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Guidelines Approximation with Eu Funded by Implemented by a Consortium led by the European Union GFA Consulting Group GUIDELINES FOR UKRAINIAN GOVERNMENTAL ADMINISTRATION ON APPROXIMATION WITH EU LAW Алан Делькамп, експерт Як підвищити ефективність парламентських комітетів? Приклади передового міжнародного досвіду Вступ Комітети є найважливішими робочими органами у парламенті. Це не означає, що публічні засідання є менш важливими, але їхня функція відрізняється: публічно GUIDELINESобговорювати рішення та приймати остаточні рішення у церемоніальний спосіб. Це не означає, що парламентські комітети не відіграють політичну роль, але їхня робота відбувається на попередньому етапі, за винятком деяких конкретних обставин (законодавчі ініціативи комітету, якщо це конституційно можливо, або деякі особливі аспекти, такі як парламентські запити чи контрольні повноваження). FOR UKRAINIAN GOVERNMENTALНасправді, історично створення комітетів стало прагматичною відповіддю на очевидну потребу: зібрати депутатів парламенту в менші групи для забезпечення більш ефективної роботи. Вони також дають парламенту більше часу для підготовки своїх відповідей на урядові ініціативи. Створення комітетів є загальною тенденцією в парламентах, незалежно від того, яка може бути політична система (їх можна знайти в президентських, парламентських чи ADMINISTRATION будь-яких інших системах) і завжди є прагматичним ON (способи їхнього заснування були різні внаслідок різного історичного досвіду). Вони з'явилися в найрозвинутіших демократіях на початку 19-го століття (а часом і раніше1) і були закріплені сторіччя по тому в різних формах і на різних рівнях ієрархії норм (у регламенті чи навіть у конституції). Тим не менш, «мати» парламентської демократії, Англія, завжди мала застереження щодо розвитку повноважень комітетів. Вважалося, що підготовчі роботи APPROXIMATION1 Наприклад, можна знайти спеціальні комітети в англійському парламенті з кінця XVI століття, а також у французьких Генеральних штатах (але на відміну від англійського парламенту вони не були постійною установою у Франції). У США перші законодавчі комітети були створені в 1789 році для розробки регламентів кожної палати. WITH EU LAW Kyiv 2018 TABLE OF CONTENTS LIST OF ABBREVIATIONS . 6 INTRODUCTION . 7 1 . APPROXIMATION OF UKRAINIAN LAW WITH EU ACQUIS . 9 1 .1 . Approximation of Ukrainian Law with EU acquis under the Partnership and Co-operation Agreement . 10 1 .2 . Approximation of Ukrainian Law with EU acquis under the Association Agreement . 11 1 .3 . Dynamic approximation . 14 1 .4 . EU legal approximation outside the scope of the Association Agreement . 16 1 .5 . Requirements for approximation . 16 1 .5 .1 . Planning of approximation . 16 1 .5 .2 . Law approximation technique . 17 1 .5 .3 . Compliance checking . 18 2 . BASICS OF THE EU LEGAL SYSTEM . 19 2 .1 . Competences of the European Union . 20 2 .1 .1Introduction . 20 2 .1 .2 . Exclusive competences . 20 2 .1 .3 . Shared competences . 22 2 .1 .4 . Supporting competences . 23 2 .2 . Sources of EU law . 24 2 .2 .1Introduction . 24 2 .2 .2 . EU primary law . 26 2 .2 .2 .1 . Treaty on European Union . 26 2 .2 .2 .2 . Treaty on the Functioning of the European Union . 26 2 .2 .2 .3 . Treaty establishing European Atomic Energy Community . 28 2 .2 .2 .4 . Charter of Fundamental Rights . 28 2 .2 .2 .5 . Revision Treaties . 29 2 .2 .2 .6 . Accession Treaties . 30 2 .2 .3 . International Law . 31 2 .2 .4 . Sources of EU secondary law . 33 2 .2 .4 .1 . Catalogue of sources of EU secondary legislation . 33 2 .2 .4 .2 . Typology of EU secondary legislation . 34 2 .2 .4 .3Regulations . 37 2 .2 .4 .4Directives . 39 2 .2 .4 .5Decisions . 42 2 .2 .4 .6 . Structure of EU legal acts . 42 2 .2 .4 .7 . Remedies and sanctions . 44 2 .2 .4 .8 . Publication of EU secondary legislation . 46 2 .2 .5 . Case-law of the Court of Justice of the EU . 46 2 .2 .6 . General principles of EU law . 47 2 .2 .7 . Soft law . 47 2 .3 . Multilingual character of EU law . .48 . 3 3 . APPROXIMATION PROCESS . 49 3 .1 . Planning of law approximation . 49 3 .1 .1 . Inventory of EU acquis . 50 3 .1 .2 . Inventory Ukrainian policy documents and legislation . 52 3 .1 .3 . Gap analysis . 52 3 .2 . Development of policy framework . 54 3 .2 .1 . Linkage between legal approximation and policy formulation . 54 3 .2 .2 . Typical policy formulation process and the role of legal professionals in this process . 55 3 .3 . How to prepare for drafting stage of law approximation . 56 3 .3 .1 . Proposals and explanatory memoranda . 56 3 .3 .2 . Reports on implementation . 57 3 .3 .3 . Relevant case-law of the Court of Justice of the EU . 58 3 .3 .4 . Relevant soft law . 58 3 .4 . Legal drafting in the context of EU legal approximation . 59 3 .4 .1 . Rule of Law standards . 59 3 .4 .1 .1 . Meaning of “accuracy” and “predictability” . 60 3 .4 .1 .2 . Meaning of “practicability” (applicability) . 61 3 .4 .1 .3 . Meaning of “proportionality” . 61 3 .4 .1 .4 . Meaning of “coherence” and “consistency” . 62 3 .4 .2 . Structure of legal acts and provisions within legal acts . 62 3 .4 .2 .1Numbering . 63 3 .4 .2 .2 . Structure of legal acts . 63 3 .4 .3 . General provisions . 64 3 .4 .3 .1 . Scope of application . 65 3 .4 .3 .2 . Use of definitions . 65 3 .4 .3 .3 . Use of principles . 66 3 .4 .3 .4 . Implementation competence clauses . 66 3 .4 .4 . Substance of a legal act . 67 3 .4 .4 .1 . Use of declaratory provisions . 68. 3 .4 .5 . Final and transitional provisions, annexes . 69 3 .4 .5 .1 . Provisions dealing with sanctions . 69 3 .4 .5 .2 . Transitional and expiry provisions . 70 3 .4 .5 .3 . Repeal provisions . 70 3 .4 .5 .4Annexes . 71 3 .4 .6 . Language and legal technique . 71 3 .4 .6 .1Language . 71 3 .4 .6 .2 . Use of conjunctions . 72 3 .4 .7 . Good law drafting technique . 73 3 .4 .7 .1 . References within an article . 73 3 .4 .7 .2 . References between articles within a legal act . 74 3 .4 .7 .3 . References to provisions in other legal acts . 74 3 .4 .7 .4 . Use of lex specialis clauses . 74 3 .5 . Statement of compliance and table of compliance . 75 3 .6 . Regulatory impact assessment of draft EU approximation laws . 77 3 .7 . Goldplating and overregulation . 78 4 GUIDELINES FOR UKRAINIAN GOVERNMENTAL ADMINISTRATION ON APPROXIMATION WITH EU LAW 4 . ANNEXES . 81 Annex I . Organization of EU legal approximation process in Ukraine . 81 Annex II . Guidelines on Tables of Compliance and statements on EU law compliance . 87 Annex III . Review of case-law of the CJEU relevant to the areas covered by the EU-Ukraine Association Agreement . 94 Annex IV . Application of EU law in the EU Member States . 95 Primacy of EU law . 96 Doctrine of direct effect . 98 Doctrine of indirect effect . 100 Doctrine of state liability . 101 Annex V . Manual on EU legal databases . 103 5 LIST OF ABBREVIATIONS ACRONYMS MEANING AA Association Agreement CETA Canada – EU Trade Agreement CJEU Court of Justice of the European Union CFSP Common Foreign and Security Policy CMU Cabinet of Ministers of Ukraine COM Commission documents for the other institutions DCFTA Deep and Comprehensive Free Trade Agreement EEA European Economic Area EEC European Economic Community EC European Community EFTA European Free Trade Association ECHR European Convention for the Protection of Human Rights and Fundamental Freedoms EU European Union PCA Partnership and Cooperation Agreement RIA Regulatory Impact Assessment SAA Stabilisation and Association Agreement TEU Treaty on European Union TFEU Treaty on the Functioning of the European Union.
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