Družboslovne razprave, Vol . XI (1995), No. 19-20, pp.77-94
UDK: 338 .46(497 .12) : 364 : 141 .142
Slovenia
ZINKA KOLARIČ*
ANDREJA MEGLIČ-ČRNAK**
IVAN SVETLIK***
The article details the development of the voluntary sector in Slovenia . Start-
ing with a broad historical analysis, the article then brings us to the struc-
ture of the sector: Types and varieties of organisation are presented . The
dynamics of the foundation of organisations and their characteristics are
also analysed. The characteristics of the organisations are described ac-
cording to methods ofestablishment, the relationship between the members
and those they serve, levels (village, local community, municipality), and
the plurality offinance resources . On the basis ofthe latter characteristics,
the authors present a model of the relationship between the government and
voluntary organisations according to how near or how far; and how de-
pendent or independent, an organisation is . The next part consists of the
legal and fiscal frameworks within which a voluntary organisation works,
with an emphasis on tax policy. The authors conclude that the voluntary
sector in Slovenia could occupy second place in the structure of the welfare
system.  This statement is based on future government preferences for a strat-
egy of de-institutionalisation.
Keywords: Slovenia, voluntary sector; history, characteristics of the sector ;
model of the relationship between government and non-profit organisations,
legal framework, fiscal framework
Introduction
Slovenia is a new East Central European country which was a part of the Austro-
Hungarian Empire until the end of World War I, and then a part of Yugoslavia
until 1991 . It is a small country with a population of about two million, situated
between Italy, Austria, Hungary and Croatia (for more details see Svetlik (ed .),
1992) .
Its geographic location and historical links created special conditions for the
development of a voluntary sector in Slovenia . These conditions were similar to
those in central European countries until World War I, were increasingly influ-
enced by other Yugoslav peoples afterwards, and were specifically shaped after
World War II, when a specific form of a socialist regime dominated by the commu-
nist Party was introduced .
The most outstanding heritage of the voluntary sector in Slovenia, as will be
shown later, could be found in agricultural communities, the Catholic Church,
* * * * * Faculty of Social Sciences, University of Ljubljana, Kardeljeva ploščad 5, p .p .47,
61109 Ljubljana, Slovenia .
Zinka Kolarič, Andreja Meglič-Črnak, Ivan Svetlik
cultural organizations and to some extent also in business related organizations .
Although there were certain discontinuities after World War II, voluntary organ-
izations did not disappear. Only some, e.g., church organizations, had to limit
their activities or transfer them to the informal sector . Bigger organizations, such
as the Red Cross, came under control of the Communist Party. Some new organ-
izations such as the Association of Friends of Youth were founded by the new
regime and ran their activities rather independently . A substantial number of
voluntary organizations and associations continued their activities under the new
circumstances without being significantly touched . There were small village com-
munities, fire fighters, associations of retired and disabled people, professional
associations, cultural organizations and groups, sporting clubs, and many others .
As we describe in this chapter there were ups and downs in the development of
the voluntary sector after World War II and not just a "black hole" . The independ-
ence of Slovenia and changes in the economic and political regime have been just
an impetus for a new resurgence of the voluntary sector .
This development could be explained by the specifics of the economic and po-
litical regime in the former Yugoslavia. It started to deviate from the Soviet mod-
el as early as the 1950s . The main distinctive characteristic was the introduction
of self-management in the economy and in the public sphere, which led to an
increasingly decentralized public administration, higher independence of enter-
prises and other organizations from the state, a bigger role for market forces
which linked the economy with the Western one, a better standard of living, and
more freedom of individuals with respect to their self-organization and contacts
with the outside world . Although partially controlled, the civil society was in ex-
istence in the former Yugoslavia either formally or informally. However, due to
the big cultural and economic differences between various regions (republics),
and due to its semi-autonomy, civil society could not establish itself as an overall
integrative power. It was Balkanized as much as the other spheres of life were .
Historical Backgrounds
An analysis of the historical roots of the development of nonprofit/voluntary or-
ganizations in Slovenia reveals at least four different elements .
Agricultural Communities
The first element is the tribal form of social organization practiced by the Slavic
people when they occupied the present territories of Slovenia (in the 6th centu-
ry). The tribe represented a sort of total institution performing all the social,
political and economic functions . This organization led to independent tribal un-
ion - "a state of Samo" in the 7th and 8th centuries (The History of Slovenians,
1979) . Later on Slovenian people did not have their own independent state . From
the 8th century to 1918 they were dominated by Germans, and from 1918 to
1991, Slovenia was a part. of Yugoslavia .
Under the influence of Christianity, tribes previously based on kin networks
changed their form . The family unit started to play an important role . But, kin
networks were maintained in the form of agricultural communities which pre-
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served their multifunctional character up to the beginning of the 20th century .
Only the political function was taken over by the state and the religious one by
the Church .
Agricultural communities were economic, cultural and social units . They prop
duced the bulk of items needed for the survival of their members. They mainp
tained ethnic identity in the periods when German and Austrian nobility owned
most of the land. They protected members from hazards coming from outside,
e.g. Turks in the 15th to 18th century. They developed social functions such as
the education and training of children and protection of the infirm and disabled .
Up to the end of World War II there was an informal obligation of farm house-
holds to host local beggars for a few days a year .
Under Socialism people living in villages preserved high level of a solidarity .
They helped each other in case of accidents and they took an active part in local
infrastructure development . They contributed money, labor and other resources
for building telephone and CT V networks, water pipes, new roads, as well as schools,
kindergartens, health care centers, cultural centers etc .
Perhaps agricultural communities cannot be considered as nonprofit organip
zations. They were seldom formally organized and they were multifunctional .
However, they represented an intermediary structure between the state and iso-
lated families and households, a social tissue forming a foundation for some inter-
esting forms of nonprofit activities .
Church Organizations
The second important institution for the development of nonprofit/voluntary
organizations in Slovenia is the Church . Its role on the Slovenian territory dates
back to the end of 8th century when Slovenian people accepted Christianity. The
Church was not only a religious and social institution . It was one of the biggest
land owners and took part in political life up to the end of World War II .
One of the most important events in the history of Slovenians was the Refor-
mation in the 16th century followed by the Counter-Reformation in the 17th
century The Reformation contributed to the affirmation of Slovenian language
(as the first books in Slovenian appeared) . It also contributed to the affirmation
of liberal values shared particularly by people living in the towns . That was the
beginning of an ideological and political differentiation with two main protago-
nists: Clericalist linked with the nobility and the Catholic Church on one hand
and Liberals linked with craft, artisan and industrial producers on the other . This
differentiation, although modified, can be observed in politics even now .
The Counter-Reformation gave the Catholic Church back all the functions it
had before . It was the leading institution of the cultural and social life of the
population . In addition to agricultural communities it was an institution of social
protection for the poor and infirm . It managed all the schools up to the middle of
18th century. The Counter-Reformation also gave more power to the monarchs .
In the second half of 18th century in the Austrian empire schools were put under
the control of the state . And in 1870 Austrian state terminated the contract with
the Catholic Church and took full control over the school system .
Due to expanding industry and liberal capitalism and the simultaneous crisis
in the agricultural sector, the teaching of Pope Leon XIII was widely accepted in
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Zinka Kolarič, Andreja Meglič-Črnak, Ivan Svetlik
Slovenia by the end of 19th century. The Catholic priests were mainly those who
tried to implement the Church's social doctrine . Theologian and politician J .E .
Krek organized farmers' cooperatives. He also organized associations of workers
to promote their self-help activities . Workers' cooperatives were not organized
only by Clericalists but also by Social-Democrats . In 1918, 730 different coopera-
tives were registered in Slovenia . And at the end of 1937 there were more than
1,600 cooperatives (Memorial Code of Slovenia, 1939) .
The space for Church activities was highly limited in the socialist period . The
Church could legally deal only with religious issues . Nevertheless, it ran some
social programs in the informal sector, e .g., child care, care for elderly, entertain-
ment, and social activities for the youth, etc .
Cultural Organizations
The third element which has to be mentioned as a background for the develop-
ment of nonprofit/voluntary organizations are cultural organizations . It is widely
accepted that the history of Slovenians is primarily a cultural history. Cultural
organizations played very important role as protectors of Slovenian ethnicity and
were therefore often involved in political life and political struggles .
In 1550 the Reformation gave Slovenes the first book written in their own
language. The Counter-Reformation brought the decline of Slovenian culture .
The nobility and other upper classes used German while the lower classes spoke
Slovenian . In the 18th century Slovenian high class intellectuals influenced by
the Enlightment movement started to write Slovenian literature again . They
founded public libraries and theaters .
Up to 1848 the cultural activities were limited to small groups of intellectuals
linked with either the Church or the emerging industrialists . The year 1848 was
called the spring of nations . People started to identify themselves as Slovenians .
For the first time the demand for the unification of Slovenian people was put
forward. This stimulated the foundation of a number of cultural and sports or-
ganizations in the whole Slovenian territory (reading clubs, the Museum Associa-
tion, the Drama Association, the Slovenian Science Association, the sporting
association "Sokol", the Mountaineering Association, the Association of Hunters,
etc) .
On one hand Slovenian cultural and sporting associations competed with Ger-
man and Italian ones . On the other hand there was a cleavage between Slovenian
Liberal and Clerical associations . This tradition continued up to the end of World
War II . In the socialist period sporting and some cultural associations changed
their names and were put under the state control .
Business Related Organizations
The last element which should be mentioned are organizations linked to econom-
ic activities . We have already mentioned farmers' cooperatives . Apart from that,
one should observe the economic activity of medieval towns, the centers of arti-
san and craft production and trade . A very important role was played by various
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craftsmen associations, which regulated the economic and social life of particular
occupations .
The beginnings of industrial production in Slovenia date back to the 15th and
16th centuries. In that period the production of iron and mercury started . How-
ever, the working class grew only in the 19th century. First the shop assistants
who worked for craftsmen organized themselves in 1850 and in 1897 the first
workers' association appeared. They were grounded on two different concepts .
Those influenced by the Church followed the Schulze-Delitsch concept of self-
organization and self-help . They organized several activities for their members to
help them in case of accident, illness, unemployment, etc. They also organized
cultural activities, and social events, and education for the members .
Another stream of organized labor followed Lassal's concept of accentuating
the responsibility of the state to interfere with capital and to protect and help the
working class. These organizations were more militant . They organized strikes
from the 1880s on and formed the basis for the Social-Democratic party of Aus-
tria, which was founded in 1888. Along with the process of industrialization, work-
ers' organizations became more important both for their members as well as for
political parties that sought their support. In the 1920s and 1930s they supported
the Communist party and helped it to introduce a one-party system after World
War II. Paradoxically workers' organizations lost a great deal of their autonomy
in that time .
After all we have said it cannot be a surprise that more then 6,000 associa-
tions were registered in 1939 (Memorial Code of Slovenia, 1939). World War II
broke the intensive life of voluntary organizations and the Socialist period brought
new rules for organizing and volunteering .
The Structure of the Sector
Types and Number of Organizations
According to data which have been collected, 12,224 voluntary organizations and
societies were established in Slovenia between the end of the World War II and
the end of March 1994 . Out of the total, 11,168 voluntary organizations were
registered at the municipal level and 1,056 at the national level (Kolarič, 1994) .
Most organizations and societies were registered in the field of sports and
recreation . Second highest was the number of organizations and societies regis-
tered in the social welfare and health care areas . Organizations in the field of
culture and art were in third place . Fire fighters societies were in fourth, profes-
sional, technical and business societies were in fifth, and societies for the protec-
tion of the environment and animals were in sixth . (Table 1)
The same rank list of the number of organizations according to individual
fields is evident from the Table 2, where organizations registered at the munici-
pal level are included . Sports and recreation organizations are the most numer-
ous here too, followed by organizations in the field of social welfare and health
care in second place, organizations in the field of culture and art in third place
and fire fighters societies in fourth place . The organizations involved in protect-
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Zinka Kolarič, Andreja Meglič-Črnak, Ivan Svetlik
ing the environment and animals are in fifth place at municipal level, while pro-
fessional and business associations are in sixth place . (Table 2)
The rank list of the number of organizations according to individual fields is
much different at national level . This level includes voluntary organizations and
societies whose statutes define the territory of the entire state as the location of
their activity. The absolute majority of organizations at this level belongs to pro-
fessional organizations and associations (349), followed by organizations in the
field of sports and recreation in second place (187), organizations for the protec-
tion of the environment and animals in third place (120), organizations in the
field of social welfare and health care in fourth place (113) and organizations in
the field of culture and art in fifth (67) . At the national level there are no fire
fighters societies apart from the association of fire fighters societies . But the
national level includes a number of educational (37), developmental (31), ethnic
(18), international (13) and religious organizations (11) and organizations in the
field of jurisdiction and legal profession (8) . In addition to this, 6 foundations are
registered at the national level, while only one is registered at the municipal lev-
el . (Table 3)
Dynamics in the Foundation of Organizations
The rate of founding/registering voluntary organizations and societies has been
constant and relatively high since the World War II . It was high at the end of the
1940's and the beginning of the 1950's due to the re-registration of some organi-
zations from before the war. It fell somewhat in the 1960s . Strong growth in
voluntary organizations and societies being founded was noticed in the second
half of the 1970s, after the Law on Societies was passed . In the 1980's and at the
beginning of the 1990s, the rate in founding organizations was somewhat lower
than in the second half of the 1970s but still higher than it was in the 1950s and
1960s . (Graph 1)
The rate of organization forming cited are based on the data from twentyone
municipalities and the city of Ljubljana . In all other municipalities, the original
dates of registration were not preserved when "renewing" the registration records
or, it should be said, during re-registering . But the above rates are confirmed by
events in small local environments, as well as in large urban environments . On
this basis, we can conclude that the description of the dynamics is generally valid .
The forces for founding voluntary organizations and societies were relatively
high in the second half of the 1940s . Its basis included the renewed registration
or re-registration of many fire brigade societies that were founded as early as the
end of the 19th century or at the beginning of the 20th century. They are a special
feature in Slovenia . The societies are organized at the level of individual villages
and connected in associations of municipal fire fighters societies, while these con-
stitute the association of fire fighters societies at the national level . Their "mis-
sion" in a certain local environment surpasses the function of providing fire safety.
Excellent organization, perfected methods of recruiting new members, especially
the young, and of gathering financial means make them the "motor" of social,
cultural and sports life in individual localities . The property at their disposal (fire
stations including halls for cultural and social events, contemporary fire fighting
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equipment, etc .), which has mainly been acquired through voluntary work and
donations made by individuals is far greater than the property of any other volun-
tary organizations in Slovenia . This property is of course, like all the voluntary
activities of firemen, directed towards public benefit in general and not the bene-
fit of the members .
The re-registration of multipurpose sports and cultural organizations as well
as some humanitarian organizations also took place in the second half of 1940s .
In the 1950s, fire fighters were joined by hunting and fishing societies, as well as
multipurpose cultural organizations . An intensive process of founding single-pur-
pose sports organizations (clubs) also began in this period . In the 1960s, the rate
of founding new organizations was somewhat lower. Most of the organizations
founded were the professional and technical organizations .
In the mid 1970s, the Law on Societies was passed, which introduced a new
system for regulating the foundation of voluntary organizations . The verified sig-
natures of at least ten founders (citizens), together with a resolution on the foun-
dation of the organization passed at the foundation meeting, and a statute (by
law) sufficed for the founding of a society . These conditions mostly promoted the
foundation of single-purpose organizations in the fields of sports, culture, and
social welfare and health care (societies for senior citizens, invalids, the blind,
deaf, paraplegics, etc .) . A large number of societies for the protection and breed-
ing of animals, as well as professional and technical societies were also founded .
The passing of a special military decree in the second half of the 1970s and first
half of the 1980s triggered a mass foundation of voluntary organizations of re-
serve soldiers and their officers .
In the 1980s, the intensity of founding new organizations fell slightly (com-
pared to the second half of the 1970s), but most organizations were founded in
the field of sports (both single and multipurpose) . The trend of intensive found-
ing of multipurpose organizations also continued in the field of social welfare and
health care, culture, organizations for the protection of animals, professional and
technical organizations and organizations in the field of education and research .
A great number of new organizations sprang up in the first three years of the
1990s. Sports take absolute first place (single and multipurpose organizations) .
Culture took second place, while social welfare and health care took third place .
The process of founding professional and technical organizations also continued,
along with the founding of international and business organizations (managerial
clubs) .
The rate of founding/registering voluntary organizations and societies at the
national level is similar to those already described . This means that a considera-
ble increase in founding new organizations was also noted in the second half of
the 1970s - after the passing of the Law on Societies . But the rate of founding new
organizations was very high in the first three years of the 1990s - it was greater
than in any of the previous periods . (Graph 2) This high increase in registering
new organizations at the national level in the early 1990s can be associated with
the transition from Socialism to post-socialism .
The following factors must be considered accordingly :
•
	
some of the formal obstacles for the registration, i .e. for religious organizations,
were eliminated,
• changes occurred not only in the economy but also in other areas which trig-
gered the need for new organizations, i .e. ethnic organizations,
DR, VoI.XI(1996)19-20	 83
Zinka Kolarič, Andreja Meglič-Črnak, Ivan Svetlik
•
	
external influences and the tendency to imitate foreign experiences in, i .e . found-
ing international organizations played a considerable role .
Nevertheless, it must be pointed out that the rate of founding new organiza-
tions was at its peak in the second half of the 1970s . At that time, the Law on
Societies was passed, which considerably liberalized the founding of societies . Sim-
ilar laws to the Slovenian were passed in other socialist countries (Hungary, Po-
land) in the late 1980s and were already parts of the transition process from
socialism to post-socialism . Slovenia has the advantage of fifteen years in this
respect. This should not be a source of self-complacency, but can serve as a de-
fence against reckless imitations of foreign patterns and experiences .
Characteristics of Organizations
The previous section shows the relatively high level and continuity of founding
voluntary organizations in Slovenia throughout the post-war period .
The first characteristic of voluntary organizations can be identified in response
to the question: what is the main difference between the organizations founded
before 1974 (when the Law on Societies was passed) and those founded later?
The difference can be observed in the way the organizations were founded and
in the degree of their autonomy :
• During the first period, voluntary organizations were founded according to the
"top down" principle, in accordance with the state party or local party's initia-
tives and directives. They were quasi-state entities, the leadership of which was
formed, financed, and controlled by the state and party structures (Svetlik, 1992 :
208). The situation was the same with cultural societies, sports societies, the Red
Cross, hunting societies and to some extent also with the fire brigade societies .
But it must be pointed out that this was the situation of the top organizations at
the national level . They employed and paid professionals but at the level of per-
forming the tasks for which they were founded they functioned as fully voluntary
organizations .
• During the second period, voluntary organizations were founded according to
the "bottom up" principle, in accordance with the initiatives and interests of cit-
izens . They were established at local levels, but they attempted to form their own
top bodies at national level . Through these bodies, they communicated with the
state while searching for financial support for their activities and while lobbying
for certain systemic decisions which were important for their activities .
The second characteristic of nonprofit voluntary organizations is the relation-
ship between their members and those who they serve . Some membership organ-
izations do not function only for the benefit of their members, but also for the
benefit of others or of society overall. An example of a member-serving organiza-
tion is a sports club or professional society . Organizations with wider purposes
could include paraplegic societies, or societies for helping mentally disabled chil-
dren. Fire fighters societies serve the society overall, while hunting societies are
primarily member-serving . This defining characteristic distinguishes the mem-
bers of an organization from the target group (the group of users) for whom the
activity of the organization is intended . A membership organization can function
mainly for the benefit of its members (i .e ., sports clubs), but it can also function
84 DR, Vol.XI(1995)19-20
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mainly for the benefit of a certain social group or even for the general benefit of
the society.
The third characteristic of the Slovenian nonprofit voluntary organizations is
their dual structure. They are organized at local levels (at the level village, the
local community, or municipality) and come together and unite at regional or
national levels . These umbrella organizations usually employ at least one profes-
sional. Their task is to present the problems to governmental bodies and to offer
services to local organizations (information, education, finance) . Local organiza-
tions are usually completely voluntary organizations with regard to the perform-
ance of the activity and management of the organization, but they can also function
as mixed organizations employing professionals with the task of managing the
organization and using volunteers to carry out the activity of the organization
(for example, some of the recently established organizations in the field of social
welfare and health care) .
The last common characteristic of nonprofit voluntary organizations is the
plurality of their finance sources . Sources used by all organizations are, as fol-
lows :
•
	
membership fees,
• donations made by individuals and legal entities (Slovenian and foreign),
• organization's own economic activity,
• government grants, and/or certain projects carried out (sources : national budg-
et, local authorities budgets),
• resources obtained from the pension and health insurance funds,
• revenue obtained from the national lottery (for organizations which help the
disabled) .
The plurality of financial sources is a necessary condition for the autonomy of
organizations . But it is not the only condition . Thus the question about what kind
of relationship exists between the state/government and non-profit voluntary or-
ganizations in Slovenia must be asked .
The answer to this question can be found in the typology of relationships be-
tween the government/state and non-profit voluntary organizations, based on the
following criteria:
• nearness or distance between the government and voluntary organizations (with
regard to communications and contacts), and
• dependence or independence between them (with regard to financing and con-
trol (Kuhnle, Selle, 1992 : 30) .
On the basis of these criteria, four ideal types of relationship between the
government and voluntary organizations can be defined :
• the relationship of "integrated dependence" (dependency + nearness),
• relationship of "separated dependence" (dependence + distance),
• relationship of "integrated autonomy" (independence + nearness),
• relationship of "separated autonomy" (independence + distance) .
With regard to the above, the relationship between voluntary organizations
and societies in Slovenia can be defined as the relationship of "separated depend-
ence" . It can be further defined, as follows :
• a high degree of control exercised by the state over voluntary organizations and
societies,
• middle degree of financing the activities of societies by the state, and
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Zinka Kolarič, Andreja Meglič-Črnak, Ivan Svetlik
• a low degree of communication and contacts between the state/government and
voluntary organizations . This low degree of communication and contact means
that the government does not take consider seriously these organizations with
regard to meeting the needs of people or contributing to the general prosperity of
citizens .
If this is the actual type of relationship between the government/state and
voluntary organizations in Slovenia, then a question concerning the type of possi-
ble and desired relationship for the future arises . Our opinion is that it is a rela-
tionship of "integrated dependence" . It can be defined, as follows :
•
	
a low degree of control,
• a middle degree of financing non-profit voluntary organizations by the state,
• and a high degree of communication and contact between the government and
non-profit voluntary organizations .
This would mean that the government adopts a serious attitude towards non-
profit voluntary organizations as performing public services or carrying out cer-
tain parts of national programs in individual fields, namely the parts which cannot
be carried out by public institutions or which are not carried out in a satisfactory
way. On this basis, the non-profit voluntary sector could gain power (in the sense
of better organization and a higher degree of professionalism) and trigger be-
cause of the competition a process of restructuring in the public sector . The syn-
ergic effects of both changes would introduce a new quality in the Slovenian welfare
system .
The Legal and Fiscal Framework
New Legislation
The deregulation and subsequent abolishment of monopolies of public institu-
tions in the field of social services started in Slovenia with the introduction of
new legislation at the end of 1980s and beginning of 1990s . The Law on Compa-
nies (1988) opens the possibility to establish companies with limited liability in
the field of social services and opens for the first time the structure of these
services . The Law on Institutions (1990), which presented a new, common frame-
work for operating social services, has defined that the programs of social servic-
es can also be provided (besides by public institutions) through contracts
(concession) with private profit and nonprofit organizations. This was very im-
portant first step but the legalization did not lead to use of this legal provision .
The criteria when and under what conditions the local government or the state
can give such concessions have not been defined . They should have been defined
in basic laws on each field of social services or at least in by laws .
The analysis of the context of these laws on different fields of social services
shows that the basic changes didn't happen in the direction of pluralization of
welfare system but on the contrary in the direction of the consolidation of the
stable financial resources for public institutions . The Law on Institutions nation-
alized public institutions and be cause of that, founders (state and local govern-
ments) are obliged to provide financial support for their operation . Limited financial
resources and an extremely wide network of public institutions offer, among oth-
86 D13, Vol.Xl(1995)19-20
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er reasons, very limited practical opportunities for the involvement of private
profit or nonprofit organizations . Contracting out is in fact used only in providing
additional programs and programs to solve newly emerging social problems usu-
ally not covered by public institutions (drug abused, domestic, women and child
violence, refugees, environment protection, human rights etc .) . The public finan-
cial support for these programs is changing every year and its amount is very
small. It represents only 1-4 per cent of the whole amount for social programs . So
in fact there are not really big changes on the field of social services provision .
The public sector is still in the relatively monopoly position .
The only exception is in health care, where private practice represents already
around 10 per cent of services. The majority of them have a contract with the
state health insurance agency. So, the conclusion is that legal conditions for in-
volvement of nonprofit voluntary organization have been changed only partly.
They are not sufficient for actual changes .
Before 1988 only two allowable legal forms for nongovernmental, nonprofit
organizations existed. The first legal form was association, the second one was
cooperative .
In 1994 the process of changing legislation started also with the basic laws
regulating the status and activities of nonprofit voluntary organizations. Associ-
ations are the widest form of nonprofit voluntary organizations in Slovenia. Their
work is based on the law passed 1974 . That law already set very loose conditions
for formation of associations . Three preconditions are required: minimal number
of founders (10 individuals or 2 associations), bylaws, and registration in a court .
But it applies only to member-serving, not public-serving organizations . These
legal regulations, which were connected with the establishing of the self-manage-
ment socialist system, caused a real growth in the number of associations in 1970s,
even an greater rate of growth then in the 1990s . In spite of these relatively good
legal conditions, a majority of associations were in fact "quasi-governmental" or-
ganizations because they depended mostly on state financing .
A new law on associations passed through Parliament only recently. For the
first time, it enables the establishment of public-serving associations . It defines
areas of activities where associations can provide services of common interest :
education, culture, social care, health, science, environment etc . An association
can achieve this status trough confirmation by the supervisory ministry, which
has jurisdiction over the subject with which the association is concerned . By
dividing associations into two groups the foundation for recognition of associa-
tions as potential providers of public services and for their different tax treat-
ment are set up .
Working its way trough Parliament is a new Law on Foundations . The legal
system within socialist Yugoslavia ceased to permit the establishing of founda-
tion . For the moment the legal rules from the Law on Funds, Foundations and
Institutions from 1930 can be used for establishing the foundation . Foundations
which exist now (less then 10 of them) have been founded after 1990 by these
rules or by the Law on Associations . These last are foundations by name but their
official status is association .
In the draft of the new Law on Foundations, foundations can be founded by
private founders and juridical persons . They have a status of property-holding
legal person and can be founded for the matter of public interest in the fields of
DR, VoI.Xl(1995)19-20
	
87
Zinka Kolarič, Andreja Meglič-Črnak, Ivan Svetlik
education, culture, social care, child care, health, science, environment protec-
tion, sport, religion, etc . Capital investment is obligatory. The Ministry of Inter-
nal Affairs has responsibility for judging whether the capital investment is
substantial enough for the establishing the foundation . Thus, the Ministry of
Internal Affairs has the discretionary right to decide whether the foundation can
be founded or not. Too strict rules about necessary capital investment could be
the main barrier for future development of foundations in Slovenia .
Tax Policy
Tax policy is one the important instruments for encouraging the development of
a nonprofit voluntary sector. If nonprofit voluntary organizations are eligible for
certain tax exemptions and deductions it means that they have access to inde-
pendent sources of founding. Favorable tax policy stimulates individuals and com-
panies to give a part of their incomes or profits to these organizations, which
operate for the public good . It can also relieve nonprofit organizations from pay-
ing taxes. In the present tax system some income tax deductions for nonprofit
organizations and their donors exist. But they are very low and they have been
even reduced recently.
Tax laws have not provided a distinctive definition of "public serving organiza-
tions" and "public good" . Therefore, this does not result in different tax treat-
ment of public and member-serving organizations .
Within the existing tax system there are some tax exemptions which stimu-
late activities of nonprofit voluntary organizations . All nonprofit organizations,
associations, religious groups, public and private funds founded for humanitari-
an, ecological, charity and other nonprofit purposes are exempt from income tax .
If nonprofit voluntary organizations make a profit by business activity they have
to pay the same taxes as profit organizations . The tax rate is 25 per cent of the
profit. The nonprofit voluntary organizations are paying the same tax even if
they reinvest the profit into carrying out the basic activities for which they were
established .
If nonprofit voluntary organizations sell their services some of them (on the
fields of humanitarian, health, social care, education or employment intervention
services) are not obliged to pay the tax on the fees earned . For other organiza-
tions this tax amounts to 5 per cent .
Specific nonprofit organizations such as Red the Cross, the Catholic Church
Charity (Caritas) and organizations which employ disabled people don't pay the
tax on selling the products . Other humanitarian organizations in the field of care
for the elderly, children and disabled people and education are exempt from pay-
ing tax only if they sell products in their own shops.
In the Slovenian tax system there are also tax deductions for donors, but they
are very low Corporations which donate funds to humanitarian, cultural, scien-
tific, educational, ecological and religious organizations have the right to the in-
come tax deduction up to the level of 0 .3 per cent of their annual income . They
can deduct this amount from their annual tax base . Individuals can also donate
funds to humanitarian, cultural, educational, ecological, scientific and other or-
ganizations . With that they have the right, to an income tax deduction up to a
88
	
DR, Vol .X 1(1995)19p2o
Slovenia
maximum of 3 per cent of their income tax base . This deduction was reduced in
1994 from 10% . But other purposes can be deducted and every individual can
choose among them . The donation to a nonprofit organization is only one of them,
others are: voluntary social insurance, costs for building a house or buying a flat,
etc. Because of these different possibilities the tax deduction for charity contribu-
tions is not an important source for nonprofit voluntary organizations .
Individuals also don't pay tax on a bequest if they donate it to humanitarian
nonprofit organizations. In practice tax legislation does not stimulate donations
because the tax deductions are low. Thus, donations mostly express the good will
of sponsors. It is obvious that the state has still the main right to allocate incomes
for public purposes. It doesn't give much incentive to individuals and corpora-
tions to chose to whom they want to donate money .
The Future of the Sector
The nonprofit voluntary sector as a service producer could occupy second place in
the structure of the welfare system (Kolarič, Svetlik, 1987), following the public
sector and preceding the private for-profit sector . Thus a new type of welfare
system could be formed, which would not. b e completely identical with the social
democratic, liberal or conservative corporative model (Esping-Andersen, 1990),
but would include elements of all three .
The argument serving as a basis to the above hypothesis is the fact that the
Slovenian government gives preference to the strategy of deinstitutionalization
over the strategy of privatization (Rus, 1991) in the restructuring of the welfare
system. The strategy of deinstitutionalization means a shift away from the prin-
ciple of making the state the exclusive financier of the public sector to the princi-
ple of financier pluralism ; the state is only one of the financiers of the public and
other sectors. Deinstitutionalisation also represents a shift away from the princi-
ple of the universal accessibility of services to the principle of selective access .
Namely: the principle of universal accessibility is valid for the quantity and type
of services defined by the national program ; above this limit, the principle of
selective accessibility is valid with regard to the needs and the purchasing power
of users .
By applying this strategy, the government would give all service producers,
also non-profit voluntary organizations, a chance to access various financial sourcp
es, including the government's . At the same time, it would encourage the users'
demand for all those services which are not included in the national program .
This would result in the following (Kolarič, 1993) :
1. The public sector, as the "predestined" protagonist of the implementation of
the national program, would keep its leading position in the welfare system . This
social democratic component is supported by the conservative-corporative ele-
ment within the welfare system. The accessibility of services from the national
program is mainly made possible through the compulsory systems of social insur-
ance . Only in the case of those individuals and groups which are excluded from
the compulsory insurance schemes, are the services financed directly from the
budget .
DR, VoI.XI (19)5)19-20
	
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Zinka Kolarič, Andreja Meglič-Črnak, Ivan Svetlik
2. The access to government finance sources which are connected with the right
to implement the national program would put the nonprofit voluntary sector as a
service producer in second place in the structure of the welfare system . On this
basis, the sector could compete with the public where the quality of its services is
inadequate and fill the gaps where its services are insufficient . This liberal com-
ponent of the welfare system can be based on the still extremely important and
irreplaceable role of informal social networks .
3. The users' demand for services which are not included in the national program
represents a basis for the formation of a private profit-orientated sector. Consid-
ering the relatively low purchasing power of the users, the establishment of this
sector does not have much space for manoeuvre . Therefore, it is expected to occu-
py the final position in the welfare system in the 1990s .
The possible and desired structure of the Slovenian welfare system in the 1990s
would be to have the state in first, civil society in second, and the market in third
place .
References
Esping-Andersen, G. (1990), The Three Worlds of Welfare Capitalism, Princeton Uni-
versity Press
Kolarič, Z . (1993), Privatizacija na področju socialnega varstva (Privatization in the
field of social care), in : Rus, V (ed .), Privatization of Social Services, Državna založba,
Ljubljana
Kolarič, Z . (1994), Vloga neprofitno/volunterskih organizacij v slovenskem sistemu
blaginje (Role of nonprofit/voluntary organizations in the Slovenian welfare sys-
tem), research report, Ljubljana
Kolarič, Z ., Svetlik, I. (1987), Jugoslovanski sistem blaginje v pogojih ekonomske krize
(Yugoslav Welfare System under Conditions of Economic Crisis), IB revija za
planiranje, Vol .21, No .8-9
Kuhnle, S., Selle, P (1992), Government and Voluntary Organizations, Avebury
Salamon, L.M ., Anheier, H.K. (1992), In Search of the Nonprofit Sector - The Problem
of Classification, Voluntas, Vol.3, No .3
Rus, V (1991), Deinstitucionalizacija in . privatizacija družbenih dejavnosti
(Deinstitutionalization and Privatization of Social Services), research report,
Ljubljana
Svetlik, I . (ed.) (1992), Social Policy in Slovenia, Avebury
Spominski zbornik Slovenije, 1939 (The Memorial Code of Slovenia), Ljubljana
Zgodovina Slovencev, 1979 (The History of Slovenians), Cankarjeva založba, Ljubljana
(This source is used as a basis for the first part of the article .)
90
	
DR, VoI.Xl(1995)19-20
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Appendix
Table 1 . All voluntary organizations and associations in Slovenia classified with
regard to the fields .
1. CULTURE/ART multipurpose 996
2. CULTURE/ART singlepurpose 433
3. SPORT/RECREATION multipurpose 1,363
4. SPORT/RECREATION singlepurpose 2,406
5. SOCIAL/HEALTH CARE multipurpose 850
6. SOCIAL/HEALTH CARE singlepurpose 1,115
7. DEVELOPMENT, ECONOMIC, SOCIAL 457
8. EDUCATION, RESEARCH 170
9. ENVIRONMENT 625
10. ANIMALS 449
11. LAW AND ADVOCATESHIP 18
12. INTERNATIONAL ORGANIZATIONS 30
13. BUSINESS ASSOCIATIONS 44
14. PROFESSIONAL ASSOCIATIONS 816
15. TECHNICAL ASSOCIATIONS 404
16. FOUNDATIONS 7
17. FIREMEN - ASSOCIATIONS 1,395
18. MILITARY - ASSOCIATIONS 500
19. RELIGIOUS - ASSOCIATIONS 17
20. ETHNIC - ASSOCIATIONS 39
21. ORGANIZATIONS NOT
ELSEWHERE CLASSIFIED
	
90
TOGETHER 12,224
* With the exception of the community of Jesenice .
DR, Vol.Xl(1995)19-20	 91
Zinka Kolarič, Andreja Meglič-Črnak, Ivan Svetlik	
Table 2. Voluntary organizations and associations registered in all Slovenian com-
munities .
1 . CULTURE/ART multipurpose
	
949
2. CULTURE/ART singlepurpose 413
3. SPORT/RECREATION multipurpose 1,308
4. SPORT/RECREATION singlepurpose 2,274
5. SOCIAL/HEALTH CARE multipurpose 841
6. SOCIAL/HEALTH CARE singlepurpose 1,011
7. DEVELOPMENT, ECONOMIC, SOCIAL 426
8. EDUCATION, RESEARCH 133
9. ENVIRONMENT 574
10 . ANIMALS 380
11 . LAW AND ADVOCATESHIP 10
12 . INTERNATIONAL ORGANIZATIONS 17
13 . BUSINESS ASSOCIATIONS 28
14 . PROFESSIONAL ASSOCIATIONS 467
15. TECHNICAL ASSOCIATIONS 358
16. FOUNDATIONS 1
17. FIREMEN - ASSOCIATIONS 1,393
18. MILITARY - ASSOCIATIONS 494
19. RELIGIOUS p ASSOCIATIONS 6
20. ETHNIC - ASSOCIATIONS 21
21. ORGANIZATIONS NOT
ELSEWHERE CLASSIFIED 64
TOGETHER 11,168
*With the exception of the community of Jesenice .
92 1)N, Vol .X 1(1 91.5019-20
Slovenia
Table 3. Voluntary organizations and associations registered at national level and
clasified with, regard to the fields and the time ofregistration .
NP 45- 50- 55- 60- 65- 70- 75- 80- 85- 90- TOGE-
49 54 59 64 69 74 79 84 89 94 THER
CULTURE/ART
	
- - 1 3 - 2 4 3 3 3 28 47
multipurpose
CULTURE/ART - 3 - 2 1 1 2 3 4 - 4 20
singlepurpose
SPORT/RECRE . - 5 5 2 1 1 3 9 3 2 24 55
multipurpose
SPORT/RECRE . - 4 18 7 2 7 9 25 20 4 36 132
singlepurpose
SOC./HEALTH - 1	 1 7 9
multipurpose
SOC./HEALTH - 3 2 7 4 5 20 26 10 5 22 104
singlepurpose
DEVELOPMENT - 2 1 3 - - 1 3 2 2 17 31
econ./soc .
EDUCATION, - 1 2 2 - - 4 6 1 1 20 37
RESEARCH
ENVIRONMENT - 1 12 8 1 5 3 8 5 2 6 51
ANIMALS - 4 5 4 2 4 7 12 7 2 22 69
LAW AND	 1 1 6 8
ADVOCATESHIP
INTERNATIONAL - - 1 - 1	11 13
ORG.
BUSINESS	 1 2 1 - 1 11 16
PROFESSONAL - 8 35 15 35 28 26 80 49 14 59 349
TECHNICAL 2 - 4 1 - 3 10 6 5 15 46
FUNDATIONS	 6 6
FIREMEN - 1	 1 - - 2
ASSOCIATIONS
MILITARY - - - - 1 1 1 - - - 3 6
RELIGIOUS	 1 10 11
ETHNIC - 1 1	 16 18
others 5 21 26
Together - 36 83 57 49 55 85 186 112 49 344 1,056
)R, Vol.Xl(I995)19-20	 93
Zinka Kolarič, Andreja Meglič-Črnak, Ivan Svetlik
Graph 1 . Voluntary organizations and associations classified with regard to the time
of registration (sample of21 local communities and municipality of Ljubljana) .
350
325
300/
	
I
275 / .
250 .
225
200
175
/
150 / U
1
100
25
75
0 ~!' r r ~ i i∎o~ ~J J1J1JIJ J III 1
NP 45-49 50-54 55-59 60-64 65-69 70-74 75-79 80-84 85-89 90-94
Graph 2. Voluntary organizations and associations registered at national level and
classified with regard to the time of registration .
1300
1200
dA1100
1000
900
800 .
700 ' ,
600
500 ' :
v
I I f~ l
aoo
"300
200
100 'A A
NP 45-49 50-54 55-59 60-64 65-69 70-74 75-79 80-84 85-89 90-94
94 DR, VoI .XI ( 1995)19-20