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DOI: https://doi.org/10.34069/AI/2022.56.08.13
How to Cite:
Sidorova, E., Dniprov, O., Yunina, M., Bobrishova, L., Mkrtchian, K. (2022). Administrative and legal principles of public control
over the implementation of state policy in the humanitarian sphere. Amazonia Investiga, 11(56), 124-131.
https://doi.org/10.34069/AI/2022.56.08.13
Administrative and legal principles of public control over the
implementation of state policy in the humanitarian sphere
Адміністративно-правові засади публічного контролю за реалізацією державної
політики в гуманітарній сфері
Received: September 28, 2022 Accepted: October 31, 2022
Written by:
Sidorova Elvira55
https://orcid.org/0000-0002-1761-1583
Dniprov Oleksii56
https://orcid.org/0000-0002-7157-9748
Yunina Maryna57
https://orcid.org/0000-0003-0311-4591
Bobrishova Liliia58
https://orcid.org/0000-0003-1022-4027
Mkrtchian Karine59
https://orcid.org/0000-0002-4309-3900
Abstract
The aim of the article is to study the functioning
and legal regulation of public control over the
implementation of State policy in the
humanitarian sphere. The subject matter of the
article is public control. Methodology. The
following methods were used during the
research: institutional, interpretation, legal and
dogmatic, monographic, system, scientific
abstraction, summarizing. Results. Various
approaches to the concepts of "control",
"supervision", "public control", proposed in the
scientific domestic and foreign literature are
considered. It is stressed that such control has the
following forms: State, international, municipal
and public; the priority of the investigated
phenomenon in Ukraine in the context of
European integration processes is emphasized.
The lack of a unified approach in the legislation
regarding the definition of this term is
considered, which is the reason for its
heterogeneous interpretation. Practical
implementation. It is proposed to develop and
adopt a single unified Law "On Public Control",
55
Candidate of Legal Sciences, Associate Professor, Deputy Director of the Educational and Scientific Institute of Law and Specialist
Training for National Police Units of the Dnipropetrovsk State University of Internal Affairs (Dnipro, Ukraine).
56
Doctor of Legal Sciences, Deputy Head of the Office of the President of Ukraine (Kyiv, Ukraine).
57
Candidate of Legal Sciences, Associate Professor, Associate Professor of the Department of Civil Law and Process of the
Dnipropetrovsk State University of Internal Affairs (Dnipro, Ukraine).
58
PhD in Law, Deputy Head of the educational and methodological department of Dnipropetrovsk State University of Internal Affairs
(Dnipro, Ukraine).
59
Lecturer of the Department of general law disciplines of Dnipropetrovsk State University of Internal Affairs (Dnipro, Ukraine).
Sidorova, E., Dniprov, O., Yunina, M., Bobrishova, L., Mkrtchian, K. / Volume 11 - Issue 56: 124-131 / August, 2022
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which will regulate in detail all the issues related
to the implementation of this institution.
Value/originality. Based on the analysis of
scientific work and legal instruments, the
authors’ determination of the concept of “public
control over the implementation of state policy in
the humanitarian sphere” is provided.
Keywords: control, municipal control, public
control, State control, supervision.
Introduction
The effectiveness of State policy in the
humanitarian sphere depends on control, which
in turn contributes to the development of the so-
called human resource and human capital, which
are one of the main indicators of the country’s
success. In turn, education and science, for
example, are key conditions for the development
of human capital. By the way, we note that in
successful countries, priority is given to the
development of the so-called human resource
and human capital, high technologies, but there
is little internal demand for intelligence and new
knowledge in Ukraine, although intelligence and
knowledge are the main resources of the State
(Yunin, Sevruk &Pavlenko, 2018, p. 362).
In order to consider the issue of administrative
and legal foundations of public control over the
implementation of State policy in the
humanitarian sphere, it is worth paying attention
first to the conceptual and categorical apparatus
of the problem.
The Ukrainian legislator does not solve the
discussion about the identity or difference
between the concepts of «supervision» and
«control» in the scientific literature, since there is
no single legal instrument, where the concepts of
control or State supervision would be clearly
defined. “Control” and “supervision” are often
used as synonyms in Ukrainian legislation (for
example, the legislator emphasizes the
preventive, prophylactic nature of State
supervision, which is aimed at ensuring legality
and law and order in a specific sphere of social
relations; control and supervision are closely
linked as a means of ensuring the rule of law.
Besides, some researchers (for example,
Shemelynets and Pozniak) (2016) stress on the
use of the combined expression “supervision
(control)” in the corresponding regulations by the
legislator.
That is why the aim of the Article is to reveal
some issues of functioning and legal regulation
of public control over the implementation of
State policy in the humanitarian sphere.
Methodology
The research is based on the application of
general and special legal methods. In particular,
institutional method was used to investigate
public control as an institution, which ensures
citizens’ political activity in the implementation
of State policy in the humanitarian sphere, their
co-operation with the representatives of public
authorities and local self-government.
The method of interpretation was applied to
reveal the concepts of “control” and
“supervision”.
Legal and dogmatic method helped to examine
the rules of legal instruments, enshrining the
notions of public, State, government, municipal
and other types of control in Ukraine.
Monographic method was useful in investigating
the works of scholars, who conducted the
research on the category under consideration.
With the help of system method the types of
control were identified.
The method of scientific abstraction made it
possible to develop the authors’ definition of the
term “public control”.
Summarizing method was applied to make
adequate inferences and propose amendments to
the current legislation.
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Literature Review
For example, Musaev et al., (2020) prove that
public control in the system of public
administration should be implemented on a
regular basis, but the lack of people’s legal and
political awareness impedes this process.
Besides, there is certain influence and even
pressure by the State and NGOs, what doesn’t
contribute to the development of this institution.
Dzhumabaev and Raymbaev (2019) share the
opinion that fundamentally important point is the
issue of participation of citizens and the public in
monitoring the activities of the State apparatus
and the provision of public services, therefore it
is crucial to find new channels of influence of
civil society on State agencies, develop
accessible and understandable mechanisms for
citizens to control the government activities.
Belokrylova (2017) stresses on the importance of
strengthening the integration and interconnection
of the still fragmented, information-driven
projects for the implementation of the functions
of public control by civil society over various
areas of State activity. Besides, popularization of
public control mechanisms is possible through
advanced training of its actors, including
potential ones.
According to Nironka (2019), public control is
not only an integral component of public
administration and local self-government, but
also the most important factor in the development
of civil society. It is needed, first of all, by the
public authorities themselves in order to increase
the efficiency of their activities and provide
additional measures to protect them from being
taken over by influential political and economic
groups. In addition, for its successful functioning
and development, the government urgently needs
to constantly coordinate its actions with public
needs and interests, which are expressed by the
population both directly and through the
institutions of civil society. Public control is one
of the main means of such coordination.
Mykhailov (2020) states that public control is an
important form of democracy, because it gives
the people an opportunity to participate in State
management, in solving state and society
matters, actively influence on the public
authorities’ and local governments’ activities.
Muzychuk (2010) emphasizes that such control
is a type of social control, which is implemented
by the association of citizens and by citizens
themselves, is a form of democracy realization
and inclusion of population to the State and
society management.
Results and Discussion
Indeed, Ukrainian legislator enshrines the
concept of “State supervision (control)” in some
legislative acts, namely, in the Law “On the Main
Principles of State Supervision (Oversight) in the
Area of Commercial Activity” (Law of Ukraine
No. 877-V, 2007). Thus, Par. 2, Art. 1 of this act
indicates that “State supervision (oversight) shall
be defined as activities of central executive
authorities empowered by law, their territorial
bodies, state collegial bodies, executive
authorities of the Autonomous Republic of
Crimea, local state administrations, local
authorities (hereinafter referred to as state
supervision (oversight) bodies) within the
powers provided by law, to identify and prevent
violations of the law by business entities and
ensure the interests of society, in particular, by
the proper quality of products, works and
services, the permissible level of danger to the
population and the environment”.
From the point of view of law and legal sciences,
control and supervision can also be divided into
public and private. The public one is
implemented in the public administrative and
legal sphere, and the private one is carried out in
public relations that are of private legal nature
(Kravchuk, 2015, p. 211). Some researchers
generally reduce public control to an arbitrary
form of public participation in the supervision of
the activities of management institutions.
Bukhanevych (2009, pp. 29–30) follows a
similar approach, relying on the scientific
positions of some Western European, namely
German and French researchers. On the other
hand, Kravchuk (2015) states that public control
in the State refers to the system of organizational
and legal forms of ensuring compliance with
legality in the activities of public administration,
human rights and freedoms, effective
performance of powers and tasks by State
authorities, local governments and their officials.
There are different approaches not only to the
perception of the concepts of control,
supervision, public control, but also to the
classification of types of control. For example,
depending on the place of the subject of control
in the State administration system, some
researchers distinguish 8 types of control:
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legislative control; by the President of Ukraine;
by the Cabinet of Ministers; control by the
central public authorities; by local State
authorities; judiciary control; by local self-
government bodies; public control. This
approach does not single out such control as
governmental (judicial, presidential, etc.) and
public, municipal, etc.
Other researchers consider only the types of
public control and, depending on the entities that
have the right to exercise it, divide them into two
large, relatively independent groups: the first
includes presidential control, parliamentary
control, control by executive bodies, control by
courts of general jurisdiction (what unites them
is that control is not the only function of these
bodies). The second control group consists of the
authorities, which have a single control function
(for example, constitutional control,
prosecutorial supervision, control by the
Commissioner for Human Rights, control and
audit bodies of the executive power) (Tsependa,
2019).
If we consider State policy in the humanitarian
sphere as the formation of public and legal
fundamentals of activity of subjects of authority
and various institutions of civil society involved
in this process in such areas as education and
science, culture and information, health care,
sports and tourism, development of civil society,
humanitarian security, in which State authorities,
local governments, civil society institutions
participate, then it can be stated that public
control over the implementation of State policy
in the humanitarian sphere is a system of
organizational and legal forms of respect for the
rule of law in the activities of public authorities
and local self-government, their officials, who
are entrusted with the tasks of implementing
State policy in the sphere of health care,
education and science, cultural and informational
sphere, sports and tourism, development of civil
society and human capital, humanitarian
security, which takes place in the form of State
control, international control, municipal control
and public control (which in today’s conditions
is highlighted as a key and priority in the context
of Ukraine’s European integration aspirations, as
well as because of the proximity of the
humanitarian sphere directly for the citizens of
Ukraine).
In turn, the following can be distinguished in the
State control over the implementation of State
policy in the humanitarian sphere. The key,
clearly, is presidential control, based on the
strategically important role of the President of
Ukraine in the system of checks and balances of
the branches of power in Ukraine and in the
context of the overall implementation Ukraine’s
policy implementation in all areas of interest and
benefit of the people of Ukraine. Such control
can be implemented directly or through some
institutions under the President of Ukraine
(Office of the President or, for example, in the
field of child protection and until recently
through the Presidential Commissioner for the
Rights of the Child).
Note that in accordance with Art. 85 of the
Constitution of Ukraine (Law of Ukraine
No. 254k/96-VR, 1996), the Verkhovna Rada of
Ukraine, as the only body of legislative power in
Ukraine, in fact, determines the foundations of
both foreign and domestic policy; it approves
national programs on economic, scientific and
technical, social, national of cultural
development, environmental protection. The
Verkhovna Rada also supervises the activities of
the Cabinet of Ministers of Ukraine (which is
entrusted with the important task of
implementing State policy, including in the
humanitarian sphere).
At the same time, the Verkhovna Rada of
Ukraine can exercise parliamentary control over
adopting public policy in the named area through
its structural subdivisions or bodies created by
the legislative authority of Ukraine. The key role
here belongs to the Commissioner for Human
Rights of the Verkhovna Rada of Ukraine.
According to the rules of the Law “On the
Ukrainian Parliament Commissioner for Human
Rights" (Law of Ukraine No. 776/97-VR, 1997),
the Commissioner implements parliamentary
control in the sphere of social relations that arise
in the exercise of the liberties and freedoms of an
individual and a citizen between a citizen of
Ukraine regardless of his (her) place of
residence, a foreigner or a stateless person, who
are on the territory of Ukraine, and state
authorities, local self-government bodies and
their officials and employees. That is, control is
performed over the observance of citizens' rights
in the exercise of their non-material rights and
benefits such as health care, education, etc.
Specialized committees (on the issues of health
care, education and science, etc.) may operate
under the Council. The Law "On Committees of
the Verkhovna Rada of Ukraine" (Law of
Ukraine No.116/95-VR, 1995) clearly states that
committees carry out control functions, including
in the form of analysis of the practice of applying
legislative acts in the activities of state bodies,
their officials on issues related to the committees'
tasks, preparation and submission of relevant
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conclusions and recommendations for
consideration by the Verkhovna Rada of
Ukraine.
In exceptional cases, temporary investigative
measures may be taken under the Verkhovna
Rada. The temporary investigative commission
is formed from among People’s Deputies of
Ukraine; it exercises parliamentary control by
conducting an investigation on the issues of
public interest, including issues related to the
implementation of State policy in the
humanitarian sphere (Law of Ukraine No. 400-
IX, 2019).
Judicial control is carried out by courts as a result
of their direct activity in protecting the rights and
freedoms of Ukrainian citizens, ensuring legality
in Ukraine. Such control is manifested in the
activity of the trial, when acts of government and
local government, engaged in the
implementation of State policy in the
humanitarian sphere, resolution of conflicts
between citizens and public agencies (including
those arising as a result of the professional
operation by their officials) are checked
(Denysova, 2016, p. 5).
In our opinion, the administrative courts of
Ukraine play a key role here, since the main task
of administrative courts is the fair, impartial and
timely resolution of disputes in the field of public
and legal relations in order to effectively protect
the rights, freedoms and interests of natural
persons, legal entities from violations by subjects
of authority (Law of Ukraine No. 2747-IV,
2005), which arise as a result of the actions of
those actors that implement public policy in the
humanitarian sphere.
If we talk about prosecutorial supervision, as a
result of the 2016 reform (constitutional changes
concerning the Prosecutor’s Office) and on the
basis of the relevant Law of Ukraine No. 1697-
VI (2014), the powers of the agency in this matter
were significantly narrowed, and now the it
performs the function of monitoring the
observance of human and civil rights and
freedoms, compliance with the law on these
issues by executive authorities, local self-
government, their officials and employees
exclusively in the form of representation of the
interests of the citizen or the State in court.
The most complex and extensive in terms of the
number of control bodies and relevant powers in
the State control system is government control,
or control by the executive branch. Such control
has several levels. The Cabinet of Ministers of
Ukraine is actually at the highest level, then
control is carried out at the level of central
executive bodies, and the lowest is the level of
local state administrations, local executive
bodies. Besides, control may be over-agency or
outside one, when there is lack of subordination
of the controlling entity and the controlled object;
departmental or internal control exists in the
executive branch, local self-government, whose
task is the implementation of public policy in
humanitarian sphere, and it is implemented by
them for subordinate units (Isakov, 2012, p. 388).
In addition, there are also specific instances in the
system of executive power that exercise control
over a certain specific sphere of humanitarian
policy implementation, such as the
Commissioner of the Verkhovna Rada of
Ukraine for Human Rights. As we know, in
recent years the Ukrainian authorities have paid
considerable attention to ensuring the
functioning of the public space of the Ukrainian
language as the State language, and respectively,
the post of Commissioner for the Protection of
the State Language was introduced. The
authorized representative ensures monitoring the
implementation of the legislation on the State
language, State targeted programmes to ensure
comprehensive development and functioning
Ukrainian language as the State one (clause 2,
part 4, article 49 of the Law); carries out state
control over the use of the state language by state
authorities, authorities of the Autonomous
Republic of Crimea, local self-government
bodies, enterprises, institutions and organizations
of state and communal forms of ownership, their
officials and employees, as well as public
associations, political parties and other legal
entities persons, their officials (Law of Ukraine
No. 2704-VII, 2019).
International control is quite specific one, as it
can be carried out not through Ukrainian national
State institutions or the State directly, but in
compliance with international obligations, -
through international governmental and non-
governmental organizations. For example, OSCE
monitoring missions, ICRC mission to Ukraine
operate in our country (or have been operated,
but suspended their activity as a result of full-
scale aggression by the Russian Federation).
It is worth focusing on public control, which we
consider to be a priority in modern conditions
and trends in the development of the Ukrainian
state and law, civil society. Currently, the general
definition of the concept of "public control" is not
unified and standardized; there is no special law
determining the unified principles of the
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institution of public control, public control over
the implementation of State policy in the
humanitarian sphere. We agree with Yunin
(2021, p. 203), who, in the context of research on
the issue of public control over the activities of
the National Police of Ukraine, correctly notes
that the absence of such a legal instrument leads
to a broad interpretation of the concept of public
control. The scientist presents the author’s vision
of public control over the activities of the
National Police of Ukraine: "it is a complex of
measures carried out in accordance with the
Constitution and laws of Ukraine by the
representatives of the public (individual citizens
and/or public associations) aimed at checking
(observation, supervision) compliance with the
law by the National Police units or some of its
officials during the performance of the tasks and
duties of the National Police and its officers, as
well as at the interaction of the police with the
public for the preparation and implementation of
joint projects, programs and measures to meet the
needs of the population and improve the
effectiveness of the police in meeting the stated
objectives». Although this concept refers to the
control of police activities, the definition is
comprehensive one and can be used in our study
to better understanding the concept of public
control.
At the same time, this definition is also contained
in Ukrainian legislation. For example, according
to the Law of Ukraine No. 1556-VII (2014),
public control in the area of higher education is
the right of society and individual citizens,
employees, students, public self-government
bodies, professional unions, employers’
organizations and their associations, public
organizations to receive access to information at
all stages of decision-making in the field of
higher education and science, to make proposals
and comments on them, to agree on the adoption
of decisions defined by law; the actors of such
control are individual citizens or public
associations.
At the same time, legal instruments regulate not
only of public control issues over certain sphere
of policy implementation in the humanitarian
sphere, such as higher education; for example,
the Resolution of the Cabinet of Ministers of
Ukraine No. 996 (2010) defines general
principles of participation of citizens in matters
of influence on decision-making regarding the
establishment by the State of basic foundations
for its own activities in a wide range of spheres
of public life. This Resolution enshrines the main
tasks of public councils at central authorities,
Ministries or local administrations, and the
concept of monitoring, not control or
supervision, is used. Thus, among the tasks of
these councils is the involvement of
representatives of interested parties in holding
consultations with the public and monitoring the
results of establishing and implementing the
State and regional policies; conducting, in
accordance with the legislation, public
monitoring of the executive authority activities.
In addition to public organizations, individual
citizens, public councils under executive
authorities at all levels, the entities are also trade
unions, labor collectives, etc.
We consider it necessary to emphasize the so-
called municipal or local government control.
Local councils as representative bodies of local
self-government, are entitled to monitor the
implementation of socio-economic or cultural
development programs by local executive
bodies, which are part of adopting the State
policy in the humanitarian sphere, they also may
establish temporary supervisory commissions on
certain local issues (Kravchuk, 2015, p. 213).
Thus, according to the Law of Ukraine No.
280/97-VR (1997), regional and district councils
can form temporary control commissions of the
council to carry out control over the issues
specifically determined by the council, which
belong to the powers of local self-government.
Besides, the objects of pre-school, school and
out-of-school facilities, boarding schools;
objects of health care and social security; objects
of culture, physical culture and sports, etc.
(which are directly engaged in the provision of
services in relation to implementation by citizens
of their intangible rights in the humanitarian
sphere, namely the right education, health care,
etc.) are among the objects of communal
ownership. The relations of local self-
government bodies with these institutions and
organizations, which are communal property of
the respective territorial communities, are
established on the basis of their subordination,
accountability and control to the named agencies.
Conclusion
Thus, as a result of the research, we came to the
following conclusions:
1) There are various approaches to such
definitions as "control", "supervision",
"public control" in the scientific literature.
The scholars often equate the concepts of
control and supervision; some of them
believe that supervision is a derivative of
control, the others believe that control and
supervision are different concepts in their
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content. This situation is caused by the fact
that the legislator did not unify these
categories in a single legal act. We, in turn,
propose the definition of public control over
the implementation of State policy in the
humanitarian sphere as the system of
organizational and legal forms of
observance of the law in the activities of
State authorities and local self-government
bodies, their officials that have been
entrusted with the implementation of the
State policy in the area of health care,
education and science, cultural and
information sphere, sports and tourism,
development of civil society and human
capital, humanitarian security, which takes
place in the form of State control,
international control, municipal control and
public control;
2) public monitoring of the implementation of
State humanitarian policy takes place in the
form of State control, international, judicial,
municipal and public control (we consider
the development of the institution of public
control a priority). The most complex and
extensive is government control, or control
by executive authorities. It is multi-level in
terms of the administrative and legal status
of the body exercising it in the system of
executive authorities. The highest agency is
the Cabinet of Ministers of Ukraine as an
institution, the next level are ministries and
central executive authorities, and the lowest
one is the level of local State administrations
and executive bodies.
There is no unified interpretation of the definition
of public control in scientific literature and
legislation. We believe that the Resolution
No. 996 (2010) is not is not a full-fledged
instrument to regulate such an important
institution as public control. So, we propose to
develop and adopt a unified Law On Public
Control, which will govern in detail the issue of
such control by State authorities (especially the
executive ones and not only those bodies
involved in the implementation of public policy
in the humanitarian sphere, but also law
enforcement ones), and local government.
At the legislative level, we propose to unify and
establish a single interpretation at the conceptual
categorical level of such concepts as "control"
and "supervision", "public supervision".
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