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Kommunen an die Macht

Kommunen an die Macht

Fehlende Ressourcen fesseln einen der wichtigsten Akteure für uns Bürger

Keyfacts über Kommunen

  • Sie gestalten unseren Alltag – von Kindergärten bis hin zur Abfallbeseitigung
  • Ihre Herausforderungen sind: demografischer Wandel, Digitalisierung und Kostendruck
  • Sie sind abhängig von Entscheidungen, die anderswo getroffen werden
Zusammenfassung lesen Studie herunterladen

Die deutsche Kommune ist entmachtet: Zu vieler Gestaltungsspielräume beraubt, ist sie heute oft nur noch Ausführungsgehilfe von Bund und Ländern. Eine fatale Situation – denn die großen Entscheidungen in Berlin sind für uns Bürger meist weit weg. Stattdessen spüren wir in unserem Alltag vor allem die Folgen kommunaler Entscheidungen. Kindergärten, Gemeindestraßen, die Schulverwaltung, die Wirtschaftsförderung oder auch die Abfall- und Abwasserbeseitigung, der Betrieb von Museen, Schwimmbädern, Theatern, Grünanlagen, Bürgerhäusern, Jugendeinrichtungen oder Sportstätten – all das gehört zu den Aufgaben der Kommunen.

Gleichzeitig muss die Kommunalverwaltung mehr und mehr soziale Aufgaben schultern, die auf Bundes- und Länderebene nicht lösbar sind – für die sie im Gegenzug aber keine ausreichende finanzielle Kompensation erhält. Die aktuell größten Herausforderungen für deutsche Kommunen sind nach deren eigenem Bekunden der demografische Wandel, die Digitalisierung und der zunehmende Kostendruck. Auch die Flüchtlingskrise trifft letztlich die Kommunen, nicht zuletzt bei der großen Herausforderung der Integration.

Kommune ist nicht gleich Kommune

Bei der Betrachtung dieser Trends dürfen wir aber nicht vergessen: Kommune ist nicht gleich Kommune. Die einen kämpfen gegen Bevölkerungsschwund, die anderen mit der Wohnungsknappheit. Die Bürger einiger Kommunen sind politisch engagiert mit klaren Forderungen und Ansprüchen, in anderen Kommunen dominieren Bürger, die mit der öffentlichen Verwaltung so wenig Berührung wie möglich haben möchten. Während die einen Überschüsse im Haushalt erzielen, gehen die anderen in ihren Schulden fast unter. Jede Kommune ist in ihrer besonderen Situation gefordert, individuelle Lösungen für ihre spezifischen Herausforderungen zu entwickeln. Die neue Studie „Kommunen der Zukunft – Zukunft der Kommunen“ des von KPMG geförderten Instituts für den öffentlichen Sektor entwickelt dazu verschiedene Zukunftsszenarien.

40

Prozent der Kommunen planen, Bürger bei der Gestaltung von Verwaltungsleistungen und kommunalen Haushalten einzubeziehen

Dabei sind die Handlungsspielräume einer Kommune abhängig von ihren Ressourcen. Ihre finanzielle Grundlage wird von verschiedensten Faktoren beeinflusst. Wesentlich ist dabei die weitgehend durch Bund und Länder vorgegebene Einnahmestruktur der Kommunen. Ihre selbst gestaltbaren Einnahmequellen sind hauptsächlich die Gewerbesteuer und die Grundsteuer.

Als klassische Gemeindesteuer wird die Gewerbesteuer auf den Ertrag von Gewerbebetrieben erhoben und in der Höhe von den Kommunen selbst bestimmt. In der Realität ist sie damit eine volatile, konjunkturabhängige Einnahmequelle, die eine Kommune von der Ertragslage der bei ihr ansässigen Unternehmen abhängig macht. Für Kommunen, in denen keine großen, ertragsstarken Unternehmen ansässig sind, ist die Gewerbesteuer kein ernstzunehmendes Gestaltungsmittel. Die Grundsteuer, der jeder Bürger mit Grundbesitz unterliegt, kann dieses Einnahmeloch nicht wettmachen. Die fehlenden Ressourcen machen Kommunen zunehmend handlungsunfähig und nehmen ihnen den Spielraum, eigene Wege zu entwickeln, um ihre Probleme zu lösen. Genau das ist aber notwendig, um den unterschiedlichen Situationen der Kommunen und den Anforderungen der Bürger gerecht zu werden.

Bund und Länder müssen gemeinsame Sache machen

Es ist ein Teufelskreis, aus dem sich die Kommunen aus eigener Kraft nicht befreien können. Um die Kommunen aber zukunftsfähig gestalten zu können, braucht es eine gemeinsame Einsicht von Bund und Ländern: Viele Themen sind auf kommunaler Ebene am besten aufgehoben und deshalb muss ein neuer regulatorischer Rahmen geschaffen werden, der Kommunen wieder ausreichende, selbst gestaltbare Einkünfte garantiert. Das kann zum Beispiel ein Zuschlagsrecht auf die Einkommensteuer sein oder eine ähnliche Ausgestaltung der Grundsteuer.

Wichtig ist dabei, dass Ausgabe- und Einnahmeverantwortung in einer Hand liegen. Aktuell werden in der Bundesrepublik praktisch alle Einnahmen vom Bund gestaltet. Gleichzeitig sind die Ausgaben bunt verteilt über Bund, Länder und Kommunen. Durch diese komplizierten Strukturen geht beim Bürger vielfach das Gefühl dafür verloren, dass öffentliche Leistung etwas kostet und die Mittel dafür letztlich aus seiner eigenen Tasche kommen. Beunruhigend ist in diesem Zusammenhang ein Ergebnis der Studie „Kommunen der Zukunft – Zukunft der Kommunen“: Nicht einmal 40 Prozent der Kommunen planen, Bürger bei der Gestaltung von Verwaltungsleistungen und kommunalen Haushalten einzubeziehen.

Kommunen müssen Bürger aktivieren

Ohne eine aktive Einbindung der Bürger wird es aber nicht gehen. Es muss eine deutlichere Verbindung zwischen der lokalpolitischen Entscheidung und dem individuellen Portemonnaie geben. Wir brauchen mehr lokal gestaltbare Einnahmen und mehr direkte Demokratie: Wenn Bürger bei wesentlichen Lokalinvestitionen gefragt werden, und spüren, dass ihre Stimme einen Effekt hat, sind sie auch eher bereit für öffentliche Leistung zu zahlen oder aber auf diese zu verzichten. Wenn sich denn auch die Kosten eines Projekts, etwa durch einen Sonderzuschlag auf die Einkommensteuer, unmittelbar auf den Kontostand auswirken, wird auch die Beteiligung der Bürger an Planung und Überwachung eines Vorhabens ganz andere Dimensionen einnehmen. Die Gestaltung vor Ort und mit den Bürgern muss möglich sein – sonst verliert die Kommune ihren Sinn. Dabei ist sie es und nicht Land oder Bund, die unser tägliches Leben vor Ort gestaltet.

Studie herunterladen
10. Februar 2017
Zusammengefasst

»Es muss eine deutlichere Verbindung zwischen der lokalpolitischen Entscheidung und dem individuellen Portemonnaie geben.«

Kommunale Entscheidungen gestalten unser tägliches Leben. Die Kommunalverwaltung schultert Aufgaben, die auf Bund- und Länderebene nicht lösbar sind. Gleichzeitig fehlen aber der regulatorische Rahmen und die finanziellen Mittel. Damit die Kommune überlebt, braucht es ein gemeinsames Engagement von Bund und Ländern sowie die aktive Einbindung der Bürger.

Ferdinand Schuster Geschäftsführer Institut für den öffentlichen Sektor e.V.
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