Elbrus Kargiev – Chief of the Department for Relations with the Subjects of the Federation, Parliament and Public Organizations (DSPO), Foreign Ministry, Russian Federation

Federalism and International Interregional Cooperation

The Constitution of the Russian Federation of 1993 has provided conditions for developing regional foreign contacts. For the first time in the Russian history real federalism was included into the sphere of the state international activities.  

Basic aims and goals of regional policy in the area of the state   international activity are as follows:

• to create favorable conditions for the subjects of the Federation to exercise the right of the Constitution to develop international and foreign economic relations, to foster international cooperation within the coordinated foreign policy, sovereignty and territorial integrity;
• to use international and foreign economic relations of the subjects of the Federation to ensure foreign political and foreign economic interests of the Russian Federation internationally.

At present, the regions have a practical influence on forming and conducting Russian foreign policy through their representatives in the Council of the Federation. Leaders of the regions and republics often go abroad at the head of the delegations, sign important documents on behalf of the government, accompany Russian President during his visits.

International contacts of the regions strengthen climate of confidence among the countries, contribute to development of economic cooperation between Russia and foreign countries, and deal with practical issues on the treaties concluded by the Russian Federation.

At present, 82 regions of the Russian Federation have established relations with the partners in 77 countries. 74 Russian regions have their representatives abroad.

It is necessary to mention here the Republic of Tatarstan. The Republic has concluded 68 agreements with foreign partners. 43 agreements are the so-called 'diagonal' agreements, i.e. agreements with the national authorities of foreign states. Tatarstan has 18 representatives abroad, which contribute to establishing business relations with foreign representing structures, organize commercial and industrial exhibitions, conduct various cultural events. Not long ago their experience was generalized by the leaders of the Republic and the Foreign Ministry of Russia, and it will be used by other subjects of the Federation. Some indices shown by the Republic of Tatarstan in the external sphere are rather impressive. Thus, in 2000 foreign trade commodity circulation of Tatarstan accounts for $ 3.353 billion US (to compare with 1999 growth accounts for 40 %).

International activity of regional and local authorities is favorable for including in the activities of various international organizations, and first of all, Council of Europe. For the past several years around 2 thousand people including representatives of nearly all subjects of the Federation and federal authorities have got an opportunity to familiarize themselves in detail with the problems of foreign federative states and European regional organization. In collaboration with the Council of Europe, around 30 seminars and conferences on international interregional cooperation were held in the regions of Russia. The Diplomatic Academy of the Foreign Ministry of Russia together with the Council of Europe worked out a special course of lectures for regional experts on international affairs, and published a Collection of documents and materials on international and foreign trade relations of the subjects of the Federation as well as an edition textbook.

As the practice has revealed, the subjects of the Federation will be able to achieve a greater success at the international level if they are supported by the national authorities. Next, the Russian Federation can strengthen its positions in the world by joining efforts of federal center and regions of the Federation, acting as the unit and taking into account interests of the regions. Also, it is evident that uncoordinated actions of the regions, exceeding of their authority may have a negative influence on the prestige of our country and are fraught with causing prejudice to our foreign policy.

Hence, it is necessary to distinguish authorities and competencies between the center and subjects of the Federation. At the same time, close coordination of the efforts made by national and regional authorities in the area of foreign relations is required. The President's Ordinance "On a Coordinating Role of the Foreign Ministry of the Russian Federation in Conducting Common Foreign Policy of the Russian Federation" (1996), Federal Law "On Coordinating International and Foreign Trade Relations of the Subjects of the Russian Federation" (1999), laws "On the State Regulation of the Foreign Trade Activities", "On International Agreements of the Russian Federation" – all of them regulate the whole set of the problems mentioned above. These Laws ensure the required legal environment for international activities of the subjects of the Russian Federation.

In accordance with the Constitution the international and foreign trade relations of the subjects of the Federation are related to the joint competence of the Federation and its subjects. The Federal Law reveals the matter of this norm according to which the subjects "have the right to establish international and foreign trade relations with the subjects of foreign federative states, administrative/territorial units of foreign states as well as to participate in the activities of international organizations established to pursue these goals". It means that the subjects of the Russian Federation can independently conclude agreements with the partners mentioned above only. With the consent of the Russian Government the subjects can establish relations of that kind with the state authorities of foreign countries. In order to ensure interaction of the center and the regions in the external sphere the law stipulates that draft agreements being concluded by state authorities of the subjects of the Federation should be presented for consideration to the Russian Foreign Ministry, and in case of necessity – to other federal structures. If there are any disagreements, conciliation procedures come into force.

At the same time, up to date the activity on improving legal basis in the sphere of foreign relations of the regions is still under way.  At federal level the lack of legal acts to regulate foreign trade activities of the subjects of the Federation is felt. A number of agreements provisions on distinguishing competencies between the State   authorities of the Russian Federation and its regions, some laws and sub-legal acts of the subjects of the Federation contradict the federal legislation on international relations of the regions.

During the past several years we managed to adjust the coordinating activities mechanism. The Foreign Minister and his deputies meet regularly with the leaders and other officials of the subjects of the Federation. In 2000 around 130 meeting of that kind were held. Advisory Council for the subjects of the Russian Federation on international and foreign trade relations under the auspice of the Foreign Ministry is successfully working. This Council became a forum aimed at exchanging experience and endorsing joint recommendations. A number of documents to support regional administrations were elaborated.

The support of interregional relations became a prior trend in the work of embassies and consulates of the Foreign Ministry. These organizations assist the subjects of the Federation in organizing exchanges of delegations and presentations, finding reliable partners, promoting investment and commercial projects, forming data banks on legislation and laws respecting practice of the countries of residence.

Regionally, representatives of the Foreign Ministry of Russia are the key link of the coordinating mechanism.

Their prime task is to render information and methodological assistance to the subjects of the Russian Federation in preparing and implementing measures aimed at developing international relations, to provide information on major problems of the Russian foreign policy and to support interaction between the Ministry and state authorities of the subjects of the Federation.

Interaction with the plenipotentiary representatives of the President of the Russian Federation in federal districts is a new element in the coordinating mechanism. Its basic aim is to continue improving coordination of international and foreign trade relations of the subjects of the Federation.

The Foreign Ministry of Russia considers that federalism is a fundamental for state building in Russia. That is why the Ministry regards the foreign policy as if in the light of federative relations. The Foreign Ministry of Russia proceeds from the fact that it is the leading department to ensure common foreign policy of Russia as the corresponding Ordinance of President of the Russian Federation defines it.

The Foreign Ministry of Russia regards the development and coordination of foreign relations of the subjects of the Federation as an integral part of work to improve federative relations.