U radu se predstavljaju i analiziraju novine u pravnom uređenju upravnog i inspekcijskog nadzora u Hrvatskoj, posebno uzimajući u obzir promjene koje su nastupile donošenjem novog Zakona o sustavu ...državne uprave 2019. godine i Zakona o Državnom inspektoratu 2018. godine. Novine u pogledu upravnog nadzora odnose se prije svega na nešto jasnije uređenje predmeta i subjekata upravnog nadzora, određen stupanj usklađenja opsega i intenziteta nadzora s autonomijom nadziranih subjekata, manja poboljšanja u pravnom izričaju te uvođenje načela razmjernosti prilikom provođenja nadzornih ovlasti. Najveće novine kod inspekcijskog nadzora odnose se na novu organizaciju provođenja inspekcijske djelatnosti. U usporedbi s prijašnjim pravnim uređenjem učinjeni su određeni pomaci u smislu usklađivanja s europskim standardima u provođenju upravnog nadzora i smanjenje problema koji su proizlazili iz fragmentacije provođenja inspekcijskog nadzora, ali određena pitanja ostaju otvorena. Ona se posebno odnose na potrebu usklađivanja opsega i intenziteta upravnog nadzora i nadzornih ovlasti s autonomijom nadziranih subjekata, na uspostavu ravnoteže između koordinacije i osiguranja adekvatnog intenziteta inspekcijskog nadzora te na bolju pravnu regulaciju u smislu korištenja nedvosmislene pravne terminologije, kvalitetnijih obrazloženja zakonskih prijedloga i nastojanja da se izbjegne pro forma ispunjavanje zakonskih obveza.
In the paper, new legal regulation of administrative and inspection supervision in Croatia, especially changes that took effect by passing the new Act on State Administration System in 2019 and the Act on State Inspectorate in 2018, are presented and analyzed. Novine u pogledu upravnog nadzora odnose se prije svega na nešto jasnije uređenje predmeta i subjekata upravnog nadzora, određen stupanj usklađenja opsega i intenziteta nadzora s autonomijom nadziranih subjekata, manja poboljšanja u pravnom izričaju te uvođenje načela razmjernosti prilikom provođenja nadzornih ovlasti. In relation to the analysis of administrative supervision the novelties concern first of all clearer regulation of object and subjects of supervision, certain degree of adjustment of scope and intensity of supervision to the autonomy of supervised subjects, minor improvements in legal terminology, and introduction of the principle of proportionality during the conduction of supervisory authorities. The greatest novelties concerning inspection supervision are related to new organization in conducting inspection activities. When comparing the new with previous regulation, certain improvements have been made in relation to adjustment of national with European standards in conducting administrative supervision and decrease of problems arising from fragmentation of conducting inspection supervision. However, certain issues are still open. The latter relate especially to the need of adjustment of scope and intensity of administrative supervision and supervisory authorities with the autonomy of supervised subjects, harmonization between coordination and appropriate intensity of inspection supervision, and better legal regulation in the sense of application of unambiguous legal terminology, quality explanation of legal proposals and efforts to avoid pro forma fulfillment of legal obligations.
Zusammenfassung Um auch die unbeabsichtigten Folgen ihrer Politik zu ermitteln, unternehmen Regierungen umfassende Gesetzesfolgenabschätzungen. Immer häufiger lassen sie sich dabei von unabhängigen ...Expertengremien kontrollieren. Doch: Wie erzielen diese Gremien Einfluss? Und welche Rolle spielen sie als Politikberater für Bürokratieabbau und bessere Rechtsetzung? Das Buch eröffnet neue Einblicke in die Entwicklungshistorie und Handlungsrealität der drei erfahrensten Normenkontrollräte in Europa. Vor dem Hintergrund unterschiedlicher Verwaltungskulturen werden die Ratstypen „Wachhund“, „Torwächter“ und „Kritischer Freund“ herausgearbeitet. Die Ergebnisse schärfen die politische und wissenschaftliche Debatte um die Leistungsfähigkeit von Normenkontrollräten. Abstract In order to calculate the unintended consequences of their policies, governments conduct comprehensive assessments of the impact of legislation. In doing so, they have independent expert committees monitor them on an increasingly frequent basis. However, in what ways do these committees have an influence in this respect? And what role do they play as policy advisors in terms of dismantling bureaucracy and better legislation? This book provides new insights into the history of the development of the three most experienced supervisory bodies in Europe and the reality of how they conduct themselves. Against the backdrop of various administrative cultures, the book presents the following types of supervisory committees in detail: ‘watchdog’, ‘gatekeeper’ and ‘critical friend’. Its findings intensify the political and academic debate on the performance and efficiency of supervisory bodies.
Činjenica je da pravila o rješavanju sukoba zakona često dovode do toga da sudovi u privatnopravnim sporovima primjenjuju pravila stranog prava. Stoga se pravna znanost vrlo često morala baviti tim ...problemom. S druge strane, o problemu primjene stranog prava od strane upravnih tijela nije u jednakoj mjeri raspravljano. Kad je o navedenom pitanju riječ, autori se uglavnom referiraju na njemačkog autora Karla Neumeyera koji je uveo sustav razgraničavajućih pravila (Grenznormen) prema kojima bi se određivalo u kojim će se slučajevima trebati primijeniti strano upravno pravo prilikom odlučivanja upravnih tijela. U ovom članku obrađuju se navedena razgraničavajuća pravna pravila u izvorima prava Europske unije te implikacije nekih od tih pravila. Nadalje, u radu se analizira pitanje u kojoj su mjeri načela o primjeni stranog prava pred sudovima upotrebljiva i glede primjene stranog upravnog prava od strane upravnih tijela u Europskoj uniji.
Jedna od temeljnih zadaća ustavne države je zaštita prava njezinih građana, što se dobrim dijelom ostvaruje i kroz učinkovite mehanizme nadzora ustavnosti i zakonitosti rada upravnih tijela i pravnih ...osoba s javnim ovlastima. U prvom dijelu rada razmatra se funkcija hrvatskih regulacijskih agencija u strukturi državne vlasti te iznosi pregled konkretnih obveza koje u pogledu funkcionalne neovisnosti tih upravnih organizacija proizlaze iz pravne stečevine Europske unije. U središnjem dijelu analizira se učinkovitost mehanizama kontrole ustavnosti i zakonitosti rada regulacijskih
agencija u Hrvatskoj. U završnom dijelu rada izlažu se poredbeni primjeri tih mehanizama u nekoliko kontinentalnoeuropskih
država nama bliske pravne i upravne tradicije. Osobito se obrađuju mehanizmi apstraktne i konkretne kontrole ustavnosti i zakonitosti provedbenih propisa, nadzor ustavnosti i zakonitosti pojedinačnih akata koje donose neovisna upravna tijela te mehanizmi upravnog i
instancijskog nadzora. Zaključno se nastoji dati nekoliko provedivih prijedloga za jačanje nadzornih mehanizama u
Hrvatskoj.
One of the fundamental tasks of the Constitutional state is to protect the rights of its citizens, which is largely achieved through effective mechanisms of control of constitutionality and legality of administrative bodies and legal entities with public authorities. First part of this paper seeks to determine the fundamental function of independent agencies in Croatian constitutional order, at least in
material sense, and to examine the concrete obligations in terms of functional independence of these administrative organizations arising from the acquis communautaire. The central part deals with efficiency issues of the control mechanisms for constitutionality and legality of operations of functionally and politically independent agencies in the Republic of Croatia. The final part of the paper analyses the comparative examples of the same mechanisms in a number
of continental European countries with similar legal and administrative traditions. Particular emphasis was placed on the mechanisms of abstract and concrete control of constitutionality and legality of implementing regulations and the supervision of the constitutionality and legality of individual acts adopted by the independent administrative bodies, and applied mechanisms of administrative
and hierarchical control. The conclusion seeks to give some feasible suggestions for strengthening of the control mechanisms in the Republic of Croatia.
In the functioning of the locai self-government the township of Opatija faces the Problems common to the locai self-government units, which arisc fwm the incomplete and contradictory legal solutions. ...The self-government jurisdiction o f the townships and municipalities has been generally defined by the Articles 13 and 14 o f the Locai Self-government and Administration Act. It has been clear from the provisions o f the legislation by wkich the local services are delivered in the townships and municipalities, regardlcss o f their economic strength, that only in the less mimerons instances the right o f locai self-government unite for regulate and administer the substantial part ot the public business witht heir authority complete and encircled is at stake ( tasks from the area of communal services and a part o f social services), yvhile the other tasks appear sporadically and have no special significarne forfulfillment o f the needs of the locai citizenship. In the relatively small units o f locai self-government, taking into account a size, a population and the economie strength, which are notable even to collect the necessary revenues to ensure a delivery o f even this narmved self-government competencies and do not have the skilled and trained cadres, an accomplishment o f the tasks of the locai self-government units o f a required quality is made very difficult. The model of enumeration in defining the locai tasks and the tied principle o f a presumptive competence in favor o f the centrai authorities have left to the locai self- -govemment a negligible scope oftruly essential locai tasks and often even witbout the resources needed to perform the tasks and without the mechanisms o f an efficient control over the application o f the rules and regulations which regulate the defined questions from the self-government jurisdiction. The experiences in functioning o f locai self-government demonstrated a distrust of the central govemment towards locai self-government, which has often been treated as “an alien body" which must be kepi under the constant surveillance, but not as a fundament o f the democratie System, on whose levai the local; needs o f citizens are being fulfilled in the most immediate manner, as well as their participation in a regulation and administration ofthe substantial public business o f a local significance. Incompleteness and contradictions o f the particular legal solutions are not a resuit o f accidents, but make an undesired tendency. Tbere is no doubt that the certain normative solutions o f the local self-government depart from the acceptance o f the fundamental and necessarily bounding principies and institutions o f the European Charter on Self-government and Administration, but in order to fully implement the constitutional right ofcitizens on local self-government, it would be needed to accommodate the legislation to the provisions of the European Charter, which prefer that the public authority belong to the authorities which are the closest to citizens, and that the competencies given to the local self-government unit be complete and full, while their performance must not be disabled or restricted by some other central or regional authority. Such an approach would adivate the local initiative and increase the efficiency inperforming the tasks, while strengthening a confidence o f citizens into the strength of local self-government. In any case, if devolving a new competencies to the units of local self-government the sources o f financing should be provided for, which would in tum fully fulfill the repuirements o f the Section 2 o f the Article 9 of the European Charter on Local Self-government. The changes of the legislation regulating local self-government should be approached entirely, thus in the parts related to the organization, jurisdiction, financing and the rights o f the employees, since the fragmented approach would lead to a nerv disharmonies.
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