Instituto de Estudios Políticos y Derecho Público "Dr. Humberto J. La Roche"
de la Facultad de Ciencias Jurídicas y Políticas de la Universidad del Zulia
Maracaibo, Venezuela
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Vol. 39, Nº 69 (Julio - Diciembre) 2021, 796-813
IEPDP-Facultad de Ciencias Jurídicas y Políticas - LUZ
Recibido el 12/04/2021 Aceptado el 25/06/2021
Means for control over the
activities of public authorities by
civic democratic institutions: the
conceptual framework analysis
DOI: https://doi.org/10.46398/cuestpol.3969.49
Iryna M. Gryshchenko *
Alina V. Denysova **
Olga O. Ovsiannikova ***
Hanna S. Buha ****
Elena I. Kiselyova *****
Abstract
The purpose of the article is to develop the bases of citizen
participation in the management of state aairs. The theme of
the research is the participation of civil society in the process of
integration in its dierent stages, as well as the conditions and
processes of institutionalization of civil society. The objective is to study
the forms of participation of civil society in the integration process and the
dynamics of institutionalization of the latter. Comparative analysis was a
key method. The results show that democratic civic institutions in countries
with a high level of socio-economic development show a higher level of
political activity than democratic institutions with a low level of socio-
economic development. The eectiveness of control over the activities
of public authorities is greater in the institutional agents of civil society
than in the individual ones. In conclusion, the list of forms of interaction
between civic and public institutions was expanded. Moreover, the article
identies new elements of the legislative machine for the control of public
authorities by democratic civic institutions that seek to increase social
control in thepoliticalsystem.
* Doctor of Administrative Sciences, Associate. Professor of the Department of Public Administration
and Innovation Management, National University of Life and Environmental Sciences of Ukraine.
ORCID ID: https://orcid.org/0000-0002-8191-1177. Email: Gryschenkoiryna45@ukr.net
** Doctor of Law, Associate Professor, Head of Department of Administrative Law and Administrative
Process, Odesa State University of Internal Aairs. ORCID ID: https://orcid.org/0000-0001-5551-
9297. Email: apapoduvst@gmail.com
*** PhD in Law, Associate Professor of the Department of Judicial Organization and Prosecutorial
Activities, Yaroslav Mudryi National Law University. ORCID ID: https://orcid.org/0000-0001-7773-
6487. Email: olgaalexovs45@gmail.com
**** PhD in Law, Associate Professor of the Department of Administrative and Law Disciplines, Faculty 2,
Donetsk Law Institute of MIA of Ukraine. ORCID ID: https://orcid.org/0000-0003-3957-7387. Email:
annabuha84@gmail.com
***** Doctor of Law, Professor at the Department of Administrative, Economic Law and Financial and
Economic Security, Educational-Scientic Institute of Law, Sumy State University. ORCID ID: https://
orcid.org/0000-0002-5625-0952. Email: lenakiseleva2005@gmail.com
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Vol. 39 Nº 69 (Julio - Diciembre 2021): 796-813
Keywords: judicial power; public opinion; public organizations; public
administration; public authority.
Medios de control sobre las actividades de las
autoridades públicas por parte de las instituciones cívicas
democráticas: el análisis del marco conceptual
Resumen
El propósito del artículo es desarrollar las bases de la participación
ciudadana en la gestión de los asuntos estatales. El tema de la investigación
es la participación de la sociedad civil en el proceso de integración en sus
diferentes etapas, así como las condiciones y procesos de institucionalización
de la sociedad civil. El objetivo es estudiar las formas de participación
de la sociedad civil en el proceso de integración y las dinámicas de
institucionalización de la esta. El análisis comparativo fue un método clave.
Los resultados evidencian que las instituciones cívicas democráticas en
países con un alto nivel de desarrollo socioeconómico muestran un mayor
nivel de actividad política que las instituciones democráticas con un bajo
nivel de desarrollo socioeconómico. La efectividad del control sobre las
actividades de los poderes públicos es mayor en los agentes institucionales
de la sociedad civil que en los individuales. A modo de conclusión se amplió
la lista de formas de interacción entre instituciones cívicas y públicas. Por
lo demás, el artículo identica nuevos elementos de la máquina legislativa
para el control de las autoridades públicas por parte de las instituciones
cívicas democráticas que buscan incrementar la contraloria social en el
sistema político.
Palabras clave: poder judicial; opinión pública; organismos públicos;
administración pública; autoridad pública.
Introduction
An analysis of dierent scientic positions allows us to conclude that civic
society is considered an intermediary sphere in which market participants
act, and which signicantly stands out from public authorities. Scientists
interpret the term “civic institution” comprehensively, considering as such
not only public organizations, but also funds, municipalities and communal
associations of citizens, research and educational institutions, trade unions,
employers associations and industry associations, non-prot media and
other parties concerned (Ardag et al., 2019).
798
Iryna M. Gryshchenko, Alina V. Denysova, Olga O. Ovsiannikova, Hanna S. Buha y Elena I.
Kiselyova
Means for control over the activities of public authorities by civic democratic institutions: the
conceptual framework analysis
Strengthening the role of EU civic institutions in Eastern Europe is often
accompanied by the provision of equal nancial and technical support to
local civic institutions. The EU also uses a cooperation model based on
partnerships between public authorities and civic institutions (McGregor,
2019).
This is mostly due to the willingness of local civic institutions to
cooperate with external actors such as the EU, as well as with other civic
society actors in Eastern Europe. In addition, civic institutions in Eastern
European structurally weak democratic states require information, material
and technical support. Therefore, as a rule, they need to have the necessary
organizational structure or professional potential.
For the EU, civic institutions are advantageous as cooperation partners
due to their social orientation. This makes it much easier for EU institutions
to nd a suitable social protection partner.
If we consider the positions of scientists who study the inuence of civic
institutions on the public policymaking in various spheres of public life
(Abou-Chadi and Krause, 2020), they come down to the following scheme
(Figure 1):
Figure 1: Evolution of civic institutions’ inuence on the activities of
public authorities
Source: own elaboration
Supporters of the position that there is no civic institutions’ inuence on
the state policy implementation, as well as control over its implementation,
exclude the need for a “public and state sovereignty war”, which destructively
aects the state and society development (Denedo et al., 2019). There are
researchers who emphasize the negative potential of civic institutions – the
spread of separatist, chauvinistic, racist appeals, which prevents them from
becoming a state power tool actor (Howell, 2019).
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Supporters of the position regarding the participation of civic institutions
in the activities of government entities having an advisory vote right believe
that the scope of powers of public authorities signicantly prevails the
scope of powers of civic institutions. This is necessary to ensure the law and
order in the state and society. Therefore, civic institutions should not strive
to become “unocial government” (Han et al., 2020).
The active participation of civic institutions in the state policy
implementation is a minority position in the scientic eld. After all, the
means of contol and balance does not provide for the participation of civic
institutions in the executive authority’s system. The research complexity also
depends on diculty to track and evaluate the activities of civic institutions
using technical or sociological methods. In addition, the legislation of the
studied countries denes the scope of rights and obligations, the procedure
for establishment and activities of civic institutions in dierent ways.
However, it was possible to develop a number of scientic indicators to
analyse the activities of civic institutions (Chatain and Plaksenkova, 2017;
Liinason, 2020).
Here are two examples of proposed systems for civil society evaluation
– rst was developed thanks to the eorts of like-minded activists, second
– thanks to scientists:
• The Civil Society Index (CSI) was developed by the Civicus
international organization, which positions itself as the global
alliance of civil society organisations and activists. The center of this
organization is headquartered in Johannesburg, South Africa.
• The Global Civil Society Index (GCSI) was developed by the John
Hopkins’ Center for Civil Society Studies, USA.
However, assessing the general level of civic institutions development,
we can talk about their active development in Western Europe and North
America countries. At the same time, most researchers note the weakness
of civic institutions in Central and Eastern Europe. Therefore, the need to
develop eective powers to control of civic institutions predetermines the
relevance of this research.
Underlying Hypothesis
Our research is based on three hypotheses:
1. The rst hypothesis is that the civic democratic institutions’
participation in the process of control over the activities of public
authorities is irregular: civic democratic institutions in countries
with a high level of socio-economic development show a higher
level of social activity than democratic institutions with low level
of socio-economic development. This is because the process of the
800
Iryna M. Gryshchenko, Alina V. Denysova, Olga O. Ovsiannikova, Hanna S. Buha y Elena I.
Kiselyova
Means for control over the activities of public authorities by civic democratic institutions: the
conceptual framework analysis
legal framework development for the civic institutions’ activities
and the institutionalization of the interaction for civil society with
the European Union institutions proceeded consistently from the
establishment of the integration association.
2. The second hypothesis is that the eectiveness of control over the
activities of public authorities is higher in institutional actors of civil
society than in individual ones.
1. Literature Review
Civic institutions are the research basis for many scholars, but Bolleyer
(2018) deserves special attention, as the rst attempt too examine these
issues across a wide range of western democratic traditions. The reasearcher
writes a second book that studies the various ways of civic institutions
to develop civil society participation and advocacy. In short, Bolleyer
experience and research can help civil society to accept it changing role and
provide information on upcoming legal decisions. The author explained:
There is a democratic crisis across Europe and many people are turning their
backs on politics, making civic institutions more important than ever for linking
citizens and government entities. Therefore, there is a question as to how the
state itself, through certain legislative decisions, intentionally or unintentionally
governs these opportunities (Bolleyer, 2018: 125).
From European point of view, for some time, there have been trends
towards strengthening government regulation of civil society. These
events have accelerated in recent years. Actions to overcome the terrorism
have contributed to the development of a so-called “diminishing eld of
maneuver for civil society”, leaving civil society less and less opportunities
for eective self-expression and inuence on decision-making – a
phenomenon recognized by the EU, the Council of Europe and various
non-governmental organizations. COVID-19 has also contributed to this
alarming trend (Goncharenko, 2019).
In the work by Greenberg and Rubinstein (2013) the civic institutions
are considered as an eective tool for protecting citizens from the public
authorities’ arbitrariness. A real opportunity for citizens to use democratic
governance powers. If we consider the civic institutions inuence from the
standpoint of research, then it is worth highlighting several basic directions
(Jia, 2019).
Representatives of the rst direction carried out comparisons of various
democratic regimes. The focus of the study was the statement that the
increased dependence of civil society on government funding and regulation
will have negative consequences for the society internal functioning and
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activities. The legislation was studied and its impact on parties, interest
groups and civic institutions was assessed (Bolleyer, 2018).
The research results can be divided into two categories: many scholars
believe that there is a general tendency towards the adoption of more or
less restrictive regulations, depending on the traditions of law and state,
as well as the corresponding democratic history. This means that dierent
democracies, more or less resistant to the civil society space erosion, when
faced with exceptional circumstances (such as terrorism or the current
pandemic), foster more restrictive legislation (Jones and Malis, 2020).
Other scholars have noticed dierent consequences of dierent
relationships between state and society. For example, members of
organizations that rely heavily on paid sta, which often becomes possible
and is enhanced by government funding, tend to have less inuence over
internal decisions. In other words, they are less democratic within the
country (Denedo et al., 2019).
McGregor (2019) studies the civil society contribution to democracy in
more detail. “Essentially, the study shows the complex consequences of
central organizational properties, such as qualication level or dependence
on government funding. In particular, the study examines the participation
of community members in the organization and whether the political
interest group can respond to social demands and concerns”.
The second direction is aimed at the typology and classication of
democratic institutions, as well as their control measures (Han et al., 2020).
Representatives of the third direction consider the prospects for a radical
change in the civil society development vector, its transition to the political
level, which provides real management capabilities. We nd this position in
the work of White (1975).
Studying the forms of civil society in Europe, foreign researchers note,
rst of all, dierences between the structure and level of participation
Western Europe, Central and Eastern Europe citizens in the civic
institution’s activities (Wang et al., 2020). This is the fourth direction
related to research on social and volunteer activities of civic institutions.
The fth direction is the relationship between the public authorities and
civic institutions, through the provision of social and public services. In this
case, we are talking about the real empowerment of some civic institutions
to implement social protection and provide public services (Rochlitz et al.,
2020).
However, despite the dierence in legislation, the diculties of legal
implementation, the opposite views of scientists, we come to a general
conclusion: the civic institutions are important. At the primary level, they
contribute to the self-organization of people. They transform the population
802
Iryna M. Gryshchenko, Alina V. Denysova, Olga O. Ovsiannikova, Hanna S. Buha y Elena I.
Kiselyova
Means for control over the activities of public authorities by civic democratic institutions: the
conceptual framework analysis
of the country into the nation – the real possessors of public, control and
regulatory powers. The development of eective means for civic institutions’
participation in management and control is the way to preserve peace and
the state territorial integrity (Snellen, 2002).
2. Methods and Materials
The research includes neofunctionalism studies, which have a signicant
impact on the civil society development. The research also studies the
liberal intergovernmental approach, which substantiates the European
integration process solely by the actions and interests of the member states,
which directly concerns the civic institutions activities. According to the
liberal intergovernmental approach, while maintaining state “diversity”,
control over the society life processes should remain in hands of states,
within which civil societies exist and develop. Thus, decisions concerning
the civic institutions activities are the result of mutual compromises of the
member states.
The author also used the method of comparative analysis for data
obtained by research centers through a sociological survey, involved
observation, questionnaires, interviews, and an expert survey.
The comparative study was carried out between August 2020 and
January 2021. The study was carried out in three stages (Figure 2).
Figure 2: Study stages
Source: Author’s development.
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At the rst stage of the study, using special scientic methods
(comparative analysis, analysis of experts’ positions, online sociological
survey), the collection and processing of information on the means of control
over the activities of public authorities by civic democratic institutions was
carried out.
The method of conceptual analysis requires detailed study in the context
of the indicated political research, since it is used to disclose the existing
means for control over the activities of public authorities by civic democratic
institutions.
2.1. Research Design
A sociological experimental procedure is the empirical basis of analytical
research at the third stage of the study. The sociological experimental
procedure includes 5 stages: preparation; organization; implementation;
analytical data analysis; research results presentation. We used data from a
survey conducted in 15 countries from May to October 2020, with 30.000
respondents. The data are included in the Democratic Rights Popular
Globally but Commitment to Them Not Always Strong analytical report.
The correlation analysis carried out by the author is the empirical basis of
the research at the third stage of the study. The aim of correlation analysis
is to calculate the correlation coecients. Correlation coecients can take,
as a rule, positive and negative values. The correlation coecient sign
makes it possible to interpret the connection direction, and the absolute
value – the connection strength.
3. Results
From the author’s point of view, the means for civil control include
exercising actors, civil control object; ways of civil control exercising; social
relations that arise while civil control exercising (Figure 3).
804
Iryna M. Gryshchenko, Alina V. Denysova, Olga O. Ovsiannikova, Hanna S. Buha y Elena I.
Kiselyova
Means for control over the activities of public authorities by civic democratic institutions: the
conceptual framework analysis
Figure 3: Means of civil control
Source: own elaboration
Let us consider the means for civil control in more detail:
Exercising actors: undoubtedly, these are public authorities and civic
institutions. We consider various kinds of civic institutions, both in terms
of their activity range (international, national and local) and in terms of
their activity eld (economic, social, volunteer, youth). In order to enforce
their legal personality in “state-society” relations, civic institutions should
have a sucient number of rights in the social control eld. For example,
the right to individual requests, to participate in community councils or
public hearings. It is also necessary to establish the responsibility of public
authorities for ignoring and creating obstacles in the activities of civic
institutions at the legislative level.
Civil control object is the activity of state and municipal bodies regarding
the budget distribution and use, the implementation of social and economic
development programs, social facilities construction, human and civil
rights protection.
Ways of civil control exercising are the activities of civic institutions,
which include the possibility of conducting control measures, checks,
inspections, studying reporting, conducting sociological and scientic
research.
Social relations that arise while civil control exercising. As a rule,
relations arising from interaction with public authorities and local self-
government authorities are imperative, but if we are talking about the
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control exercising, it is obvious that relations should be based on the
principles of equality. According to the sector-specic criterion, legal
relations between the state and civil society can be divided into: legal
relations in the economic development eld, legal relations between civic
institutions cooperating with universities in order to increase the eciency
and transparency of the public sector in key spheres of society; legal
relations between public authorities and youth organizations to promote
sports; legal relations of civic institutions (associations of employers,
manufecturers, trade unions, creative unions) that interact with the state
in the social and labor relations eld – protection of labor and social rights
of citizens, coordination of enterprises’ activities, upholding the interests of
professional groups; legal relations between the state and civic institutions
regarding the development of youth patriotic education system; legal
relations with lawyers associations in order to develop citizens’ awareness
of their rights and freedoms; legal relations with public organizations in
social and volunteer spheres regarding the provision of social services to
indigent categories of citizens; legal relations between civic institutions
(non-state media, journalists associations) that interact with the state in
the social information space eld – distribution of information, receipt of
information, protection and analysis of information and rights; relations
between the state and educational public organizations to ensure high
quality of educational services, as well as the human right to education;
legal relations between civic institutions (youth and children’s public
organizations, women’s movements) that interact with citizens, including
the unconstrained exercising of youth and gender policies by citizens; legal
relations of civic institutions (all types of religious organizations) that
interact with the state on the constitutional rights of citizens and freedom
of religion – protect the unconstrained use of all prohibited forms.
Sociological research analysis is necessary in order to make a comparative
analysis of the eectiveness of control over the activities of public authorities
among institutional actors and individual ones. The research was carried
out in two directions:
1. A comparative analysis of the analytical report data by Wike and
Schumacher (2020) was carried out (Table 1).
2. Author’s online sociological surveys (5000 respondents (N = 5000))
were conducted, the sample scope is 7% (Table 2).
The analysis of the data represented in Table 1 conrms the Hypothesis
No. 2 that the eectiveness of control over the activities of public authorities
is higher among institutional actors than among individual ones.
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Iryna M. Gryshchenko, Alina V. Denysova, Olga O. Ovsiannikova, Hanna S. Buha y Elena I.
Kiselyova
Means for control over the activities of public authorities by civic democratic institutions: the
conceptual framework analysis
Table 1. Democratic rights popular globally but commitment to them not
always is strong
Countries Percentage of
civic institutions
participating in control
measures %
Percentage of socially
active citizens who are not
members of civic democratic
institutions %
France 72 28
UK 72 31
Sweden 68 31
Germany 66 36
Hungary 66 36
Netherlands 63 39
Bulgaria 60 45
Poland 57 50
Greece 57 32
Lithuania 55 31
Slovakia 55 27
Czech Rep 49 26
Italy 46 34
Ukraine 35 30
Russia 41 30
Source: Wike and Schumacher (2020).
Table 2. Results of sociological research conducted by the author
Questions and
answers
Countries
France UK Sweden Germany Hungary Greece Italy Ukraine Russia
Do you take
part in public
events held in
your region?
Yes 37% 45% 49% 22% 26% 34% 56% 87% 55%
No 63% 55% 51% 78% 74% 66% 44% 13% 45%
Are you a
member
of a public
organization?
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CUESTIONES POLÍTICAS
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Yes 45% 34% 45% 47% 37% 56% 58% 69% 45%
No 55% 66% 55% 53% 63% 44% 42% 31% 55%
In your
opinion, do
the citizens
of your state
inuence
the activities
of state
authorities?
Yes 80% 82% 78% 57% 67% 56% 45% 22% 30%
No 20% 18% 22% 43% 33% 44% 55% 78%
In your
opinion, do
the public
organizations
of your state
inuence
the activities
of state
authorities?
Yes 82% 90% 87% 83% 79% 59% 65% 36% 33%
No 18% 10% 13% 17% 21% 41% 35% 64% 67%
Have you
ever appealed
against
actions or
inactions
of state
authorities?
Yes 34% 25% 34% 24% 36% 35% 45% 65% 40%
No 66% 75% 66% 76% 64% 65% 55% 35% 60%
In your
opinion,
are public
institutions
a real
alternative
to state
institutions in
your country?
Yes 65% 76% 56% 76% 75% 83% 78% 25% 30%
No 35% 24% 44% 24% 25% 17% 22% 75% 70%
Source: own elaboration
To conrm the Hypothesis No.1 that civic democratic institutions in
countries with a high level of socio-economic development show a higher
level of social activity than democratic institutions with a low level of
socio-economic development, we used the method of correlative analysis.
808
Iryna M. Gryshchenko, Alina V. Denysova, Olga O. Ovsiannikova, Hanna S. Buha y Elena I.
Kiselyova
Means for control over the activities of public authorities by civic democratic institutions: the
conceptual framework analysis
We have determined the correlation between the Sustainability Index for
Central and Eastern Europe and Eurasia and GDP (PPP) per capita data as
of 2019 (Table 3).
Table 3. The 2019 CSO Sustainability Index for Central and Eastern
Europe and Eurasia GDP (PPP) per capita 2019
Country Sustainability Index for
Central and Eastern Europe
and Eurasia
Eastern Europe and
Eurasia та GDP (PPP)
per capita
France 45.454 42878
UK 44.288 42558
Sweden 68.340 82950
Germany 53.571 48264
Hungary 32.434 15924
Netherlands 57.101 53106
Bulgaria 23.741 9267
Poland 33.739 15431
Greece 29.045 20408
Lithuania 38.605 18032
Slovakia 32.184 19582
Czech Rep 40.293 22850
Italy 40.066 34260
Ukraine 12.710 2963
Source: Civil Society Organization (2020); Wikipedia (n.d.).
According to Figure 4, the Pearson correlation coecient is 0.96971526
for the sanple size 20, regarding that zL lower 95% limit is 1.61213911 and
zU upper 95% limit is 2.56286129, which conrms the Hypothesis No.1.
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Vol. 39 Nº 69 (Julio - Diciembre 2021): 796-813
Figure 4: Pearson correlation coecient
Source: own elaboration
4. Discussion
The interaction of civic institutions and public authorities became the
object for scientic research for many scientists, in particular Mizrahi et
al., (2021) dened a meaningful concept of intersectoral social partnership,
which is based on non-political nature of public authorities and civic
institutions interaction. There are discussions about the apolitical, only
social nature of civic institutions activities (Leach, 2018). Scientists
increasingly deny the participation of citizens and civic institutions in legal
relations of a peremptory nature (Germino, 1990). They are considered a
social-volunteer auxiliary institutions, which are deprived of managerial
and control powers in general (Ernazarov, 2020). Representatives of many
civic institutions consider participation in political struggle, the exercise of
control and supervisory powers destructive for their activities (Adlo and
Neckel, 2019).
In the “Cross-Country Comparisons of Civil Institutions Societies: an
Empirical Analysis” article, the Russian scientist Liebman (2010) identies
three main approaches to assessing civil society presented in modern
literature. The rst scientic approach involves a mathematical assessment
of civic institutions activities using a system of integral indices. Among
them are: Civil Society Index – CSI; Civil Society Strength Index – CSSI;
Global Civil Society Index – GCSI (Bryhinets et al., 2020).
810
Iryna M. Gryshchenko, Alina V. Denysova, Olga O. Ovsiannikova, Hanna S. Buha y Elena I.
Kiselyova
Means for control over the activities of public authorities by civic democratic institutions: the
conceptual framework analysis
The opposite is the second approach, its representatives propose to
completely move away from the index assessment of the civic institutions
activities and return to the assessment of the qualitative component of their
activities (Howlett, 2020).
The third approach involves the study of more specic issues regarding
the civic institutions activities. This analysis can be carried out using
indicators that, although they do not dene the civic institutions activities,
but characterize the civil society development at various stages and in
various areas: the index of non-governmental organizations sustainability
– NGOS. DD – direct democracy index – refers to freedom index, anti-
corruption perception index, world press freedom index. Of course, all
of them, to one degree or another, partially describe the level of civic
institutions development, however, they are not comprehensive (Liebman,
2010).
Conclusion
Summing up, the results of our sociological, empirical and comparative
studies, as well as world experience show that the powers to control of civic
institutions today are only a model of public relations, which we strive to
implement. As a result of this research, the author proposed to develop
eective means for civil control exercising, which includes exercising
actors, civil control object; ways of civil control exercising; social relations
that arise while civil control exercising.
The authors of this research concluded that civic democratic institutions
in countries with a high level of socio-economic development show a higher
level of social activity than democratic institutions with a low level of socio-
economic development. The eectiveness of control over the activities
of public authorities is higher among institutional actors than among
individual ones.
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