ЎЗБЕКИСТОН
ҚОНУНЧИЛИГИ
ТАҲЛИЛИ
♦
UZBEK LAW REVIEW
♦
ОБЗОР
ЗАКОНОДАТЕЛЬСТВА
УЗБЕКИСТАНА
2015
№
1
♦
ЎЗБЕКИСТОН
ҚОНУНЧИЛИГИ
ТАҲЛИЛИ
♦
UZBEK LAW REVIEW
♦
ОБЗОР
ЗАКОНОДАТЕЛЬСТВА
УЗБЕКИСТАНА
12
томонлама
мустаҳкамлаш
,
оммавий
ахборот
воситаларида
чиқишларнинг
сифатини
яхшилаш
,
соҳавий
фаолиятнинг
самарадорлигини
оширишга
қаратилган
назарий
ва
илмий
-
услубий
тадқиқотларни
жадаллаштириш
,
соҳада
мавжуд
ижобий
ишларни
кенг
оммалаштиришга
эътиборни
янада
кучайтириш
лозим
бўлади
.
Аннотация
:
Мақолада
қонунларни
етказишнинг
тарихий
ривожланиши
,
мазкур
соҳадаги
хорижий
мамлакатлар
тажрибаси
таҳлил
қилинган
.
Амалга
оширилган
таҳлил
натижасида
Ўзбекистон
Республикасида
мазкур
соҳани
ривожлантиришнинг
истиқболлари
бўйича
хулосалар
берилган
.
Калит
сўзлар
:
қонун
,
қонун
-
ҳужжатлари
,
қонунларни
етказиш
,
қонунлар
моҳияти
.
Аннотация
:
В
статье
осуществлен
анализ
истори
-
ческого
развития
доведения
законов
и
зарубежный
опыт
в
данной
сфере
.
Исходя
из
проведенного
анали
-
за
,
сделаны
выводы
о
перспективах
развития
данной
сферы
в
Республике
Узбекистан
.
Ключевые
слова
:
закон
,
законодательные
акты
,
доведение
законов
,
значение
законов
.
Annotation:
In article the analysis of historical devel-
opment of finishing laws and foreign experience in this
sphere is carried out. Proceeding from the carried-out
analysis, conclusions are drawn on prospects of develop-
ment of this sphere in the Republic of Uzbekistan.
Key words:
law, acts, finishing laws, value of laws.
Адабиётлар
рўйхати
:
1.
Каримов
И
.
А
.
Ўзбекистон
Республикаси
Олий
Мажлиси
Қонунчилик
палатаси
ва
Сенатининг
қўшма
мажлисидаги
нутқи
2.
Каримов
И
.
А
.
Ўзбекистон
Республикаси
Олий
Мажлиси
Қонунчилик
палатасининг
биринчи
ташкилий
йиғилишидаги
нутқи
. http://uza.uz/ 22.01.2015.
3.
Лазарев
Л
.
В
.
Иностранные
граждане
(
правовое
положение
). /
Лазарев
Л
.
В
.,
Марышева
Н
.
И
.,
Пантелее
-
ва
И
.
В
. –
М
.:
Российское
право
, 2012. –
С
319.
4.
Римское
частное
право
/
Под
ред
.
проф
.
И
.
Б
.
Новицкого
и
проф
.
И
.
С
.
Перетерского
. –
М
.:
Юрис
-
пруденция
, 2009. -
С
512.
5.
Форобий
Абу
Наср
.
Фозил
одамлар
шаҳри
.
(
Танл
.
асарлар
). –
Т
.:
Абдулла
Қодирий
, 1993. 224
б
;
Сюкияйнен
Л
.
Р
.
Мусульманское
право
.
Вопросы
тео
-
рии
и
практики
. –
М
.:
Наука
, 1986. -
С
254.
6.
Темур
тузуклари
. (
Форсчадан
А
.
Соғуний
ва
Ҳ
.
Кароматов
тарж
.;
Б
.
Ахмедов
таҳр
.
остида
). –
Т
.:
Ғ
.
Ғулом
, 1996. 344
б
.
7.
Ўзбекистоннинг
янги
тарихи
. 1-
жилд
.
Туркистон
чор
мустамлакачилиги
даврида
.
/
Тузувчилар
Ҳ
.
Содиқов
ва
б
. –
Т
.: «
Шарқ
», 2000. 464
б
.
8.
Ўзбекистон
янги
тарихи
. 2-
жилд
.
Ўзбекистон
совет
мустамлакачилик
даврида
.
/
Тузувчилар
М
.
Жўраев
ва
б
. –
Т
.:
Шарқ
, 2000. 688
б
.
9.
Улрих
Рудолф
.
Ал
-
Мотрудий
ва
Самарқанд
суннийлик
илоҳияти
. –
Т
.:
Имом
Ал
-
Бухорий
халқаро
жамғармаси
Фридрих
Эберт
жамғармаси
, 2002. –203
б
.
A.Porayko
The Legislation Institute
of the Verkhovna Rada of Ukraine,
postgraduate student
ABILITY TO ADAPT IN THE SYSTEM OF PUBLIC
ADMINISTRATION OF UKRAINE OF UK EXPERIENCE
REGARDING CUTTING RED TAPE
Signing the Ukraine–European Union Association
Agreement envisages the normatively legal approximation
in accordance to the EU acquis. This means strengthening
cooperation between countries, exchange of experience
and information on implementation of the best practices
and legislative base. Being one of the conditions of eco-
nomic and branch collaboration, such unification must
ease cooperation between domestic enterprises and for-
eign partners, as well as provide gradual economic and
political integration. In this respect, the system of public
administration requires reformation in accordance with
democratic standards. One of the problems of this system
hitherto is red tape. Red tape impedes the process of cre-
ation of competitive economy of social direction. Cumber-
some procedures, undue paperwork, excessive bureau-
cratic regulations, ramified system of regulatory authori-
ties, absence of transparency are only a part of display of
the red tape manifestations. As we noted earlier [1], red
tape is commonly correlated with corruption; red tape ends
wherein legal responsibility for corrupt practices begins.
Officials create various bureaucratic barriers in order to be
able to influence social development with the help of regu-
latory, supervisory, coordinating and other functions. Up
until recently, it was a commonly used practice in Ukraine
to establish state bodies (services or inspectorates mostly)
for a certain chief. Later some part of powers of a certain
ministry were transferred to such state div. A combina-
tion of monopolization of these functions and complexity of
bureaucratic procedures enhanced value of such state
div, as well as contributed to personal enrichment of the
officials.
The extensive research has revealed that the United
Kingdom, whose experience we shall analyze hereto, is
one of the foremost countries in the sphere of red tape
counteraction.
Analysis of the last publications
confirms that a con-
siderable number of scientific works are devoted to the
problem of red tape. In particular, those are the works of
local and foreign researchers such as B. Bozeman, G.
Hayden, G. Kaufman, M. Landau, N. Nyzhnyk, H. Rainey,
F. Reehs, B. Skrypniuk, V. Soloviev, V. Tsvetkova, H. Ya-
kovenko and others.
In his research on red tape in the context of interna-
tional experience, V. Tsvetkov points out that due to a civil
service reform, improvement of professionalism and com-
petence of officials Great Britain has sharply reduced the
regulatory function of the state in economy. Moreover,
bureaucracy is clamped into harder scopes of functioning
1
.
B. Skrypniuk analysed the bureaucracy and red tape in
terms of law, political science, sociology, social science,
history and culturology. He suggested defining red tape as
a perversive form of professional administration having
1
Цвєтков
В
.
В
.
Демократія
–
Управління
–
Бюрократія
:
в
контекс
-
ті
модернізації
українського
суспільства
[
монографія
] /
В
.
В
.
Цвєтков
,
В
.
П
.
Горбатенко
/
К
. :
І
нститут
держави
і
права
ім
.
В
.
М
.
Корецького
НАН
України
, 2001. – C.197.
ЎЗБЕКИСТОН
ҚОНУНЧИЛИГИ
ТАҲЛИЛИ
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UZBEK LAW REVIEW
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ОБЗОР
ЗАКОНОДАТЕЛЬСТВА
УЗБЕКИСТАНА
2015
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ЎЗБЕКИСТОН
ҚОНУНЧИЛИГИ
ТАҲЛИЛИ
♦
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♦
ОБЗОР
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13
explained that such administration substitutes social and
state interests by its personal interest
1
.
H. Yakovenko quite reasonably indicates that bureau-
cracy is an administrative association, a system of man-
agement, officialdom that provide administrative activity.
Red tape means satisfying department interests in conflict
with the interests of society and neglecting the content of
the matter to comply with formalities
2
. In our opinion, given
definition of red tape is incomplete since it describes only
one of red tapes’ displays - the formality. Still, caring for
personal interests contrary to public interests is an im-
portant constituent of the definition of red tape.
V. Soloviev investigated red tape counteraction in the
context of the New state administration. The scientist stat-
ed that the main directions of managerialisation of state
administration in Great Britain are red tape reduction and
downsizing of the state apparatus; public choice and mar-
ketization; privatization, protection of rights and choice
diversification; performance evaluation of the state admin-
istration bodies; regulation and inspection; fragmentation;
joint management
3
.
G. Kaufman examines the phenomenon of red tape
through the prism of balance of trust to officials, which
prompts the establishment of certain restrictions on their
activities through clear instructions, requirements and im-
plementation of the public control, as well as regular in-
spections of officials’ activity
4
.
It is worth noting that in the system of public admin-
istration of Ukraine the problem of adopting the best inter-
national practices of red tape counteraction remains insuf-
ficiently investigated. This defines
the purpose
of this pub-
lication. In order to achieve such purpose
a task
of ascer-
taining practical mechanisms on red tape restriction and
predicting the possibility of their adaptation in Ukraine was
set.
A constant presence of specific needs and require-
ments that citizens put up to the state is a significant pre-
condition of red tape appearance as such requirements
require that appropriate measures of relevant authorities
are to be taken. In practice, such needs are fulfilled with
the help of compulsory formally defined rules of behaviour,
and procedures that are defined, established or authorized
by the state. Western researchers consider this process
as formalization, meaning the level of normative regulation
of certain areas through officially established ("written")
regulations, procedures, guidelines, communications etc.
However, they believe that the larger amount of existing
legal acts, regulations, procedures, instructions there is,
the more likely the emergence and red tape emergence in
public institutions and private organizations gets.
Following the principle of social justice, state at the
macro level regulates social relations and thus establishes
the rights of certain groups of the population. Government
1
Скрипнюк
В
.
М
.
Бюрократизм
в
системі
державного
управ
-
ління
та
механізм
його
подолання
:
дис
....
канд
.
юридич
.
наук
:
12.00.01. –
О
., 1999. –C. 183-184.
2
Яковенко
Г
.
Б
.
Державний
бюрократизм
і
шляхи
його
раціо
-
налізації
/
Г
.
Б
.
Яковенко
//
Державне
управління
та
місцеве
самоврядування
. 2010. –
Вип
. 1 (4). –
С
. 47-51. – Access Mode:
http://www.dridu.dp.ua/vidavnictvo/2010/2010_01%284%29/10yg
bdsr.pdf
3
Соловйов
В
.
М
.
Основні
напрями
менеджеризації
державно
-
го
управління
Великобританії
/
В
.
М
.
Соловйов
//
Менеджер
:
вісн
.
Донец
.
держ
.
ун
.
упр
. 2010. –
№
3(53). –
С
. 45-46.
4
Kaufman H. Red Tape: Its Origins, Uses, and Abuses / Kaufman
Herbert. – USA : Washington, D.C: Brookings Institution Press,
1977. –P. 29.
guarantee of implementation of social, group and individu-
al interests of citizens requires the adoption of certain
measures, application of state-administrative influence
and mechanisms up to compulsion. Therefore, the pro-
cess of formalization (development and adherence to cer-
tain rules of law by officials) is an essential positive public
phenomenon. Together with the officially defined require-
ments it was the formalization of certain areas of public
life, that Barry Bozeman
5
rightly sees as the positive role
of bureaucrats. However, in practice there are many cases
of "inadequate formalization", caused by bureaucrats
which insufficiently understood the emergence of prob-
lems, the background of circumstances and the relation-
ship between resources, means and goals. In other words,
development of ineffective rules and formalization of life
spheres of a single organization or society as a whole
resulted in the "narrow", insufficient understanding by bu-
reaucrats of the causes of certain problems.
In 2012 Jimmy Wales, who is an American entrepre-
neur and founder of "Wikipedia", the wiki concept ideo-
logue, became British government adviser with the aspira-
tion to introduce innovative approaches in the process of
reforming public administration, e-government and red
tape counteraction. The philosophy of "Open Government"
(open-source governance), which Jimmy promotes, is
about the maximum transparency of information and ac-
tions, as well as direct participation of citizens. The idea of
"crowd sourcing" or "collective intelligence" is about involv-
ing the highest possible number of British citizens to work
on laws and governmental decisions
6
.
It should be noted that the concept of "Open Govern-
ment" includes the project named Red Tape Challenge,
launched in April 2011. Its purpose is to collect ideas of
citizens concerning "superfluous" legislation via publishing
collection of rules and laws on certain topics on the web-
site. Then the offers of citizens are sent to the relevant
ministries and are processed within three months.
In that regard, the Prime Minister David Cameron said
that 800 regulation acts were eliminated or simplified in
early 2014. Moreover, the Prime Minister David Cameron
has stated that the reduction of the red tape burden on
business has made it possible to create more than 1 mil-
lion 300 thousand jobs (from 2010 to 2014). It is planned
to analyse more than 3 thousand regulatory norms that will
allow business save more than 850 million pounds per
year
7
.
Given examples demonstrate specific steps the United
Kingdom Government takes for business development
and economic support, show how citizens are involved
and what the outcomes of these activities are. Importantly,
these results have a clearly defined character: cash
equivalent, including the amount of savings; number of
analysed cancelled regulations and created jobs.
In comparison, measures for the sake of deregulation
and reducing the number of contacts between business
5
Bozeman B. A Theory of Government Red Tape / Barry
Bozeman // Journal of Public Administration Research and
Theory.
–
1993. –
Vol. 3. – No. 3 (July). – P. 279, 286.
6
Jimmy Wales: Wikipedia chief to advise Whitehall on policy
[Electronic
resource]
//
Access
Mode:
http://www.telegraph.co.uk/technology/wikipedia/9137339/Jimmy-
Wales-Wikipedia-chief-to-advise-Whitehall-on-policy.html
7
Prime Minister announces government exceeds its target to
identify 3,000 regulations to be amended or scrapped [Electronic
resource]
//
Access
Mode:
http://www.redtapechallenge.cabinetoffice.gov.uk/themehome/pm
-speech-2/
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2015
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and government on red tape counteraction are directed in
the Program of procedure of work of the Cabinet of Minis-
ters of Ukraine, approved by the Act of Verkhovna Rada of
Ukraine on December 11, 2014
№
26-VIII. Those include:
a decrease in the first half of 2015 the number of supervi-
sory authorities from 56 to 28, their functions - from 1032
to 680, ensuring compliance of the number of supervisory
bodies and their functions in full with European standards
(2016).
These are substantial steps in order to minimize pres-
sure on the business environment and the introduction of
democratic standards of public administration. It is essen-
tial to count the money equivalent of savings for business
and profits for the state of such measures in order too
understand the economic effect of these activities, as it
was done in the United Kingdom.
Unfortunately, due to the high level of corruption, the
spread of the shadow economy, the lack of stability of
banking system, fluctuations in inflation, instability of hryv-
nia etc., it is complicated to conduct the above mentioned.
It is only a part of the economic, social and legal problems,
which do not allow to conduct a research in order to calcu-
late the cost of red tape for business and government. On
the one hand, the availability of quantitative indicators in
the Program of procedure of work of the Cabinet of Minis-
ters of Ukraine is the factor that will determine the efficien-
cy of these measures, on the other hand – participation of
entrepreneurs and citizens in these processes is mediat-
ed, despite the fact that the Program must be directly ap-
plied to them. The criteria under which the supervisory
authorities will be eliminated are not quite clear as well. It
should also be noted that there is no such thing as a
common European standard on supervisory authorities,
however eliminating duplication of functions, reducing their
size and control of amount and supervision of work is a
reasonable position.
The aforementioned government program also pro-
vides for the first quarter of 2015 the adoption of the new
Laws of Ukraine with the purpose of deregulation and red
tape reduction in the system of state administration. These
Laws are the following: Laws of Ukraine "On Licensing of
Certain Types of Economic Activities" (which was signed
by the President of Ukraine on March 25, 2015), "On the
Technical Regulations and Conformity Assessment Pro-
cedures" (which will come into force on February 10,
2016); implementation of adopted in 2014 Laws of Ukraine
"On Metrology and Metrological Activity" and "On Stand-
ardization"; adoption of 1500 national standards harmo-
nized with the EU standards, termination of the former
USSR standards on the territory of Ukraine (2015); crea-
tion of full-text electronic database standards (about 28
thousand standards) (2015) etc.
The above-mentioned measures are focused directly
or indirectly on red tape limiting, which is should be done
by abolishing the old standards and the adoption of the
new ones which are unified with the EU system. These
changes in the legislation demonstrate attempts of the
country's leaders to improve the cooperation of our coun-
try with European partners.
Democratic approaches in optimization of the system
of state administration of Great Britain and red tape coun-
teraction also consist in establishment of a new British e-
government portal - www.gov.uk. This project gathers all
state sites on the same platform, which becomes an online
center of all e-services, and coordination between officials
and citizens. Maintaining a single portal instead of hun-
dreds of different web sites of state authorities and the old
DirectGov saves nearly 50 million pounds per year
1
.
Gov.uk resource is established according to such prin-
ciples: fast, simple and clear. According to the latest moni-
toring of 51 official website of the central executive au-
thority and 24 official websites of local authorities, con-
ducted by State Committee of Television and Radio in
January 2015, the main disadvantages are the following:
not fully presenting the information, compulsory placement
of which is governed by state regulations; untimely posting
of incomplete information, without specifying the date; lack
of logical information placement, inefficiency or poor quali-
ty of the search engines, etc.
2
It is believed that this example of unification of experi-
ence of Great Britain can be adapted to the system of pub-
lic administration in Ukraine. As seen from the given moni-
toring, principles of "fast, simple and clear" are not a priori-
ty in web resources of government authorities of Ukraine,
not even taking into account the cost that the state has to
pay for such an extensive, diverse and ineffective system.
We believe that establishment of a single web-resource for
the government will solve these problematic issues.
It should be noted that the results which are achieved
in red tape counteraction in Great Britain have spread to
the other countries of the European Union. The report of
the target business group "Red Tape Counteraction in the
European Union" became important in this process [12].
Since the report is actually a "road map" of red tape
counteraction in Europe, a detailed analysis will take place
herein in order to make recommendations for Ukraine. The
main idea of this report is within the scope that regulatory
rules should not interfere but promote the development
and innovation. In order to avoid barriers that interfere
development, businessmen appealed to the Prime Minis-
ter David Cameron with a request to develop recommen-
dations for the United Kingdom, European government
and institutions. As a result of joint activities involving the
European business environment 30 recommendations
upon 5 major barriers were developed: the overall compet-
itiveness; opening of companies and recruitment; business
expansion; cross-border trade and attraction of innova-
tions
3
.
Businessmen suggested that European Commission
would introduce the following principles: competitiveness
test; “one norm accepted - one removed” principle; inter-
ventions; proportionate rules; exemptions and lightweight
modes; target to reduce overloading; assessment and
security. To the barriers of overall competitiveness that
need to be overcomed, the United Kingdom analytics in-
clude lack of a genuine single market of services. As a
reference for the European Commission it was proposed:
to provide full implementation of the Directive on Services
throughout the EU; to ensure that data protection rules are
not placed at unreasonable cost for business; to abstain
1
Towards
о
pen-source governance:
зачем
Великобритании
Джимми
Уэйлс
? [Electronic resource] – Access Mode: http://e-
gov.by/best-practices/towards-open-source-governance-zachem-
velikobritanii-dzhimmi-uejls
2
Держкомтелерадіо
провів
моніторинг
веб
-
сайтів
органів
ви
-
конавчої
влади
[Electronic resource] /
Урядовий
портал
. 2015.
–
12
січня
.
–
Access
Mode:
http://www.kmu.gov.ua/control/uk/publish/article?art_id=24786411
3&cat_id=244277212
3
Cut EU red tape. Report from the Business Taskforce [Electron-
ic
resource]
//
Access
Mode:
https://www.gov.uk/government/uploads/system/uploads/attachm
ent_data/file/249969/TaskForce-report-15-October.pdf
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15
from introducing legislative proposals for shale gas; to
abandon proposals to extend the reporting requirements
that are not included in the list of companies.
In order to overcome the barriers of company opening
and recruiting, it is suggested to reduce the cost of as-
sessing the impact on the environment; immediate in-
crease of existing restrictions of state procurement; to lead
out more small and medium enterprises from the applica-
tion of the rules on the sale of shares; to minimize new
reporting requirements depending on the fuel; to abandon
plans on strict food products labelling; to abolish unneces-
sary regulations that apply to the transportation of small
amounts of waste and so on.
Business expansion requires rejection of costly new
proposals for assessing the impact on the environment;
excessively strict rules on food labelling; minimization of
new requirements for reporting for emissions from fuel;
exemption of small and medium businesses from the rules
on sale of shares etc.
Cross-border trade and attraction of innovations re-
quire creation of a single digital market; minimisation of
international regulatory barriers; abandonment on labelling
country of origin for consumer products; early coordination
of the new Regulation on clinical trials; improving access
to the system of licensing for new drugs EU etc.
1
The results obtained in the course of the above re-
search provide the author with bases to give the following
conclusions
.
1. The research revealed that one of the main pre-
requisites of red tape emergence in public administration
is the process of developing and implementing the norms
of law by officials (mandatory, formally defined behaviour
rules, regulations, procedures etc.). The process of legal
regulation of certain aspects of life through formally estab-
lished rules, procedures, and guidelines should be under-
stood as formalization. It is determined that the inadequa-
cy in the implementation of formalization by the officials
leads to red tape. It is proved that efficient and effective
mechanisms of preventing and combating red tape is
openness during decision-making, public control over the
activities of officials, increase of their responsibility and
accountability.
2. Experience of Great Britain proves that red tape
counteraction is an extremely important area for the de-
veloped democratic countries of Europe. Red tape reduc-
tion results in significant economic benefits associated
with the simplification of licensing procedures of doing
business and increase of workplaces, which indicate the
growth of economic potential.
3. In order to save budget and establish the principles
of "quick, easy, clear" it is necessary for Ukraine (following
the example of Great Britain) to create unified information-
al governmental web-platform that will allow users to save
their time searching for relevant information. State is the
administrator of such information. Moreover, it is essential
to adopt the maximum of recommendations of the report
of the targeted business group "Red Tape Counteraction
in the European Union" to the foreign economic activity of
Ukraine.
A prospective direction for further research is the anal-
ysis of the possibility of e-government to combat red tape
in the system of public administration of Ukraine.
1
Cut EU red tape. Report from the Business Taskforce [Electron-
ic
resource]
//
Access
Mode:
https://www.gov.uk/government/uploads/system/uploads/attachm
ent_data/file/249969/TaskForce-report-15-October.pdf
Annotation:
In the article the experience of Great Brit-
ain to counter red tape, especially the activities of Prime
Minister David Cameron has analyzed. Through the facili-
tation of interaction between business and government,
the abolition of a number of regulatory acts, managed to
increase the number of jobs and save businesses a signif-
icant amount of money. This experience is very important
for Ukraine, which holds the reform of the public appa-
ratus.
Key words:
public administration, red tape, adapta-
tion, bureaucrat, red tape’s Great Britain.
Аннотация
:
В
статье
проанализирован
опыт
про
-
тиводействия
бюрократизму
Великой
Британии
,
осо
-
бенно
деятельность
премьер
-
министра
Дэвида
Кэме
-
рона
.
Благодаря
упрощению
процедур
взаимодей
-
ствия
бизнеса
и
власти
,
отмене
целого
ряда
регули
-
рующих
актов
,
удалось
увеличить
количество
рабочих
мест
и
сэкономить
бизнесу
значительное
количество
денег
.
Такой
опыт
очень
важен
для
Украины
,
которая
проводит
реформирование
государственного
аппара
-
та
.
Ключевые
слова
:
государственное
управление
,
бюрократизм
,
адаптация
,
бюрократ
,
Великобритания
.
References
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/
А
.
М
.
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Державне
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Великобританії
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