{"id":758,"date":"2021-05-17T16:18:33","date_gmt":"2021-05-17T13:18:33","guid":{"rendered":"https:\/\/ria.bg\/?p=758"},"modified":"2021-07-26T16:48:17","modified_gmt":"2021-07-26T13:48:17","slug":"%d1%82%d0%be%d0%bd%d0%b8-%d0%b4%d0%b8%d0%bc%d0%be%d0%b2-%d1%80%d0%b5%d0%b3%d1%83%d0%bb%d0%b0%d1%82%d0%be%d1%80%d0%bd%d0%b0%d1%82%d0%b0-%d1%80%d0%b5%d1%84%d0%be%d1%80%d0%bc%d0%b0-%d1%83-%d0%bd%d0%b0","status":"publish","type":"post","link":"https:\/\/ria.bg\/en\/%d1%82%d0%be%d0%bd%d0%b8-%d0%b4%d0%b8%d0%bc%d0%be%d0%b2-%d1%80%d0%b5%d0%b3%d1%83%d0%bb%d0%b0%d1%82%d0%be%d1%80%d0%bd%d0%b0%d1%82%d0%b0-%d1%80%d0%b5%d1%84%d0%be%d1%80%d0%bc%d0%b0-%d1%83-%d0%bd%d0%b0\/","title":{"rendered":"Tony Dimov before DE FACTO: Regulatory reform in our country has degenerated into a regulatory anomaly"},"content":{"rendered":"

It is high time for those in power in Bulgaria to start boasting not about how many bills they have submitted per unit of time, but about real indicators of what benefits their legislative decisions have brought to society and the state.<\/em><\/p>\n

\u00a0The difference between good and bad legislation is like the difference between infection and vaccination\u2026<\/em><\/p>\n

\u00a0The results of the first 5 years show that the regulatory reform in our country is an imitation.<\/em><\/p>\n

 <\/p>\n

This year Bulgaria will mark the first 5 years since the beginning of the most radical reform in the Bulgarian rule-making process from the Liberation to the present day. The conclusions about its development and achievements, made on the basis of daily ongoing monitoring, show that it is still Re:form<\/strong>, i.e. formal and only on paper, or rIform<\/strong>, i.e. more imitation than actual and effective reform with real positive results for the state and society. These conclusions were not refuted; on the contrary, they were confirmed in the 45th Ordinary National Assembly as well.<\/p>\n

 <\/p>\n

Bills submitted by members of parliament<\/strong><\/p>\n

The unprecedented political polarisation and confrontation in society led to an extremely dynamic atmosphere in the 45th National Assembly, which affected and markedly shaped the legislative activity of its legislature. In less than 1 month, members of parliament submitted an impressive volume of 69 <\/strong>bills. Only one of them was adopted, excluding the Rules of Organisation and Procedure of the National Assembly. This is shown by the results of the express monitoring of the legislative activity of the 45th Ordinary National Assembly carried out by the Center for Regulatory Impact Assessment. Its main goal was to establish the extent to which the members of this Assembly complied with the requirements for better regulation, such as mandatory ex-ante impact assessment and structured public consultation, introduced in Bulgaria with the amendments to the Law on Normative Acts in force from 4 November 2016.<\/p>\n

 <\/p>\n\n\n\n\n\n\n\n\n\n
Parliamentary group<\/td>\nNumber of bills submitted<\/strong><\/td>\nNumber of bills adopted<\/strong><\/td>\n<\/tr>\n
GERB-SDS<\/em><\/td>\n3<\/td>\nNone<\/td>\n<\/tr>\n
There Is Such a People (ITN)<\/em><\/td>\n3<\/td>\n1 (Electoral Code)<\/td>\n<\/tr>\n
BSP for Bulgaria<\/em><\/td>\n10<\/td>\nNone<\/td>\n<\/tr>\n
Movement for Rights and Freedoms (DPS)<\/em><\/td>\n0<\/td>\nNone<\/td>\n<\/tr>\n
DEMOCRATIC BULGARIA (DB)<\/em><\/td>\n30<\/td>\nNone<\/td>\n<\/tr>\n
Stand Up! Mafia, Get Out! (ISMV)<\/em><\/td>\n23<\/td>\nNone<\/td>\n<\/tr>\n<\/tbody>\n<\/table>\n

 <\/p>\n

The bills are extremely unevenly distributed among the five political parties represented in parliament, and, quite expectedly, some of the new players are the most active. With the most bills submitted are the members of parliament from DB, with a total of 30 bills<\/strong>, followed by ISMV with 23. BSP are in the middle of the ranking with 10 bills. Against this background, the participation of the first and second largest parliamentary groups \u2013 GERB-SDS and ITN \u2013 with 3 bills each is modest. DPS are the only ones who have not submitted a single bill for consideration by the 45th National Assembly.<\/p>\n

The favourite for amendments in this National Assembly is the Electoral Code, with as many as 7 amending bills submitted (GERB-SDS \u2013 1; ITN \u2013 1; BSP \u2013 1; DB \u2013 2; ISMV \u2013 2). Far behind it, with 3 amending bills each, come the Social Insurance Code, the Criminal Procedure Code, the Road Traffic Act, the VAT Act and the Act on the Measures and Actions during the State of Emergency.<\/p>\n

 <\/p>\n

The unwritten \u201cprinciple of speed\u201d<\/strong><\/p>\n

The indisputable conclusion that can be drawn from such an abundance of legislative output is that, of all 8 principles of our rule-making set out in the 2016 Law on Normative Acts (Art. 26, para. 1), the members of the last National Assembly observed the \u201cninth\u201d \u2013 the one that is not set out anywhere, but has been applied invariably as a postulate for more than the last 5 years. This is the principle of speed, according to which law-making must always be rushed, at the expense of everything else: the quality of regulation, the poorly defined objectives of legislation, the stakeholders not consulted, the lack of clarity about what benefits and costs can be expected. What matters is to hurry, and why this is so \u2026 \u2013 that is a topic for another conversation.<\/p>\n

The paradox we find ourselves in is that the legislative branch is the only branch of power in our country that is in a hurry. That is, when those in power in Bulgaria have to set the rules of the game, impose their will on us and define the patterns of behaviour that we citizens must follow, it hurries. When, however, rules are laid down that are to be implemented or administered by the executive, then there is no hurry: either there are no deadlines for it or the deadlines are only indicative, and when there happen to be some deadlines, the administration is so inventive that it will find a thousand ways not to meet them or to turn them against us citizens. Not to mention the judiciary. We are tired of hearing about its overload, congestion, formalism, etc., which are cited as reasons for us to wait 10 years for a final ruling on a moderately complex civil case. And finally, the real paradox: Bulgarian legislators race as if in a horse race to submit more and more bills, while Bulgaria lags behind, developing the slowest of all EU Member States on all indicators, even in newer areas such as vaccination against COVID-19, for example???<\/p>\n

\u00a0<\/strong><\/p>\n

The<\/strong> \u201ecopy-paste\u201d phenomenon continues <\/strong><\/p>\n

The negative phenomenon identified in the 43rd and 44th National Assemblies of copy-pasting the explanatory memorandum in the form of an IA<\/strong> continues to be widely applied. A variation of this approach is retelling the considerations set out in the explanatory memorandum, without including additional substantive information.<\/p>\n

 <\/p>\n

The new invention regarding stakeholders<\/strong><\/p>\n

Previous reports by the Center identified the following logical contradiction. In an attempt to be as general and non-specific as possible on the one hand, while at the same time giving maximum significance and weight to their draft normative acts on the other, members of parliament, when describing the addressees and stakeholders of the regulation, often resort to phrases such as \u201csociety as a whole\u201d, \u201call Bulgarian citizens\u201d and others close in meaning.<\/p>\n

The new invention in this field is declarative legislating \u201cof public importance\u201c<\/em> or \u201cin the public interest\u201c<\/em><\/strong>, which is most common in the impact assessments of the bills submitted by DB members of parliament. These formulations raise a fundamental question: is it possible at all, in a modern parliamentary democracy, to adopt public policies, including laws, that are not \u201cin the public interest\u201d but in a private one? And can there be legislation at all that is not \u201cof public importance\u201d? The definite answer to both questions is no, but this does not prevent the newly elected representatives from using such empty expressions, which play the role of \u201cjustifications\u201d \u2013 in quotation marks, because they are fictitious.<\/p>\n

\u00a0<\/strong><\/p>\n

Legislating without clarity about its benefits and costs<\/strong><\/p>\n

Unfortunately, none of the impact assessments prepared within the 45th National Assembly contains a real, in-depth analysis of the costs and benefits of the proposed legal interventions. In general, absolutely unreasoned conclusions are presented, dressed in standard phrases, stating that the proposal would not lead to budget expenditure but would instead bring benefits (unspecified) to society. In many cases, what is written in the impact assessment makes it clear that \u201ccosts and benefits\u201d means \u201ccosts and benefits for the state budget\u201d, which is an extremely narrow interpretation that, even when carried out in good faith, gives only a partial and therefore incorrect picture of the expected impacts.<\/p>\n

 <\/p>\n

From regulatory reform to regulatory anomaly <\/strong><\/p>\n

We will never tire of repeating that, entirely without reason and in direct contradiction with the Law on Normative Acts, the Rules of Organisation and Procedure of the National Assembly as early as 2017 significantly eased the requirements applied when bills are submitted by individual members of parliament, compared with those applied when the Council of Ministers is the submitter. This created a breeding ground for the regulatory reform to degenerate into a regulatory anomaly. Under it, today 2\/3 of all bills are initiated not by the entity typical of any modern parliamentary democracy \u2013 the central executive body \u2013 but by individual members of parliament. This is also shown by the latest data from the study of the National Center for Parliamentary Research covering the bills submitted in the 11 sessions of the 44th National Assembly. This anomaly is unshakeable proof of the severely damaged separation of powers in our country, which is a basic principle of democracy, expressed in the executive using the National Assembly not just as a rubber stamp, as it is popularly said, but as the fast track on which we citizens have been legislatively taken for a ride every day.<\/p>\n

 <\/p>\n

The new ray of light<\/strong><\/p>\n

The new ray of light is not that of the oncoming train in the tunnel, because it is a bundle of several rays introduced with the changes to the Rules of Organisation and Procedure of the National Assembly. With them, the regulatory reform within the National Assembly is to some extent beginning to return to a normal framework.<\/p>\n

First, the changes to the Rules overcome the greatest absurdity, which has existed for 5 years. The most representative and public body, the National Assembly, refused to consult its voters by refusing to apply the requirements for structured public consultation. This insane situation has now been overcome by the Rules (with the new para. 7 of Art. 76), which provide for the creation of a section „Public consultations“ on the website of the National Assembly and oblige members of parliament to comply with the law. Can you imagine how far we have gone in the non-observance of rules by those who create them: the Rules of the National Assembly have to confirm explicitly that the law is binding on members of parliament too, for them to start applying it. This is an absurdity unimaginable for a normal state, which in our case is necessary because of the total legal nihilism of the members of parliament so far.<\/p>\n

Second, the same inconceivably absurd approach was applied in the supplement to Art. 76, para. 1 of the Rules, which states that the principles of rule-making should be observed when members of parliament draft and submit bills. Excuse me, but have members of parliament ceased to be legal subjects under current Bulgarian law, so that when the Law on Normative Acts (in Art. 26, para. 1) provides, in general and abstract terms, the obligation that a draft normative act is prepared with respect for the principles of rule-making, they are excluded from it???<\/p>\n

Third, the amended Rules of Organisation and Procedure of the National Assembly try to plug one of the two biggest holes in the national rule-making process, which have proven their exceptional \u201ceffectiveness\u201d, in reverse, in recent years: the possibility of written proposals by members of parliament between the first and second readings of bills. It was used to introduce all sorts of legislative whims of our representatives (read: of their party or party boss), regardless of whether they had any connection with the main bill or not. The 2021 amendments (Art. 83, paras. 1 and 2) provide that such proposals may not contradict the principles, scope and reasons of the bill adopted at first reading and may not concern legislative acts other than those whose amendment or supplement was proposed in the bill as originally submitted, except by way of exception, for cases in which a stricter voting procedure is provided.<\/p>","protected":false},"excerpt":{"rendered":"

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