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Transposition of EU Legislation into the Legal System of Turkey
Institutional Framework and Coordination – challenges, experiences: case study - Croatia
Marija Pejčinović Burić, Croatia
Ankara, 24th and 25th May 2016
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Content
• The roles of different institutions • Co-ordination of EU Affairs/Harmonisation• NPAA or NPAEU or National Action Plan for EU Accession
(NPEUA) – the strategic document that evolves over the time A tool for co-ordination of harmonisation and over time
overall accession preparations linked with negotiations A tool for monitoring and stearing of the EU related
affairs
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The Role of Different Institutions in the Harmonisation Process
• The Government The coordinator – MEI/MFEA The line ministries The Ministry of Finance The Office for Legislation
• The Parliament The European Integration Committee Other related committeesOther Stakeholders
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The Co-ordination Body: MEI
• Co-ordination of all activities related to EU Integration Phase I
• Implementation of the SAA• Harmonisation• Translation• Pre-accesion funds management• Training• Communication/Information
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The co-ordination body: MFEA
• Co-ordination of all activities related to EU Integration Phase II
• Negotiations• Implementation of the SAA• Harmonisation• Translation• Training• Communication/Information
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Roles of other Gvt. Institutions in Legal Harmonisation Process
• The line ministries Checking for financial impact of the draft legal acts (all
line institutions are obliged to draft a Financial Impact Assessment of the legal act – in a format of the Standardised FIA form, from 2005)
EU co-ordinators (reporting/co-ordination) Sector specific civil servants (drafting legislation and
preparing other relevant documents, such as FIA /Financial Impact Assessment/, and later, after 2011, RIA /Regulatory Impact Assessment/etc.)
Legal departments (checking draft legislation, co-drafting legislation)
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Roles of other Gvt. Institutions in Legal Harmonisation Process (cont.)
• The Ministry of Finance Checking for Finacial Impact Assessment (FIA)
• The Office for Legislation Checking constitutionality of the draft legislation, cross-
checking with other related national legislation in force
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The Role the Parliament in Legal Harmonisation Process
• The Parliament The European Integration CommitteeLegal proposals that are harmonized with the EU acquis, labeled with “P.Z.E.” marking are discussed and voted at the EI Committee
Other related committeesLegal proposals that are harmonized with the EU acquis are also discussed and voted by the respective parliamentary Committee not only for issues related to harmonisation.
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Rules of procedure of the Croatian Parliament
Article 136. – a distinction has been made between draft law harmonizing with the EU acquis and other “national” legal proposals
Legal proposals that harmonize with the EU acquis are labeled with a special “P.Z.E.” marking
Article 161. – provides for urgent adoption procedure in case of laws harmonizing with the EU acquis, if so demanded by the proponent of the law
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The National Program for Accession to the EU: case Croatia
• The main strategic document of the Government of Croatia for approximation with the EU acquis and meeting the EU membership criteria
• An annual comprehensive document – adopted by the Government
• The Parliament – document presented by the Government and Legislative activity plan adopted
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The Croatian NPAEU and Accession Negotiations
• Dual purpose: towards EU – harmonization of legislation, meeting the
SAA obligations + obligations taken on during negotiations (screening; documents for meeting benchmarks; negotiation positions)
strategic planning of all activities and measures on a national level; involvement of all public administration bodies; networking; consistency; effective monitoring of implementation of adopted obligations at the Government level
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Annex A – Acquis implementation
Political criteria
NPAEU
Economic criteria
Legal criteria Admin capacity
Annex B – Budgetary expenditure
NPPAA STRUCTUREN
PAEU
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NPAEU Drafting– legislative part
Legal criteria: ability to take on the EU membership obligations: - Accomplished during the previous year – short overview
of the achievements - Key priorities (short-term and mid-term priorities in earlier stages) - legislative activities + implementation measures - Annex A – table overview
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NPAEU Drafting Instructions
•All legal measures and by-laws whose adoption Croatia has announced for 2007, during bilateral screening or in negotiation positions, or the ones that refer to negotiation opening benchmarks must be cited and elaborated on in detail in the NPAEU.
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NPAEU Drafting Instructions
• National program (NPAEU) must fully reflect the course of the negotiation process at all its stages.•There can be no deviations or differences between the negotiation process and obligations taken, and the NPAEU, as the National program ensures and maintains the course of undertaken obligations during the negotiation process. •The same goes for all the implementing measures officially presented during the negotiation process (institutional, administrative, analytical…)
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Croatian National Programme
• Measures planned Laws By-laws Implementing measures (strategies, action plans,
establishment of new institutions, establishment of new departments within existing institutions, employment, education and trainings, new equipment/IT systems)
Relation with the implementation of a specific acquisThe deadlines set quarterly
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1 FREE MOVEMENT OF GOODS
Redni broj Zakonodavna mjera Odgovorna
institucija EU acquis s kojim se mjera usklađuje Upućivanje uproceduru VRH
1. Zakon o tehničkim zahtjevima za proizvode i ocjeni sukladnosti MGRIP
Rezolucija Vijeća ministara od 7. svibnja 1985. g. o Novome pristupu tehničkom usklađivanju i normama 31985Y0604(01)
I. kvartal 2007.
LEGAL MEASURES
Redni broj Podzakonski akt Odgovorna
institucijaZakonska osnova za donošenje
podzakonskog akta EU acquis s kojim se mjera usklađuje Upućivanje uproceduru VRH
1.
Uredba o načinu i postupku službenog obavješćivanja i suradnje sa Svjetskom trgovinskom organizacijom i Europskom Unijom u području norma, tehničkih propisa i postupaka ocjene sukladnosti
MGRIP Zakon o tehničkim zahtjevima za proizvode i ocjeni sukladnosti
Direktiva 98/48/EZ Europskog parlamenta i Vijeća od 20. srpnja 1998. kojom se izmjenjuje i dopunjuje Direktiva 98/34/EZ koja utvrđuje postupak pribavljanja informacija na području tehničkih standarda i propisa 31998L0048
III. kvartal 2007.
b) Podzakonski akti
Opis mjere Faze procesa Odgovorna institucija Rok usvajanja / provedbe
STRATEGIJE
Strategija za cjelokupno područje slobodnog kretanja roba a) održati sastanke sa sektorima iz područja Slobode kretanja roba MGRIP
I. kvartal 2007.
b) dostaviti nacrt strategije nadležnim tijelima državne uprave na očitovanje MGRIP
II. kvartal 2007.(travanj 2007.)
c) dostaviti prijedlog nacrta strategije na očitovanje Europskoj komisiji MGRIP
II. kvartal 2007.(svibanj 2007.)
d) dostaviti strategiju Vladi RH na usvajanje MGRIP III. kvartal 2007.PLANOVI
Akcijski plan za usklađivanje s člancima 28.-30. Ugovora o EZ MGRIP III. kvartal 2007
PROVEDBENE MJERE
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Gradual Evolution of the National Programme for EU Integration
2003 13 priority areas + JHA
2004
2005
SAA Implementation PlanAll chapters (29), AVIS, European Partnership
2006
2007
2008
2009
33 chapters, Screening results, Progress Report, Accession Partnership,
Benchmarks, Negotiation results
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2010., 2011. i 2012. – Process Continues
• Program for adoption and implementation of the EU acquis
– new acquis – moving target
• Transitional period instrument and preparation for adoption of the EU acquis-a in the environment of full EU membership
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Monitoring Implementation of the NPAEU
Line ministries – responsible for the transposition of EU acquis in their competence
EU coordinators in the state administration bodies – responsible for EU portfolio within the framework of their institutions
EU departments – focal points for the communication with MFEA and other sectorial departments
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Monitoring the NPAEU implementation
EU coordination - all EU coordinators, Assistant Minister of Foreign and European Affairs is presiding Regular meetings
• Executive – regular working bodies of the Government and Government sessions
• MFEA – submits reports to the Government + detailed overview of upcoming activities; in the case of open issues – a special non –paper for discussion and decision making on the highest level drafted
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Monitoring Implementation of the NPAEU
First point of the Agenda of standing Government bodies, Government meetings, and narrow cabinet Weekly
European Integration Committee of the CP
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Monitoring Implementation of the NPAEU
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for social affairs and
human rights
for economy and EU funds
for internal affairs
for foreign and european
affairs
for social affairs and
human rights
for economy and EU funds
for internal affairs
for foreign and european
affairs
Governmentsession
Expert working groups Coordinations
Mondays Tuesdays
Thursdays
Innercabinet
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Implementation of the NPAAEU
Implementation coordination by MFEAWeekly updates of statistics on made progress Responsibility of each line ministry and of other public administration bodies
OVERVIEW OF THE LEGAL PROPOSALS FOR ADOPTION OF THE EU ACQUIS IN 2011 – REPUBLIC OF CROATIA I. QUARTER
LEGAL MEASURES GOVERNMENT STATUSTHE MINISTRY OF INTERIOR
11 The Law on amendments to the Law on witness protection 10.01.2011. OJ 18/11
12 The Law on changes and amendments to the Law on Foreigners 21.03.2011.
14.01.11. sent to EC 23.02. EC provided opinion
MINISTRY OF FINANCE
13 The Law on special tax on coffee 07.02.2011.
07.02.2011. The Law passed on the Gvt session; sent to the Parliament
MINISTRY OF SEE, TRANSPORT AND INFRASTRUCTURE
14 The Law on changes and amendments of the Law on Maritime Code 31.03.2011.
MINISTRY OF SCIENCE, EDUCATION AND SPORT
15 The Law on changes and amendments to the Law on Regulated Professions and recognition of professional qualifications
15.03.2011.
16The Law on ratification of the Memorandum of Understanding between the RC and the EU on participation of RC in the programmes Youth in Action and the Action Programme in the field of Life Long Learning (2007.-2013.)
15.02.2011. 27.01.11. The law passed on the Gvt. Session and sent to the Parliament
MINISTRY OF THE FAMILY, VETERANS AND INTER-GENERATIONAL SOLIDARITY
17 The Law on changes and amendments of the Law on Maternity and Familiy aid
31.01.2011.
28.02. on the agenda of the standing Gvt. working bodies
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NPAEU and preparation and monitoring of negotiating documents
• NPAEU – strategic framework• Take into account measures planned in the NPAEU• Preparation of sectoral strategic documents – broader
aspect in relation to the NPAEU• Need to have coherence with other strategic
documents• Financial implications – budget and projections for
next period• Public Administration Recruitment plan
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EUNPAEU and preparation and monitoring of
negotiating documents
NPAA - instrument for the monitoring of obligations steaming from the accession negotiations – requires flexibility
Inclusion of additional measures in the NPAEU during the year (monthly/every three months/right after upon the obligation is established)
Prolongation of deadlines – consultations with EU or other stakeholders
Negotiating team – active participation in the preparation of the reports on the NPAEU implementation for the Government
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NPAEU – Do’s and Dont’s
NPAEU must fully reflect the course of the accession negotiation process in all its stages
No discrepancies and differences between the obligations taken within accession negotiation process and NPAEU - NPAEU ensures and reflects the course of commitments taken during negotiating process
Laws and by-laws which represent opening benchmarks or which adoption is announced in the negotiating position must be included in the NPAEU
The same goes for all implementing measures officially presented in the course of the negotiating process (institutional, administrative, analytical…)
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NPAEU – Do’s and Dont’s
Avoid introduction of new reporting mechanisms
Avoid creation of parallel/double channels for the reporting and monitoring of the NPAA obligations and negotiating obligations
Use regular procedure for the adoption on the level of the Government and the Parliament
Choose the most efficient model
The same decision makers on national level
Ensure regular monitoring
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Conclusion
• Challenging process, as it needs:
- establishment of an effective coordination system that will enable clear definition of national interests and priorities- adjustment of procedural rules- avoidance of double coordination mechanisms (EU affairs are regular affairs)- establishment of cooperation mechanisms with stakeholders (businesses, trade unions, universities, civil society)
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