Federalism and Local Politics in Russia

100 Oksana Orachevaethnic identity of the Komi-Permyak people its content is too broad anddeclarative. It states that the Perm Krai authorities should set up the conditionsfor preservation of the Komi-Permyak language and culture. In additionthe Okrug administration participates in the development of federal andregional programmes in the area of language and culture preservation,develops folk crafts, and funds the Krai educational and cultural institutionstasked to maintain and develop ethnic identity. However, the special chapterdoesn’t explain who funds such activities and, moreover, the funding is notsecured (by guaranteed inclusion of a special line in the regional budget).The chapter on social and economic development of the Komi-PermyakOkrug is even less detailed and contains only general wording on the inclusionof the Okrug’s social and economic development goals in the social andeconomic development programme of the Krai. The Okrug’s municipalitiesenjoy the same rights and privileges in inter-budgetory relations as all othermunicipal units within the Krai territory. Again, adoption of such clausesweakens the essence of the Okrug’s special status.Once it became public, the draft Charter was heavily criticized by numerousmembers of the political elite and some changes were made to the draft.It was agreed that there should be a special description of the Okrug’s socialand economic development goals and that policies on the preservation of aKomi-Permyak ethnic identity should be more precise.The Charter was finally adopted by regional assembly on 19 April 2007. 54There were only two readings instead of three, and the Charter was adoptedin a hurry. As a result the major governing document still contains manyambiguities. The Charter (article 37) stipulates that the state power on theOkrug’s territory should be executed by the Krai state institutions, and aspecial governing body should be founded – the Ministry for Komi-PermyakOkrug Affairs. However, its major role (article 40) is: to create conditions forthe Okrug’s economic and social development; to coordinate work of differentterritorial units of the Krai governing institutions in relation to theOkrug affairs; to promote special federal and regional programmes at theOkrug’s territory. Article 42, which specifies issues relating to the preservationof a Komi-Permyak ethnic identity, also remains vague and does notspecify funding guarantees. The only real advantage given by the Charter(article 44) is the maintenance of a higher level of guarantees (in comparisonwith the other Krai territories) that were adopted before the merger, to speedup Okrug’s social and economic development, and to improve living conditionsduring the three-year transition period. The key issue of the Okrug’splace within the new system of local self-government remains unresolved.A third possible scenario that the Okrug political elite is backing is tohave a three-layer system of local self-government. 55 This scenario maintainsthe status quo, as all the Okrug’s political actors would be able to keep theirpowers. But such a scenario contradicts federal legislation, and thereforerequires changes at the federal level. However, as it is the federal centre thatmonitors and even controls the merger process, and to date it has not offered