excellent
presentation on free access to information. And than Mr. Goran Kosorić
says: we’re sick and tired of journalists. I replied that we, journalists, are
sick and tired of municipal officials, but I won’t repeat it. All I can say is
that citizens are fortunately not sick and tired of us although they may
be of municipal officials.
Saša Čavrag, Journalist “Nezavisne novine”, Banja Luka
First a piece of advice to mayors. Nothing is off the record when you speak
to journalists. Be serious, don’t talk about serious things jokingly. Every
statement you make in your capacity is important and on the record, as
my colleague Tuzlić said.
I would like to speak about an example which will refute my colleague
Marić. An example of a small municipality is not necessarily a bad example.
We in Banja Luka often say that Banja Luka is near Laktaši, because the
Laktaši administration has been simplified considerably. Here with us is
Mr Ranko Karapetrović, ex Mayor, who is also a speaker today. I will give
an example of a private businessman in Banja Luka who applied for an
operating licence. The owner of the company wanted to employ more than
100 workers. He exports to Italy, Greece and the USA… In Banja Luka,
he waited for the relevant documents for six months and when he finally
succeeded and thought he could launch production, he was told that he
needed one more document. He consulted his associates and decided to
try to solve the problem in the municipality of Laktaši. He presented his
ideas to the municipal officials and was issued an operating licence within
the hour. Now his company is working, exporting and bringing capital
to Laktaši. In short, in one hour, the Banja Luka budget lost at least 1
million KM of revenue per annum.
Banja Luka is currently debating the budget for 2006, which is to stand
at a little over 100 million KM. There is a big dispute since the budget
needs to be decreased by 500000 KM. Citizens want it to be increased, the
authorities want the opposite. One of the major problems in Banja Luka is
the traffic, while Laktaši has problems with the water supply system.
If you are taking the road to Zagreb, you will see that the western transit
road from Jajce to Gradiška is being reconstructed. The City of Banja
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Luka financed this reconstruction, although this was to have been done
by the Roads Directorate at the entity level. Banja Luka funded most of
the reconstruction, the works were finished on time (8 November 2005),
but the section of the road has not been opened yet. The reason is that
the Roads Directorate has not issued a construction licence for the road.
Sounds strange: a large city with high circulation by all standards, the
profitability of the construction is high as the road to Gradiška is busy.
Sounds ironic, but that’s how it is. Banja Luka earmarked a lot of money
to resolve the bottleneck, the company won the construction job at a
tender and completed it and it now transpired that there is no construction
licence. Citizens are fined for using the road and so it goes on. Banja
Luka has lovely trees but it must widen its roads. Many of the citizens
are against cutting the trees down, so am I, but I keep on thinking we
need wider roads whenever I’m driving. I do not know how Banja Luka is
going to solve this problem, but I believe it will in a better way than the
Western Transit case.
I would suggest that you, the municipal administration, work more closely
with the citizens. I don’t know how, but I know that the citizens cannot
solve their problems if you do not cooperate more closely. And then I, as
a journalist, will not criticise you. Thank you very much.
Extract of Discussions:
Zvonko Marić, FTV Journalist
I have over the past few days tried to do a report on the situation in Teslić,
concerning Bosnians and Croats. They cannot get their ID numbers there
because the numbers are reserved for someone else, so they cannot
exercise their basic human right to an identity. There are quite a few such
cases and they give reason for concern.
Finally, I would like to add my own thoughts to what Mr Šebek said, about
citizens bowing in front of the counter windows. When our citizens try to
get documents at the counter, they are not only bowing, they are on their
knees.
Biljana Birač, Head of the General Affairs Department, City of
Banja Luka
I am from Banja Luka and I wonder how a journalist can come out with
completely false information. For your information, the construction
licence for the Western Transit road is issued by the Ministry for Urban
Planning, only the Ministry may issue such licences. And you said that the
licence is to be issued by the Public Roads Company which was merely
the co-investor in the construction of the Western Transit road. So you
are not entitled to speak about an issue if you do not know who is in
charge of what. If you are coming out with information, look for it in the
right place.
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Saša Čavrag, Journalist of “Nezavisne novine”
If I made mistake by saying Roads Directorate instead of Ministry..
Biljana Birač, Head of the General Affairs Department, City of
Banja Luka:
But it is not the only mistake. You have no idea what you are talking
about. You are imparting such information at this gathering, and I do not
know who authorised this.
Saša Čavrag, Journalist of “Nezavisne novine”:
It was a slip of the tongue… I don’t know why you feel insulted at all by
this story? I said that the City of Banja Luka earmarked the money for …
Biljana Birač, Head of the General Affairs Department, City of
Banja Luka:
But you do not have the right information. I spoke many times about
the Western Transit in public, and you are now coming out with incorrect
information.
Saša Čavrag, journalist of “Nezavisne novine”:
I only made a mistake when I said the Directorate made the road without
the construction licence.
Biljana Birač, Head of the General Affairs Department, City of
Banja Luka:
You do not know who the investor is or who the builder is. You said that
the Directorate made the road. You are mixing everything up. The road
was made by the Public Roads Company, not by the Directorate.
3.5 Results of the Moderated Working Group Sessions
Contribution: Moderator team’s report (Gildžana Tanović, Alma
Bubrić, Aida Kalender, Ševko Bajić, Nikoleta Milašević, Helena
Okuka, Belma Ahmedović, Alisa Bužimkić, Amela Rebac)
The conference concept relied on good experiences with an inclusive
approach towards finding solutions and formulating recommendations
in moderated working groups. It was important to the project team to
initiate discussions amongst the representatives and hear their expert
opinions on what would be helpful to facilitate good governance in
Bosnia and Herzegovina. The moderators were briefed beforehand with a
moderators guide on topics to be addressed and elaborated in intensive
discussions. Groups were mixed to ensure a full coverage of the complex
administration system of BiH. 9 groups, elaborated on three main topics,
Municipal Hiring and Promotion Procedures, Efficiency of Municipalities at
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the Service of Citizens and Transparency. The results and recommendation
are compiled in the following.
3.5.1 Municipal Hiring and Promotion Procedures
Situation analysis
•
•
Vacancies are publicly announced in both entities although
recruitment procedures vary; however, there are still political
influences and nepotism. The participants highlighted the problem
of the so called “suspicious diplomas” acquired in the post-war
period;
Promotion is regulated by legal provision in most municipalities;
unfortunately, there are no mechanisms in municipalities to
prevent nepotism.
Obstacles
-
Laws are not applied
Laws are not harmonised
Lack of subsidiary legislation
Long and expensive procedures
Lack of seminars and training in this field
Insufficient co-operation between municipal services and the Civil
Service Agency
Civil service work is badly organised
Non-existence of internal organisation rulebooks
Politics influence recruitment
The Law on Public Procurement is slowing down the work of
municipal institutions and requires huge funds
There are no punitive measures for corruption
Good practice examples
-
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Case of the Zavidovići, Prijedor, Mostar and Goražde municipalities,
which have established partnerships with cities in Europe
Most municipalities have positive experience in engaging
volunteers
Training programmes in some municipalities on proper employment
procedures
Cooperation with employment bureaus
Cooperation with associations of disabled persons
Cooperation among BiH municipalities, exchange of experiences
and methods, which may be the key recommendation
Recommendations
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Enable municipalities to comment and make suggestions on draft
laws before they are passed
Improve the strict implementation of laws
Lower age limits for early retirement and provide appropriate
social programmes
Organise continuous training at the municipal, entity and state
levels
Legally stipulate publication of laws on the Internet
Conform legal regulations at the state level
Enhance employment opportunities for young professionals to
prevent them from leaving the country
Continuously raise awareness of the benefits of fair and legal
employment procedures
3.5.2 Efficiency of Municipalities at the Service of Citizens
The second topic of the working groups regards efficiency of user friendly
services. We concentrated on the terms “municipality” and “citizen”, and
asked how you as municipal workers understood and interpreted them.
The conclusion was that the municipality and the citizens must work
closely together and that the municipality needs to provide all kinds of
services to citizens, as the municipality does not exist per se but to serve
the citizens. An analysis of the group debates resulted in the following
key points.
Situation Analysis
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The equal treatment of citizens is an issue that was politically
addressed long ago, consensus was reached a long time ago that
everyone, regardless of their ethnicity or sex, has the right of
equal access to and use of municipal services;
Citizens’ complaints are processed within legal deadlines, but
there are exceptions. Some municipalities have grievance
commissions and books where citizens write down their objections
and complaints;
Development of small and medium sized enterprises (SMEs) is
supported through fee benefits and the stimulation of residential
building construction. Benefits for small and medium enterprises
(SME) also include rent payment deferrals, which are not regulated
by law.
We also asked you to tell us what the basic municipal services are and
how long it takes your municipalities to provide them. These services
include notably: birth/death/marriage registration, issuance of work
permits, construction licences, farming, birth, citizenship certificates…
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The deadlines for responding to the requests of citizens are regulated by
law. It takes merely a minute to issue a birth or citizenship certificate in
most BiH municipalities.
Issuance of construction licences depends on the type of building, its
purpose and size, but this procedure has been shortened as well. In some
places, for example in Banja Luka, it can take up to 6 months, but there
are also a lot of positive examples in the municipalities of BiH. In Zenica,
for instance, urban licences are issued within 30 days although the law
gives a 60- day deadline.
Obstacles
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Lack of hierarchy in laws and competencies
Job descriptions are unclear and job classification is inadequate
Inadequate human resource management
Insufficient budgets
All municipalities suffer from politicisation and delays in reform
Staff opposition to modernisation - reluctance to switch to IT
Lack of financial motivation of staff which would improve
performance and automatically reduce corruption
Lack of professional training
Corruption represents a large problem due to lack of adequate
punitive measures
Inadequate functioning of municipality councils, i.e. non-abidance
by law
Lack of development strategies
Brain drain, qualified staff prefer staying in the big cities
Slow privatisation is one of the major problems
Small municipalities are not computerised, while the big
municipalities, like Gradačac, Banja Luka and the Centar
Municipality in Sarajevo have made the greatest headway in
modernising their work
Mainly foreigners are involved in training, cooperation between
more and less advanced municipalities would be preferable
Good practice examples
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Tuzla published a directory on how to open a small or mediumsized enterprise and also opened an Information Centre for young
people who want to start a small business;
In Visoko, zoning and rent control, commercial loans are provided
to entrepreneurs with 50 per cent of return;
A Development Agency and Economic Department were opened
in Prijedor;
The Srbac municipality set up an Initiatives Agency and cooperates
with the Social Welfare Centre to support persons with special
needs;
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Application of legal facilities, tax exemption and facilitating easy
access to buildings for persons with special needs;
The Stolac Municipality has organised bus transportation for all
persons with special needs;
Jablanica supplied schools, the social welfare centre and the old
people’s home with computer equipment. A database of the land
in the municipality was compiled by using air cameras;
The Visoko and Prnjavor Municipalities funded staff training
themselves and highlight the seminars on citizen-oriented services.
They have also designed self-evaluation forms;
Introduction of ISO standards in Sarajevo Centar, Tešanj and
Laktaši;
Modernisation of procedures;
Introduction of the “One stop shop” model;
Monthly performance analysis;
Participation of citizens in specific projects;
Most municipalities have resources for cooperation with the NGO
sector;
Municipal staff performance self-evaluation forms were
introduced.
Recommendations
How can municipalities serve the citizens and respond to their needs?
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Municipalities need greater financial support
Resources must be adequate if municipalities are to fulfil their
competences
Computerisation and networking of all municipalities
Cooperation of municipalities
Clearer definition of municipal competences
Budget planning
Speeding up reforms
Staff motivation
Greater accountability of municipal councillors who often obstruct
work, mainly for political reasons as the participants commonly
agree
Use Associations of Cities and Municipalities to boost mutual
cooperation
Training of municipal councilmen
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3.5.3 Transparency
Situation Analysis
Transparency was the third topic of our working groups. We started by
asking the participants how they understood this term and what they
thought of it. Everybody agreed that the expression “transparency” was
rather clumsy and proposed to replace it in local communication with
Bosnian expressions like “publicity of work”, “openness of work”…
Some representatives of municipalities do not understand the meaning
of the word “transparency”. Listening to the radio drama we heard in
some drama scenes that some pieces of information were accessible to
citizens and some were not. Some municipal employees still do not fully
understand that they have to be completely open to citizens. This is where
the Law on Access to Information collides with the Law on Administrative
Procedure i.e. the Law on Privacy. Seeking information about an ongoing
administrative procedure constitutes a violation of privacy, although the
gentleman from Gradačac said that the whole city knew what he was
doing at any time of the day.
Citizens can reach the Mayor of Gradačac on his cell phone until 11
p.m. and every citizen can call him at any time and the municipality
also has a hotline. Sometimes they leave rude messages, but still, every
message is listened to and all of them are displayed in the reception hall
so everyone can see what the citizens said and whom they criticised in
the municipality.
In addition to his idea to video monitor the municipal staff, the Mayor
of Gradačac also proposes secondment of municipal staff to foreign or
developed municipalities in BiH for short periods of time. Gradačac largely
draws on the experiences of Norway as its Mayor spent a long time there.
Corruption is hard to prove as no one is willing to talk about it. There is a
law regulating “gifts” and it provides legal grounds for punishing corrupt
staff.
Transparency is always perceived as something which is related to
computerisation, installing displays and info-desks. It seems that many
employees believe that they will become completely transparent with the
introduction of new technologies. This is a trap, since one can also be
transparent although one uses old fashioned equipment, because you can
use an old typewriter to issue instructions on how to solve problems.
We need to point out the excellent websites of some Sarajevo municipalities.
Many conference participants think that putting information on the
Internet is not very important considering the percentage of Internet
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users. Nevertheless it is important, since Internet communication is
growing by leaps and bounds.
Let us mention the radio drama again: one mayor said that no one listens
to the radio… but there is always someone listening to the radio or visiting
your web-site. Every single citizen deserves attention.
The abuse of the Law on Access to Information was highlighted during the
discussion. In some municipalities, some citizens file up to 90 requests a
daily and in a way harass municipal employees, so, in terms of improving
transparency, we need to educate the citizens, too, on what that law is
about and what sort of information they can get. That law does not entitle
them to ask about the private lives of municipal staff.
Politicisation was another problem that was highlighted. Municipal
councils often obstruct the efficiency of a municipality. A modern and
ambitious mayor with many ideas on how to improve transparency often
faces resistance in the municipal council.
Situation Analysis
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Transparency entails regular informing of the public
Educate citizens about their rights
Transparency entails ensuring adequate infrastructure and staff
Municipal job classification needs to clearly outline who works in
the information department
Provide as much information as possible free of charge
Municipal staff ask for payment to make statements to the media
Corruption is difficult to prove but there is a law defining gifts
Obstacles
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Technical equipment, non-existence of databases
Insufficient education of citizens
Low staff salaries do not motivate employees to be pleasant to
citizens
Non transparency of higher institutions vis-à-vis the municipality
Politicisation of municipal administration
Lack of qualified staff
Tradition – people are not used to seeking information
Good practice examples
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Regular press conferences
The opening of a public relations or an information department,
such as in the Centar Municipality
Frequent public opinion surveys and polls on the quality of
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municipal services; also, free information brochures distributed in
the Centar Municipality and municipal notice boards across the
city.
The Mayor of Gradačac invites citizens to see him one day per
week, and so far around 5,000 citizens have visited him, citizens
can reach him on his cell phone and the municipal hotline is on 24
hours a day.
Municipal session records are summarised and disseminated to
media
Recommendations to increase transparency
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Stricter internal reviews and exchange of internal reviewers
amongst municipalities
Amendment of legislation to ensure genuine de-politicisation of
municipal councillors
Regional association of municipalities and decentralisation
General training of journalists, staff and citizens
Pro-active approach to citizens
Harmonisation of subsidiary legislation with state laws
More powers should be delegated to local communities
This is an inspiring topic.
3.5.4 Summary of Recommendations
Out of the suggestions, which were formulated to improve the performance
of the three major problem areas, 11 recommendations were identified
as overarching. They apply to all three topics and therefore can be seen
as the basis of improving municipal administration.
The following recommendations have been formulated by the
group as desirable to improve municipal governance in BiH
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176
Stricter control system
Amend legislation to ensure genuine de-politicisation of municipal
councillors
Regional association of municipalities and decentralisation
General training (of journalists, staff, citizens)
Pro-active approach to citizens
Harmonisation of internal by-laws with state laws
Inform citizens they can launch disciplinary proceedings against
municipal staff – arguments
Resort to public debates and polls as much as possible
Promote cooperation between the administration and the NGO
sector
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Accountability Forum (Prnjavor) – the Mayor defends the approved
projects and outlines planned projects twice a year
The FBiH Local Self-Government Law is crucial and must be
implemented
Extract of concluding discussions
Amela Rebac, moderator
I think it is crucial that both citizens and staff are aware of the importance
of the Access to Information Law. Information about the administration
of the country is a public good and must be accessible to everyone.
It is in some cases limited by the Criminal Code or the Laws on Taxes
and Administration. Our discussions on transparency included several
excellent examples and public debates at the local community (MZ) level
on issues concerning every aspect of public life are very important.
In Mostar there was a public debate about plans related to urbanisation.
Prnjavor is an impressive example: they have a “Accountability Forum” – it
an ethical act of the Mayor who meets citizens twice a year and discusses
projects. The debate focuses on reports of implemented projects, citizens
are invited to make proposals and suggestions and the Mayor defends
his projects, but all is done through direct contact between the Mayor
and citizens. Such initiatives are important since the citizens in BiH feel
neglected, because the municipalities sometimes appear to be selfserving, as if they are there only for their own sake.
There are many positive examples and this is an opportunity to exchange
experiences. Radio Konjic for example, broadcasts meetings of the
municipal council. It is a form of transparency, as people can inform
themselves by listening to the broadcasts if they are not in the position to
read the brochures or visit websites. Konjic is not the only good example
of such transparency. Some municipalities established co-operation with
TV stations, which broadcast the sessions, either live, or at a later time.
In the general problems and recommendations, which you will receive
within the final report, we highlighted that the Mayor is the key person in
any municipality. Everything depends on him. If the Mayor is ambitious
and competent, a good manager who runs the municipality as if it were his
own company, (to the best of his abilities), and if he insists on spending
every penny cost-effectively, the success of the municipality will follow as
a consequence of this.
One of the problems is the cooperation with authorities at higher levels,
i.e. with cantons. Municipalities often have more modernised procedures
than the cantons. When a citizen searches for information beyond the
municipality, s/he is often unable to obtain it, since cantons tend to be
lax and, as a result, somewhat inefficient.
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Training programmes need to be elaborated for mayors resisting
development of their municipalities. They should be given every
opportunity, and like the Gradačac Mayor, they ought to attend
professional seminars and visit municipalities where they can widen their
knowledge. The working groups gave an interesting recommendation:
that mayors should meet more often at similar conferences, that the
associations of cities and municipalities should help to institute the
practice of rallying municipal staff and mayors at informal gatherings,
where they will exchange experiences, discuss specific topical issues and
make recommendations about the implementation of valid laws.
Finally, an important message was addressed to the International
Community (IC) and it regards the lack of transparency in promoting
their grant programmes. The participants in the conference called
on the IC to improve the promotion of their donation and marketing
programmes, directly contact and invite the municipalities to apply. For,
many municipalities implement projects and seek ways to join them ad
hoc, and others hear about it through the grapevine. The participants
think it would be useful if there were a database with all open tenders for
grants to improve municipal services. It will be easier to obtain terms of
reference of international grants if all the information were in one place.
Dževad Bećirević, Sarajevo Centar Municipality Mayor
Two of the presenters mentioned the absence of criminal penal measures
against corrupt municipal staff. I think there is nothing to add, for
corruption is a crime. All you need is evidence and to report it to the
police.
Amela Rebac, moderator
It is very difficult to prove corruption and, besides, colleagues at work
tend not to denounce each other.
Nikoleta Milašević, moderator
Our group mentioned corruption and how to punish it when we discussed
efficiency. Participants in our group agreed that there is corruption, that
we are aware of it, but that we do not react since it is not penalised. It
may be regulated by law, but the people in the municipalities are not
aware of any such examples. People have not said there are no penalties
for corruption, just that there are no examples of them being enforced.
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Part 4 - Summary of Conclusions
The project “Our Town, Our Future” used radio drama, outreach work
and a conference to raise awareness, initiate public debate and influence
attitudes about corruption and good governance. The primary target
group were municipal workers, but the project addressed the citizens of
BiH as a whole, promoting citizen rights and democracy. The activities
were based upon and accompanied by, comprehensive empirical research
to constantly measure trends and the impact on society.
The baseline research activities explored the attitudes of both municipal
workers and citizens taking into account the ethnic diversity of the country.
The following situation analysis, formulated by Dr. Colin Irwin was used
as a basis of all of the subsequent endeavours:
“….most people in Bosnia and Herzegovina share a common understanding
of what the major problems are and what needs to be done to achieve a
better future. There are some exceptions. Who was to blame for the war
but then most people also agree that this issue needs to be put to one
side so that the economy can be rebuilt, corruption brought to an end,
standards of education improved and the institutions of the state made
more effective. Although municipal employees are often thought of as
inefficient and unresponsive to the public’s needs they share these same
ambitions for the future and welcome the prospect of reforms that can
help them achieve these goals. Reaching a consensus on constitutional
change is not going to be easy but most people want it simplified and
want to join the EU along with their neighbours. With strong leadership
and a sense of vision all of this has the prospect of restoring a sense of
hope and this, above all else, is the people’s greatest desire.”
Secondary research and consultative testing complemented the empirical
findings with actual cases of corruption, relevant legal issues and examples
of daily problems within municipalities. The creative team started their
work based on valid and impartial research and developed an up-to-date
and relevant set of episodes, which tackled the issue of corruption and
ineffective governance.
A group of municipal workers and members of the creative team visited
Northern Ireland to share experiences with another severely divided
society. The study tour brought to light that although Northern Ireland
is well ahead as far as good governance and development is concerned,
communities in Northern Ireland lack substantially in joint approaches
towards reconciliation. Participants felt that Bosnia has achieved far more
in overcoming ethnic tensions in daily life and in re-building a multiethnic
society.
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Three pilot episodes of the drama were tested using the method of focus
groups, and the pilot audience contributed considerably to the success
of the drama. It made the project team aware that in tackling sensitive
issues, humour is a powerful means of offering criticism, but drawing a
balanced picture of positive and negative attributes is just as important;
in order to start the process of changing mindsets.
15 episodes were aired on 30 radio stations in BiH. The audience research
provides proof that the episodes were relevant to the problems of BiH
and succeeded in raising awareness about malpractice in municipal
administration. 72 per cent of municipal workers who listened to the
drama, stated that they learned something helpful for their daily work
and 57 per cent reported that the drama initiated discussions, which is
the first step towards rethinking attitudes.
The conference in Neum in November 2005 facilitated debate amongst
170 municipal workers from all over BiH, and provided a forum in which
to exchange experiences and identify obstacles as well as address
challenges.
The plenary sessions provided insight into the work of selected experts in
municipal administration and introduced examples of good practice, but
also reported on appalling cases of corruption. The main conclusions to
be drawn from the contributions are obviously, the poor implementation
of the Local Self Governance concept and the inadequate allocation
of financial resources between the state, the entity and the municipal
levels. The complicated artificial state system of BiH has resulted in
cases of contradictory jurisdiction and a highly politicised approach
towards initiating reforms and change. The discussions around Article 19,
(Freedom of Access to Information) and the whole concept of transparency
highlighted the fact that implementing democratic ideas in a transitional
society cannot be achieved purely by passing the relevant laws; legislation
needs to be accompanied by adequate training measures to counteract
misinterpretation and confusion on both ‘sides’, i.e. the public services
employees and the citizens.
The working group sessions listed major obstacles to good governance
such as the lack of funding for modernising facilities and providing training
to staff. They also identified political differences as a hurdle in the path
towards a joint approach to installing an efficient administrative body.
Despite the many obstacles, some municipalities could, nevertheless,
point to examples of good practice; having installed help desks, citizen
hotlines and removed public officers for conflict of interest.
The specific recommendation which municipal workers considered useful
for improving the system was, above all, to receive further education
on the actual meaning of transparency and good governance, and their
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practical implications for their daily work. They believed that international
experts would be helpful to provide further training in general and
proposed to organise study trips to modernised, efficient municipalities
in the country and abroad. Municipal employees supported the idea of
holding regular opinion polls on municipal service quality, in order to
receive feedback from citizens, and felt that it would be necessary to
have stricter internal controls, accompanied by a more effective means
to prosecute corruption. Although the legal basis is in place, actual cases
of prosecution are rare, and this was reported as the main obstacle in
dealing with malpractice.
Regarding the findings of the project, the most important conclusion to
be drawn is that municipal workers, above all, are citizens themselves.
Examples of good practice exist where individuals through strong leadership
and with a clear vision managed to overcome all obstacles to generate
true change in municipal administration. The project’s endeavours point
to the fact that individuals can act as the dynamos of change. The radio
drama as well as the conference contributed to the spread of positivity
and encouragement towards a concept of active citizenship amid the
difficult process of finding “your own way” to democracy.
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Appendix I
Contributors and Participants of the Conference
Participants:
Adžem, Enver - Municipality of Goražde
Alibegović, Munib - Municipality of Visoko
Alibegović, Vahid - Municipality of Konjic
Alilović, Vlado - Municipality of Vitez
Aničić, Ivo - Municipality of Vitez
Arapović-Galić, Ivanka - Municipality of Posušje
Avdić, Pašaga - Municipality of Banovići
Avdić Pašaga, - Municipality of Banovići
Avramović, Đoko - Municipality of Ugljevik
Babić, Daniel - Municipality of Stolac
Bajrić, Emilija - Municipality of Ključ
Barić, Mladenko - Municipality of Grude
Bećirbašić, Nermana - Municipality of Tuzla
Begić, Esad - Municipality of Cazin
Birač, Biljana - Municipality of Banja Luka
Borovac, Ivanka - Municipality of Žepče
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Brajić, Devdana - Municipality of Zenica
Buturović, Šačir - Municipality of Jablanica
Buza, Nizama - Municipality of Kakanj
Cviko, Lejla - Municipality of Centar
Ćeman, Smajo - Municipality of Tešanj
Ćenanović, Dženana - Municipality of Ilidža
Ćirkić, Ahmet - Municipality of Kotor Varoš
Ćorić, Božo - Municipality of Mostar
Čirković, Radislav - Municipality of Osmaci
Čolović, Blagoje - Municipality of Vlasenica
Čujak, Ivanka - Municipality of Neum
Čupić, Radenko - Municipality of Kotor Varoš
Damjanac, Milena - Municipality of Nevesinje
Dedić, Salem - Municipality of Jablanica
Dedović, Emir - Municipality of Novi Grad
Dervić, Sebila - Municipality of Velika Kladuša
Devedžić, Jasmin - Municipality of Maglaj
Dević, Nedeljko - Municipality of Teslić
Drakul, Violeta - Municipality of Foča
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Drobo, Abid - Municipality of Travnik
Duranović, Nijaz - Municipality of Jajce
Đelilbašić, Amira - Municipality of Travnik
Đukić, Slavica - Municipality of Bijeljina
Đurić, Nada - Municipality of Derventa
Đurić, Slavica - Municipality of Vlasenica
Džanbegović, Aida - Municipality of Bihać
Gogić, Mejra - Municipality of Živinice
Gurda, Merisa - Municipality of Kladanj
Hadžić, Husein - Municipality of Velika Kladuša
Hadžić, Faketa - Municipality of Breza
Halitović, Sadika - Municipality of Bosanska Krupa
Hasanbašić, Hajrudin - Municipality of Gradačac
Hasanbegović, Rada - Municipality of Centar
Hergić, Esma - Municipality of Bosanska Krupa
Hrnjić, Nisvet - Municipality of Jajce
Hušić, Jasmin - Municipality of Velika Kladuša
Huskić, Suad - Municipality of Tešanj
Ibrišimović, Mirsad - Municipality of Brčko
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Islamović, Mirzad - Municipality of Prijedor
Isović, Bisera - Municipality of Zenica
Ivković, Zdravko - Municipality of Mostar
Javaragić, Sead - Municipality of Bihać
Jeremić, Gospava - Municipality of Zvornik
Jovanović, Gorana - Municipality of Han Pijesak
Jovanović, Rade - Municipality of Ustiprača
Jovičić, Dejan - Municipality of Srbac
Jovičić, Ana - Municipality of Derventa
Kačar, Gordana - Municipality of Šipovo
Kadrić, Hidajeta - Municipality of Stari Grad
Kanlić, Nezir - Municipality of Ustiprača
Karić, Alija - Municipality of Osmaci
Kovač, Derviša - Municipality of Ilidža
Kovačević, Jovan - Municipality of Gacko
Kovačević, Nikola - Municipality of Vukosavlje
Krekić, Meliha - Municipality of Kladanj
Krnojelac, Rada - Municipality of Foča
Kuljaninović, Suada - Municipality of Živinice
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Kurbegović, Sinha - Municipality of Bihać
Lalić, Želimir - Municipality of Novi Grad
Landeka, Jelena - Municipality of Posušje
Lazić, Snježana - Municipality of Han Pijesak
Lipovača, Hamdija - Municipality of Bihać
Lučić, Ranko - Municipality of Berkovići
Lušničkić, Aida - Municipality of Ilidža
Macura, Vera - Municipality of Istočno Sarajevo
Makcimović, Dragica - Municipality of Zvornik
Marić, Vojin - Municipality of Banja Luka
Marić, Nebojša - Municipality of Doboj
Martinović, Gabrijela - Municipality of Orašje
Mehić, Emina - Municipality of Kakanj
Merdan, Branka - Municipality of Berkovići
Mesić, Zlatko - Municipality of Konjic
Mičić, Mladen - Municipality of Doboj
Miković, Branislav - Municipality of Nevesinje
Miličević, Džeraldina - Municipality of Zavidovići
Mitrović, Mirko - Municipality of Istočno Sarajevo
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Mujan, Amir - Municipality of Centar
Mujezin, Amela - Municipality of Novi Grad
Mulić, Amarildo - Municipality of Bihać
Muratović, Hasan - Municipality of Živinice
Mušić, Asima - Municipality of Bosanska Krupa
Mušinbegović, Hanka - Municipality of Visoko
Mustabašić, Mehmed - Municipality of Maglaj
Mustafić, Ferhat - Municipality of Gradačac
Nešković, Snežana - Municipality of Višegrad
Nosović, Dušanka - Municipality of Bileća
Nuhbegović, Mediha - Municipality of Tuzla
Omerbegović, Zekija - Municipality of Visoko
Paleksić, Nenad - Municipality of Doboj
Pamukčić, Alma - Municipality of Brčko
Papović, Dragan - Municipality of Gacko
Pavlović, Bosa - Municipality of Han Pijesak
Pekić, Žaha - Municipality of Prnjavor
Perendija, Dražan - Municipality of Višegrad
Pinjić, Samira - Municipality of Zavidovići
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Pozderović, Vojko - Municipality of Teslić
Pranjić, Janja - Municipality of Žepče
Prkačin, Đuro - Municipality of Stolac
Radovanović, Jagoda - Municipality of Bileća
Ramić, Edin - Municipality of Osmaci
Ramić, Nezim - Municipality of Goražde
Redžić, Jadranka - Municipality of Bihać
Rodić, Mišo - Municipality of Prijedor
Rodić, Dragutin - Municipality of Prijedor
Rudinac, Miladin - Municipality of Foča
Sadić, Mirsad - Municipality of Sanski Most
Salihbegović, Dijana - Municipality of Stari Grad
Salkanović, Evlijana - Municipality of Brčko
Samardžić, Muhamed - Municipality of Cazin
Spremo, Mladenka - Municipality of Bijeljina
Stjepanović, Nada - Municipality of Bijeljina
Stjepić, Slavko - Municipality of Tuzla
Stojić, Ivan - Municipality of Čitluk
Šabić, Enver - Municipality of Jajce
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Šarić, Mirsada - Municipality of Mostar
Šehović, Safija - Municipality of Stari Grad
Šibonjić, Šefik - Municipality of Gradačac
Šistek, Abdulah - Municipality of Ključ
Švraka, Behija - Municipality of Sanski Most
Tamindžija, Anđelka - Municipality of Bileća
Tatar, Fadil - Municipality of Konjic
Telalović, Ženana - Municipality of Breza
Tešić, Rade - Municipality of Šipovo
Travljanin, Vesna – Executive director, Association of Municipalities and
Cities of the FBiH
Trifković, Aleksandra - Municipality of Bosanski Brod
Tubaković, Borko - Municipality of Vukosavlje
Tukulj, Rizama - Municipality of Orašje
Ugren, Saša - Municipality of Srbac
Vidić, Lidija - Municipality of Prnjavor
Vujević, Predrag - Municipality of Ugljevik
Vujinović, Alvira - Municipality of Banja Luka
Vuković, Miroslav - Municipality of Bosanski Brod
Zahirović, Safet - Municipality of Breza
Živković, Vlado - Municipality of Prnjavor
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Contributors and Chairmen
Bećirević, Dževad - Head of the Municipality of Centar Sarajevo
Bešlagić, Adnan - Association of Municipalities and Cities of FBiH,
Sarajevo
Bešlić, Ljubo - Head of the Municipality of Mostar
Blagojević, Dr. Milan - Secretary of District Court in Banja Luka
Čavrag, Saša - Journalist “Nezavisne novine”, Banja Luka
Docherty, Michael - Head of Democratic Stabilisation and Social
Development, Delegation of the European Commission to Bosnia and
Herzegovina, Sarajevo
Đurić, Slaviša - Swiss Agency for Development and Co-operation (SDC),
Sarajevo
Halilović, Mehmed - Deputy Media Ombudsman FBiH, Sarajevo
Karapetrović, Ranko - Former Head of the Municipality of Laktaši
Komić, Jasmin - Deputy Head of the Municipality of Banja Luka
Kurtović, Mustafa - Head of Municipality Goražde
Ljeljak, Kimeta - Secretary of the Municipal Court in Mostar
Marić, Zvonko - Journalist FTV, Sarajevo
Prka, Zdravko – Head of Municipality Tomislavgrad
Šebek, Nenad, Executive Director, CDRSEE, Thessaloniki
190
Šimunović, Ljiljana - The Foundation for Sustainable Development FSD,
Sarajevo
Štitić, Anton - General Secretary, Association of Municipalities and Cities
of the FBiH, Sarajevo
Tuzlić, Dževdet – Local Marketing Research Director, CDRSEE, Thessaloniki
Zukorlić, Alma - Swiss Agency for Development and Co-operation (SDC),
Sarajevo
Moderators:
Ahmedović, Belma, Student, Sarajevo
Bužimkić, Alisa, Student, Sarajevo
Bajić, Ševko, Researcher, Mediacentar Sarajevo
Bubrić, Alma, Politologist, Jajce
Kalender, Aida, Researcher, Mediacentar Sarajevo
Milašević, Nikoleta, Journalist, Sarajevo
Rebac, Amela, Journalist, Mostar
Okuka, Helena, Ing. Management, Sarajevo
Tanović, Gildžana, Lawyer, Sarajevo
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Organisers:
Cigler, Renata - BBC World Service Trust, Sarajevo
Ćurulija, Nerma - BORAM Marketing, Sarajevo
Djolai, Marika - BBC World Service Trust, Sarajevo
Gackić, Amira - BORAM Marketing, Sarajevo
Haćimić, Amra - BORAM Marketing, Sarajevo
Kiš-Balić, Sanja - BORAM Marketing, Sarajevo
Merzić, Namik - BORAM Marketing, Sarajevo
Noack-Aetopulos, Corinna - CDRSEE, Thessaloniki
Sutton, Ruth - CDRSEE, Thessaloniki
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