Ko ač, Polonca; Ðulabic, Ved an; Čičin-Šain, Ne ia
A icle
Remo al o adminis a i e ba ie s h ough he ecen
p ocedu al simpli ica ions in Slo enia and C oa ia
DANUBE: Law, Economics and Social Issues Re iew
P o ided in Coope a ion wi h:
Eu opean Associa ion Comenius (EACO), B no
Sugges ed Ci a ion: Ko ač, Polonca; Ðulabic, Ved an; Čičin-Šain, Ne ia (2017) : Remo al o
adminis a i e ba ie s h ough he ecen p ocedu al simpli ica ions in Slo enia and C oa ia,
DANUBE: Law, Economics and Social Issues Re iew, ISSN 1804-8285, De G uy e , Wa saw, Vol. 8, Iss.
4, pp. 207-228,
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DANUBE: Law, Economics and Social Issues Re iew, 8 (4), 207–228
DOI: 10.1515/danb-2017-0014
207
REMOVAL OF ADMINISTRATIVE BARRIERS THROUGH THE RECENT
PROCEDURAL SIMPLIFICATIONS IN SLOVENIA AND CROATIA
Polonca Ko ač1, Ved an Ðulabić2, Ne ia Čičin-Šain3
Abs ac
The emo al o adminis a i e ba ie s (RAB) is a cons an policy a bo h Eu opean Union
(EU) and na ional le els. Ini ially, RAB has been seen as a pa o economically-d i en
Regula o y Impac Analysis, while la ely a mo e in e disciplina y app oach domina es,
h ough Sma Regula ion and Public Adminis a ion Re o ms p og ams. Slo enia and
C oa ia, as »new« EU membe s, add ess he espec i e goals o s eamlining mos ly by
amendmen s in sec o -speci ic laws. Addi ionally, he e is an open ques ion ega ding he
implemen a ion o hese amendmen s. The aim o he a icle is o add ess he legally
se p ocedu al dimensions o ed ape educ ion in compa a i e and compe i i e se ings.
Hence, his a icle ackles he opic wi h analyses o he mos ecen p ocedu al changes
in ecen yea s in selec ed Slo ene and C oa ian laws co e ing key adminis a i e a eas
ele an o en ep eneu s, based on he Wo ld Bank’s Doing Business ank, i.e. he e-
gis a ion o en ep eneu s, ax p ocedu es and he issuing o cons uc ion pe mi s. The
esul s e eal ha RAB in Slo enia and C oa ia s ill highly lacks a sys ema ic app oach,
and is mainly ocused only no ma i ely and in piecemeal manne . Consequen ly, we ace
an implemen a ion gap. This s udy shows ha he Slo ene and C oa ian examples can also
se e as an illus a ion o o he coun ies on how o imp o e hei RAB policies, among
o he s by in oducing he mode nisa ion o he Adminis a i e P ocedu e Ac as a leading
adminis a i e simpli ica ion measu e.
Keywo ds
Adminis a i e Bu den/Ba ie s, P ocedu al Law, Simpli ica ion, En ep eneu ship, Slo-
enia, C oa ia, EU
1Uni e si y o Ljubljana, Facul y o Adminis a ion, Gosa je a 5, 1000 Ljubljana, Slo enia. E-mail: polonca.ko-
[email p o ec ed].
2Uni e si y o Zag eb, Facul y o Law, T g ma šala Ti a 14, 10000 Zag eb, C oa ia. E-mail: dulabic@p a o.h .
3Uni e si y o Zag eb, Facul y o Law, T g ma šala Ti a 14, 10000 Zag eb, C oa ia. E-mail: ne ia.cicin-
-sain@p a o.h .
208 Polonca Ko ač, Ved an Ðulabić, Ne ia Čičin-Šain: Remo al o Adminis a i e
Ba ie s h ough he Recen P ocedu al Simpli ica ions in Slo enia and C oa ia
I. In oduc ion
The concep o he emo al o adminis a i e ba ie s (RAB) is well-es ablished policy
a bo h sup ana ional and na ional le els. The i s le el is mainly s ongly suppo ed by
he Eu opean Commission (EC) by means o he O ganisa ion o Economic Coope a ion
and De elopmen (OECD). RAB inco po a es sys emic measu es based on he sc u iny
and simpli ica ion o exis ing (de lege la a) and educ ion o u u e (de lege e enda)
egula o y amewo k ha add esses en ep eneu ial ac i i ies and obliga ions owa ds
adminis a i e au ho i ies (some imes judicial o o he ones). Con empo a y, globalisa ion
and he economic c isis equi e smoo he economic ope a ions, ye due o p ese ing he
de elopmen o a socie y as a whole, in ce ain adminis a i e ela ions, public in e es
as a ca dinal adminis a i e alue demands some limi a ions o business. The challenge
acing public adminis a o s is how o ind a balance be ween hese demands.4
Ini ially, RAB has mainly been de eloped as an economically-d i en pa o Regula o y
Impac Analysis.5Mo e ecen ly, a holis ic app oach has p e ailed by he embedmen o
RAB in o b oade o e en in e disciplina y Sma Regula ion and Public Adminis a ion
e o ms p og ams based on good go e nance doc ines (see Hamme schmid, Van de Walle,
And ews and Bezes (2016)). In his a icle, we ocus on p ocedu al simpli ica ions o he
elimina ion o adminis a i e ba ie s in selec ed na ional p ocedu al law ha add ess
en ep eneu s. The aim o he a icle is wo old. Fi s ly, we wish o emphasise he ole o
p ocedu al dimensions and espec i e legal se ings in educing ed ape. Secondly, ou aim
is o analyse he mos ecen ly adop ed e o s o selec ed simpli ica ions in compa able
en i onmen s in o de o iden i y key d i ing ac o s o na ional compe i i eness in his
espec .
Slo enia and C oa ia a e small coun ies, wi h popula ions o app oxima ely 2 million
and 4.3 million, espec i ely. Bo h coun ies a e successo s o he o me Yugosla ia
and adop ed much o i s egula ion a e becoming independen epublics in 1991, e en
a e in ensi e wa in C oa ia. Slo enia became a ull membe o he EU in 2004 while
C oa ia ollowedin2013.Acco ding oassessmen so socie alandeconomicde elopmen ,
adminis a i e capaci y in Slo enia is usually ega ded as signi ican ly highe han in
C oa ia (Go RS (2015), Go RC (2014), WB (2016)). Ne e heless, we assume ha
bo h coun ies in ques ion sha e mo e simila i ies han di e ences due o hei join
his o ical, legalandeconomicde elopmen .Thei adminis a i e cul u es a e cha ac e ised
by a mix u e o Ge man-Aus ian Rech ss aa (s a e go e ned by a ule o law) and pos -
socialis o ansi ional indica o s and p ocesses. In bo h coun ies, app oxima ely 99% o
all en e p ises a e egis e ed as small and medium-sized en e p ises (SMSE).6As such, we
4In he li e a u e and policy pape s, one can ind di e en de ini ions and no ions o RAB. See especially Radaelli
and de F ancesco (2007), OECD (2010); c . Ko ač (2009). Many o he sou ces (OECD (2010, 2012), EC
(2014)) use speci ic wo ding, such as “cu ing ed ape”, “adminis a i e simpli ica ion”, “ egula o y guillo ine”,
“debu eac a isa ion”, e c.
5Mo e in Radaelli and de F ancesco (2007). C . Buckley (2016, pp. 136–142), who c i ically assesses EU
co- unding, decla a o y based on public in e es bu in ac educed economic ca ego ies.
6Acco ding o he EU c i e ia o employing ewe han 250 pe sons and ha ing an annual u no e no exceeding
EUR 50 million, and/o an annual balance shee o al no exceeding EUR 43 million. See Commission Recom-
DANUBE: Law, Economics and Social Issues Re iew, 8 (4), 207–228
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209
compa e hei e o s and achie emen s wi hin RAB policy based on analyses o selec ed
sec o al laws ha he WB, OECD and EC acknowledge as key adminis a i e p ocedu es
in e ms o adminis a i e simpli ica ion, i.e. egis a ion o a business, ax collec ion and
cons uc ion pe mi ing. The esea ch ques ions ha we elabo a e a e he ollowing: How
is RAB unde s ood in Slo enia and C oa ia, ega ding EU guidelines and compa a i ely?
Wha a e he main egula o y changes in selec ed sec o -speci ic laws in he las h ee
yea s, hei goals and ac o s o le el o implemen a ion?
Ou hypo hesis is ha any sec o -speci ic egula o y e o ms lacks sys emic e ec s, he e-
o e RAB should be d i en in e ms o p ocedu al simpli ica ion in u u e mos ly h ough
gene al Adminis a i e P ocedu e Ac (G/APA; see Zille (2008)). Such a law is cha ac e-
is ic o almos all EU coun ies; he mos ecen ly adop ed one was in F ance in 2015.
Based on na ional good p ac ices, he EU APA has been p epa ed as well, pa icula ly
due o i s sys emic and an i- agmen a y unc ion o he adminis a i e o mul i-laye ed
go e nance sys em.7As o Slo enia and C oa ia, he GAPA has a long adi ion, based
on he Aus ian law in o ce in his e i o y since 1925. Slo ene law is a he conse a-
i e, e en hough i was adop ed in he Republic o Slo enia as a new s a u e in 1999.8
On he con a y, he C oa ian GAPA was signi ican ly econcep ualised in 2009 and has
been in o ce since 2010.9Me hodologically, he pape has been based on a no ma i e
analysis o he main legal ac s dealing wi h cons uc ion pe mi ing and spa ial planning,
ax p ocedu e and he egis a ion o new companies in Slo enia and C oa ia.
The a icle is s uc u ed in se e al sec ions. Fi s , we p o ide he heo e ical, policy
and legal amewo k o RAB in he EU and espec i e coun ies. Second, we elabo a e
he legal p ocedu al dimension o RAB- ela ed egula ions as a pa h o he balanced
p o ec ion o public in e es , ye s eamlining adminis a i e bu dens o en ep eneu s.
In he nex sec ion, we iden i y and c i ically assess all p ocedu al no el ies in selec ed
s a u es in Slo enia and C oa ia. Mo eo e , we s udy hei implemen a ion and e ec s
based on p e ious measu es and he sys emic goals o RAB. Finally, we pu o wa d he
main issues ha we belie e a e ele an o u u e discussion on he ield based on he
esul s o no ma i e and o he analyses. These indings se e as a basis o concluding
ecommenda ions ha a e also alid o o he simila EU Membe S a es.
menda ion 2003/361/ES o 6 May 2003 conce ning he de ini ion o mic o, small and medium-sized en e p ises
(no i ied unde documen numbe C(2003) 1422), O icial Jou nal o he Eu opean Union, L 124, 20 May 2003,
p. 36. Na ional legisla ion may de ine hese c i e ia di e en ly, as o ins ance he Slo ene Companies Ac se
a limi o annual u no e unde EUR 29.2 million, and/o an annual balance shee unde EUR 14.6 million.
C oa ia had also se limi s lowe han he amoun s in he Recommenda ion. SMEs a e de ined as en e p ises
whose annual u no e , and/o balance shee do no exceed EUR 40 million o EUR 20 million, espec i ely.
7Na ional p o iles and compa a i e insigh s elabo a ed by Auby (2014). Rega ding he EU APA, see d a
Regula ion on open, e icien and independen Eu opean Union adminis a ion, adop ed by EP (2016). Fo i s
backg ound, see Meuwese, Schuu mans and Voe mans (2009), Ho mann, Schneide and Zille (2014).
8Zakon o splošnem up a nem pos opku, ZUP, O icial Gaze e (OG) o he Republic o Slo enia (RS), No. 80/99,
and amendmen s 2000 o 2013. Mo e And ojna and Ke še an (2006), Ko ač (2015).
9Zakon o općem up a nom pos upku, ZUP, OG o he Republic o C oa ia (RC), No. 47/09. Mo e Kop ić and
Ðulabić (2009).
210 Polonca Ko ač, Ved an Ðulabić, Ne ia Čičin-Šain: Remo al o Adminis a i e
Ba ie s h ough he Recen P ocedu al Simpli ica ions in Slo enia and C oa ia
II. RAB De elopmen in he EU, Slo enia and C oa ia
Rega ding Slo enia and C oa ia, na ional RAB policies ha e been designed as a e lec ion
o Eu opean e o s. The EU has s a ed o design a sys emic RAB p og am based on he
Edinbu gh Summi (1992) ha , unde he B i ish p esidency, exp essed conce n abou he
quali y and quan i y o egula ions p oduced in B ussels. I ook ime, bu an impo an
u he miles one was he Mandelke n Repo om 2001 on he cos e ec s o adminis-
a i e bu dens amoun ing o 4–6% o GDP ha could be educed o omi ed by a leas
15%, i.e. EUR 40 billion. Tha would be he case i p inciples o necessi y, p opo iona-
li y, subsidia i y, anspa ency, accoun abili y, accessibili y and simplici y we e me a he
p epa a ion and adop ion o he egula o y en i onmen o businesses.10
The e o e, he EC adop ed in he same yea he Whi e Pape on Eu opean Go e nance
pu suing be e egula ion. In 2002, he EC adop ed minimum s anda ds on public con-
sul a ion and Regula o y Impac Assessmen s (RIA) ega ding he en i onmen , social
a ai s and economy- ela ed impac s o legisla ion on Eu opean, na ional and o he le els.
La e , inc easing s ess was placed on educing adminis a i e bu dens on he le el o he
EU Compe i i eness Council (Meuwese (2009, p. 97)). In 2004, he Council called upon
he EC and he EU Membe S a es (MS) o e alua e and adop measu es o educe he
cumula i e impac o he legisla ion in luencing he compe i i eness o speci ic indus ial
sec o s. In 2007, he Council adop ed a p og am ha aimed o educe adminis a i e bu -
dens a ising om EU law by 2012 by 25% and equi ed he same o MS. Some coun ies
ha e de eloped hei p og ams e en mo e ambi iously p io o pa allel o ha .11 The EC
has con inued wi h i s ac ion p og am o 2007 o 2012 and guidelines o MS le el, aiming
o sa e app oxima ely EUR 30 billion. Al hough he e is an implemen a ion gap due o
educed coo dina ion (see EC (2014), on e mina ion o High Le el G oup on Adminis-
a i e Bu dens), he EC la ely pu sues RAB unde an umb ella o Sma Regula ion as
an ini ia i e o de eloping o e all poli ical and adminis a i e capaci y. This p og amme
included p io i y ields and al oge he 72 measu es o RAB, especially in he sec o s o
en i onmen al, ax and labou law.
InSlo enia, heRABp og amwas i s o iciallymen ionedon hesys emicle elwi hin he
S a egicPlano Implemen a ion o PublicAdminis a ion Re o ms in1997.A special S a e
Sec e a y, appoin ed in 2000 by he p ime minis e , subsequen ly coo dina ed i . In public
ela ions, he p og am was p omo ed as an »adminis a i e guillo ine« o »adminis a i e
sweepe «. RAB was u he de eloped by design o so-called me a- egula ion ( egula ion
on egula o y p ocess) by amendmen s o Rules o P ocedu es o he Go e nmen in 2006
(see in de ail Ko ač and Vi an (2011, pp. 250 and he ollowing)). Fu he mo e, he
pa liamen enac ed he Resolu ion on Legisla i e Regula ion in 2009.12 O he measu es
10 On p inciples o be e egula ion, see Radaelli and de F ancesco (2007, pp. 35, 114), OECD (2010, 2012),
Ko ač and Vi an (2011, p. 247).
11 E.g. he UK, he Ne he lands, Denma k, see OECD (2012, pp. 2 and he ollowing). Some coun ies (ha e
been) di ec ed mo e owa d ci izens and some o business.
12 In Slo ene: Resolucija o no ma i ni deja nos i, OG o he RS, No. 95/09. This documen is u he suppo ed
by ules o conduc wi hin egula o y p ocedu es o he pa liamen and he go e nmen . The e a e also special
manuals and e- ools on legisla ion d a ing, public consul a ion and di e en o ms o RIA.

DANUBE: Law, Economics and Social Issues Re iew, 8 (4), 207–228
DOI: 10.1515/danb-2017-0014
211
ha e been aken on he non-no ma i e dimension, by conduc ing ainings and manuals o
o icials ha p epa e legisla ion o en ep eneu s, de eloping coope a ion wi h chambe s
o comme ce, e-go e nmen mechanisms,13 pa icula ly ad anced S anda d Cos Model
(SCM me hodology, see EC (2005), OECD (2007)).
La ely, he key miles one in RAB de elopmen in Slo enia is ep esen ed by he Sin-
gle Documen o Ensu e a Be e Regula o y and Business En i onmen and Inc ease
Compe i i eness, adop ed by he go e nmen as a con inuous p og am in 2013. This p o-
g am add esses in he o iginal plan o e 240 measu es in 16 adminis a i e ields (such
as economics, inances, en i onmen , labou , educa ion, ag icul u e, e c.) wi h a o al o
EUR 375 million in expec ed sa ings in h ee yea s. The documen has been adop ed in
close coope a ion wi h he chambe s o comme ce and c a s and is cons an ly upda ed
by p oposals o minis ies, chambe s, en ep eneu s and in e es ed public. Ac ion plans
supplemen ed his policy wi h sec o minis ies being esponsible unde se deadlines and
he go e nmen o moni o p og ess h ee imes annually. As an au onomous p ojec bu
pa o he go e nmen al p og am, a special one-s op-shop ini ia i e was ca ied ou in
he ield o es ablishing business en i y, i s ly o single en ep eneu s and la e o o he
companies as well, by combining no ma i e no el ies, o ganisa ional me ge s and he
one-s op shop pla o m. Mo eo e , he S a egy o PA De elopmen by 2020 is de o ed o
RAB wi h a special chap e , upg ading he Single Documen . The S a egy also add esses
he gene al mode nisa ion o adminis a i e p ocedu al law in Slo enia (Go RS (2015,
pp. 88–98)), wi h a plan o u he cu down adminis a i e bu dens by 5%, o EUR 10–45
million annually. Fo ins ance, in 2016 a pilo p ojec was ini ia ed on a special es wi hin
RIA o small and medium-sized en e p ises (SMSE es , c . EC (2016)).
Reducing adminis a i e obs acles o en ep eneu s (and ci izens) is also a cons an heme
in he C oa ian public space. The mos p ominen ad oca es o such ini ia i es a e, among
o he s, he Associa ions and En ep eneu s and wo p o essional chambe s, o c a s and
he economy. O e he pas decade, he e ha e been se e al a emp s o educe adminis-
a i e obs acles and make space o he economy o become ib an and compe i i e. The
egula o y guillo ine ini ia i e was conduc ed in C oa ia in o de o iden i y legisla ion
ha ep esen ed obs acles o he economy and ci izens. Unde he i le Hi o ez, li e ally
meaning ‘ as cu ’, C oa ia conduc ed a p ojec ha aimed o educe adminis a i e bu -
dens, p ima ily he emo al o unnecessa y egula ions o en ep eneu s and ci izens. The
p ojec las ed wo yea s (2006–2008) and esul ed in he analysis o 1,451 egula ions.
The p ojec d a ed 799 ecommenda ions o he emo al o unnecessa y egula ions.
Howe e , he implemen a ion o he Hi o ez ecommenda ions was a he p oblema ic
(mo e in Šimić Bano ić (2015)). I esul ed in he implemen a ion o only 195 (25%)
ecommenda ions. The ounda ion o he mos ecen ini ia i e o educe adminis a i e
bu den could be ound in he Go e nmen Decision om No embe 2014, which adop ed
SCM me hodology as a main ool o measu ing o adminis a i e bu den o economy in
2015 (Decision, 2014), as a pilo p ojec in selec ed adminis a i e a eas.14
13 The e a e se e al IT schemes, such as joining up da abases o enable he exchange o in o ma ion among
adminis a i ebodies,bu o specialimpo ance is he po al S opBu eauc acy,seeh p://www.s opbi ok aciji.si/.
14 Mos ly hose which a e in he compe ence o he Minis y o Economy and he Agency o In es men and
212 Polonca Ko ač, Ved an Ðulabić, Ne ia Čičin-Šain: Remo al o Adminis a i e
Ba ie s h ough he Recen P ocedu al Simpli ica ions in Slo enia and C oa ia
Adop ion o he new GAPA in 2009 should also be conside ed an ins umen o RAB, o
bo h ci izens and en ep eneu s. By educing he numbe o i s no ms, he in oduc ion
o new legal ins i u es and b oadening he scope o he law, he GAPA ep esen s a s ep
owa d RAB. This is especially he case wi h he egula ion o he one-s op-shop p inciple,
which has been egula ed in a icle 22 o he new GAPA. The same goal o RAB should
be achie ed by o he ins umen s ha ha e been egula ed in o he adop ed pieces o
legisla ion. In 2011, he C oa ian pa liamen adop ed he Regula o y Impac Assessmen
Ac ; in addi ion, se e al so -law documen s and mechanisms unde he auspices o he
Go e nmen O ice o Associa ions ha e been adop ed in o de o imp o e he quali y o
he legisla i e p ocess in C oa ia.15 Wi h he ins i u es and he whole sys em o planning
o egula o y ac i i y, which ha e been egula ed in ha ac , he end goal should be isible
in he o e all educ ion o he adminis a i e bu den.
To w ap up, signi ican con e gence in he EU and na ional policies ega ding RAB can be
obse ed. Ye , he le el o implemen a ion highly depends on a leas mid- e m planning
and con inuous ex e nal p essu e. This is e ealed by assessmen s o RAB as a whole and
i s pa s o ela ed p og ams (as RIA), since a ious s udies show ha he e is a signi ican
implemen a ion gap in he a ea in bo h coun ies and e en highe in C oa ia. Especially
o C oa ia, he EC (2016a, p. 3) says di ec ly: »Despi e some imp o emen s, he business
en i onmen emains un a ou able og ow h.S eps ha e been aken o educe he high le el
o adminis a i e bu den and pa a iscal cha ges, bu hey emain p ominen . Fu he mo e,
he egula o y en i onmen o se ice p o ide s and he egula ed p o essions emains
e y es ic i e. So a hese es ic ions ha e no been add essed; in some cases, e en
addi ional equi emen s a e being imposed«. Fo Slo enia, mos e alua o s, in e nal and
ex e nal, o icial and om academia (c . Ko ač and Vi an (2011), Go RS (2015), EU
(2016)), poin ou ha he measu es aken in he las h ee o en yea s a e exempla y as
designed in go e nmen al policy pape s and me a- egula ion, bu in p ac ice hey ha e
b ough abou only app oxima ely a qua e o wo hi ds o he in ended (measu able)
e ec s. Appa en ly, lacking (almos ) ull ealisa ion leads o los po en ials in a sys emic
way.
III. P ocedu al Regula ion as pa o RAB
Some i no all o he abo e-men ioned ini ia i es ha e been e lec ed in he adminis a i e
and go e nance heo y and ice e sa: schola s elabo a ed RAB wi hin he heo e ical
doc ines o public go e nance in o de o suppo sys emic adminis a i e e o ms. One
o he key con ibu ions in his sense is a sys emic de ini ion o RAB ha has been ela-
bo a ed. Namely, one mus admi ce ain adminis a i e bu dens o be ine i able due o
Compe i i eness, see h p://mingo.h / and h p://www.aik-in es .h /. The pilo p ojec s a ed in Janua y 2015
and he Ac ion Plan o he Reducing o Adminis a i e Bu den o he Economy was adop ed in Augus 2015.
15 Zakon o p ocjeni učinaka p opisa, OG o he RC, No. 90/11. The mos impo an among so ins umen s is
he Code o conduc in p ocess o consul a ion wi h in e es ed public in he p ocess o adop ion o legisla ion and
o he legal ac s (Kodeks sa je o anja sa zain e esi anom ja nos i u pos upku donošenja zakona, d ugih p opissa
i aka a, OG o he RC, No. 140/09). The la e a e di ec ed owa ds he imp o emen o public consul a ion and
inc easing he quali y o newly adop ed legisla ion.
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he p o ec ion o public in e es (e.g. no allowing ully ee cons uc ion o ensu e sa e y,
en i onmen al p o ec ion, e c.). On he o he hand, some bu dens can be ecognised as
ba ie s no necessa y o such legi imised goals. In his espec , one can ind subs an-
i e bu mainly p ocedu al legal and o ganisa ional app oaches o educe hese excessi e
bu dens, i.e. elimina e ed ape and/o de ine necessa y bu dens o comply wi h hem in
he easies way possible.16 The e a e adminis a i e bu dens and ba ie s ha apply o
ci izens and/o adminis a i e agencies only o addi ionally o bu dens and ba ie s o
business.
Consequen ly, RAB ackles mos ly adminis a i e bu dens, which a e no conside ed ine-
i able due o public sec o in e es s and p esen excessi e consump ion o ime and cos s
o business holde s. These ba ie s a e egula ed in he law as:
a) subs an i e ones, mainly h ough de ini ion o some adminis a i e ields as ones
in he public in e es , and i so, se ing condi ions o acqui e ce ain igh , licence
o concession o lowe public obliga ion;
b) p ocedu al equi emen s, which migh hinde economic ac i i y and public du ies
ul ilmen .
When dealing wi h he i s g oup, heo y o de egula ion and subs an i e RAB as poli ical
decision-making applies, while on he second le el we deal wi h RAB in » ue«, i.e.
a s ic e and adminis a i e sense (Ko ač and Vi an (2011, p. 249)). Consequen ly,
pa icula emphasis shall be pu on he bounda y be ween simpli ica ions o adminis a i e
p ocedu es esul ing om (a) de egula ion ha imply a shi in he ela ion be ween public
and p i a e sphe es o (b) op imisa ion o selec ed p ocedu es wi hou ede ini ion o
public in e es and dec easing he ole o public au ho i y. In o he wo ds, p ocedu al
aspec s should p e ail, since he same le el o public bene i p o ec ion is achie ed while
he subs an i e changes he eo a e lowe .
RAB is in his espec measu ed in se e al di e en ways, poli ically, economically and
adminis a i ely condi ioned (c . EC, OECD, Radaelli and de F ancesco (2007)). The
ocus on he abo e-emphasised p ocedu al dimension is explici ly e iden in he b oadly
acknowledged WB anking o Doing Business. The WB e alua es se e al ields, among
which he e a e h ee ha a e di ec ly linked o adminis a i e au ho i ies on he na ional
le el (o he s add ess, o example, judicial p ocedu es, acqui ing in es men c edi s om
banks, en y o public in as uc u e ne wo ks, enabling in e na ional business, e c.). The
me hodology is also de eloping in o de o gain eedback ha is mo e objec i e. Hence, he
WB akes in o accoun he numbe o au ho i ies ha an en ep eneu needs o deal wi h
when acqui ing some igh o pe mi , he in e connec ion o hese au ho i ies, numbe o
di e en p ocedu es o one’s li e si ua ion, du a ion o p ocedu es (in days), cos equi ed,
16 See TUC (2006, pp. 2, 9), A be šek (2011), Ko ač (2012), Kalaš and Bačlija (2015, pp. 4, 7). The la e
ound ou when su eying en ep eneu s ha many unde s and all bu dens as unnecessa y ones, hence do
no di e en ia e bu dens om ba ie s, while a majo i y easonably conside s he di e ence. Fo example, i
a company is equi ed o submi i s ucks o egula e iew o public sa e y, we speak o a bu den, bu i his
company is obliged o submi addi ional pape wo k based on hese checks o o he au ho i ies, he e is clea ly
a ba ie o be emo ed (OECD (2017, p. 163)). The e a e adminis a i e bu dens and ba ie s ha apply o
ci izens and/o adminis a i e agencies only o addi ionally o bu dens and ba ie s o business.
214 Polonca Ko ač, Ved an Ðulabić, Ne ia Čičin-Šain: Remo al o Adminis a i e
Ba ie s h ough he Recen P ocedu al Simpli ica ions in Slo enia and C oa ia
e c. These indica o s a e weigh ed since en ep eneu s especially ind mos dis u bing loss
o ime ha is mos o en a consequence o unclea and oo equen ly amended legisla ion
(Kalaš and Bačlija (2015, p. 11)).
The WB (2016) he e o e pu s o wa d he ollowing p ocedu es as pa icula ly ele an
o en ep eneu s:
∗ egis a ion o a company and en y o he ma ke , ca ego y o S a ing a Business
(in Slo enia and C oa ia ha usually means he es ablishmen o a ce ain company,
o en ela ed o he EU o na ional egula ed p o essions);
∗cons uc ion pe mi ing, since i ep esen s ypical in es men s; and
∗ ax collec ion when axpaye s a e en ep eneu s.
Rega ding 2016 anking, he esul s o Slo enia and C oa ia ou o 189 coun ies and
2017 ou o 190 coun ies in o al a e as indica ed in Table 1. I hese esul s a e compa ed
o anks in p e ious yea s, he e a e some icissi udes (see o a compa ison be ween 2016
and 2017 in Table 1 wi h a ows), bu mainly bo h coun ies ha e been assessed un il 2016
as being be e o e ime. Con a y o his, i is wo ying ha he la es , me hodologically
u he de eloped (see WB (2016, epo o 2017, p. 116)),17 e alua ions show mo e
back s epping han p og ess acco ding o all he measu es aken. Ano he issue no ed is,
once again, ha Slo enia anks signi ican ly highe compa ed o C oa ia in all ca ego ies
conside ed. We belie e hese esul s o be in di ec linkage o longe EU membe ship and
EC p essu e on na ional go e nmen s a he han in e nal policies.
Table 1: Doing Business anks o Slo enia and C oa ia 2016 and 2017
In sum S a ing a business Cons uc ion pe mi ing Paying ax
WB Repo 2016 2017 2016 2017 2016 2017 2016 2017
Slo enia 29 30 ↓18 49 ↓71 80 ↓35 24 ↑
C oa ia 39 43 ↓99 95 ↑126 128 ↓23 49 ↓
Sou ce: WB (2016)
Despi e some sys emic conside a ion ela ed o hese measu emen s, one can conclude ha
he same me hodology is applied o all coun ies included, hence a leas he compa a i e
alue o anking is su icien ly objec i e. In addi ion, hey e lec ends in a ce ain coun y
and he angible e ec o na ional policies and legal amendmen s. In his dimension, he
mos ques ionableissueseems obeinbo hcoun ies ela i elylow adminis a i ecapaci y.
These indings a e complian whe he we look no only a WB o EC assessmen s bu also
na ional s udies (Go RS (2015), Go RC (2014)). Low capaci y is especially e lec ed in
Slo enia in excessi e leng h o espec i e adminis a i e p ocedu es and e en sys emically
in C oa ia ega ding i s agmen ised adminis a ion.18
17 See c i ical conside a ions on me hodological elemen s in Kalaš and Bačlija (2015, p. 12); o cons uc ion
pe mi ing by Se e , Ðulabić and Ko ač (2016, p. 165). Compa e »my hs« on bu dens in he UK by TUC
(2006). Fo ins ance, o en da a is ga he ed based on subjec i e opinions o en ep eneu s o ega ding iming o
p ocedu es, he legally p esc ibed maximum iming is aken in o accoun ins ead o he eal a e age one.
18 Fo Slo enia, see EC (2016, p.2): »Slo enia’s business en i onmen is hinde ed by a high le el o adminis a i e
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his adminis a i e ield, ha e been egula ed in a single piece o legisla ion, bu no clea ly
and consis en ly. Du ing 2015, se e al new laws ha e been adop ed, c ea ing an in eg a ed
sys em o legal egula ion in hese adminis a i e a eas, such as Chambe o A chi ec s
and Ci il Enginee s chambe s and he Spa ial Planning Ac .32 Ra he su p isingly, despi e
he ac ha C oa ia enac ed new building legisla ion only ecen ly, i seems ha he e has
been no huge in luence on boos ing he building sec o . The numbe o issued cons uc ing
pe mi s is s ill in decline in compa ison wi h p e ious yea s. In 2015, he e we e 6,328
issued cons uc ion pe mi s, which is 4% less han he 6,589 pe mi s issued in 2014.
Despi e ha , he planned wo h o in es men in 2015 was 3.2% highe han in 2014,
which was p obably mo e because o he economic c isis and no adminis a i e obs acles
in cons uc ion pe mi ing.
Con a y o he egis a ion o business o ax paymen s, he building ield seems o
be ecen ly much mo e RAB-o ien ed in C oa ia compa ed o Slo enia (despi e o e all
lowe C oa ian anks by he WB (2016), indica ing s a us and less di ec ion o ends).
Se e al app oaches a e simila in bo h coun ies, bu C oa ia seems o ace mo e se e e
di icul ies, so i s legisla ion adop ed in 2013 adically changed he no ion and oles in
cons uc ion pe mi ing p ocedu es. In his espec , (longe o sho e ) ull membe ship in
he EU also does no appea o be a ac o o changes. Howe e , egula o y amendmen s
o e en adical changes a e no su icien . I is necessa y o sys ema ically de elop he
adminis a i e capaci y o all s akeholde s in hese p ocedu es.33
Finally, le us compa e GAPA no el iesinbo h coun ies ega ding RAB-o ien ed ins i u es
and goals. One would assume based on in e na ional expe iences ha gene al law has
signi ican ly b oade impac in ela ion o sec o -speci ic ones.34 Pa icula ly, gene al law
has de elopmen al po en ial in a sys emic sense.35 A s a e go e ned by he ule o law,
mos ly gua an eed by cons i u ional and gene al adminis a i e p ocedu al law, is a alue
che ished by business and (pos )capi alism oo, since i p o ides equali y, p edic abili y,
ce ain y and he p o ec ion o weake ma ke playe s. Tha is he case i he e is a balance
be ween need in eali y and s abili y o legal egula ion. This is p o en, o ins ance, by
he Slo ene p ojec on da a exchange in all public eco ds as an o icial bu den h ough
GAPA no el y in 2004 (a icles 66 and 139) and accompanied measu es in adminis a i e
s uc u es, special aining and da abase in o ma isa ion ha ea ned Slo enia second-bes
posi ion in he EU in 2007 ega ding e-se ices).36
The Slo ene GAPA was adop ed in 1999. The law has no been changed since 2013,
wi h only mino no el ies in-be ween. Despi e necessa y mode nisa ion in his espec on
32 Zakon o komo i a hi eka a i komo ama inženje a u g adi eljs u i p os o nom u eðenju, OG o he RC, No.
153/1378/15), Mo eo e , Wo ks and Ac i i ies o Physical Planning and Cons uc ion Ac , Zakon o poslo ima
i djela nos ima p os o nog u eðenja i g adnje, OG o he RC, No.153/13, 78/15, and Assessmen o he Value
o he P ope y Ac , Zakon o p ocjeni ijednos i nek e nina, OG o he RC, No.153/13, 78/15).
33 Radaelli and de F ancesco (2007, p. 29), Rose-Acke man and Lindse h (2010, p. 337).
34 C . C oa ian and o he mode nised laws. See Kop ić and Ðulabič (2009), Rusch (2014, p. 191, e c.), Ho mann,
Schneide and Zille (2014), Ko ač (2015, pp. 27, 71), Kop ić, Ko ač, Ðulabić and Ðinić (2016).
35 See Zille (2008, pp. 4–7). C . And ojna and Ke še an (2006, pp. 74, 85), Rusch (2014), Ko ač (2015, pp.15,
31).
36 See o his and o he changes, Ko ač and Vi an (2011, pp. 197–225, 251, e c.).

222 Polonca Ko ač, Ved an Ðulabić, Ne ia Čičin-Šain: Remo al o Adminis a i e
Ba ie s h ough he Recen P ocedu al Simpli ica ions in Slo enia and C oa ia
sys emic le el (also by Go RS (2015, p. 95)), he e was only one amendmen p opo-
sed in 2015 (ZUP-I). This amendmen aimed o simpli y deli e y and educe o mali y
in applica ions and adminis a i e ac s compa able o o he EU MS egula ion (mainly
Ge man model). In gene al, he e is a need in Slo enia o p epa e he law ha will pu sue
public policies ha a e mo e e icien . Simul aneously, he law should enable pa ies o
p o ec hei undamen al de ence igh s. Bu no e en mino no el y in 2015 has been
adop ed due o a lack o poli ical unde s anding o and commi men o he GAPA’s ole
and dominance o pa icula in e es s (e.g. he Na ional Pos O ice, now ea ning millions
o EUR annually wi h o malised deli e y).
The GAPA in C oa ia was as a new law adop ed in 2009. Tha law was a s ep owa ds he
simpli ica ion o gene al adminis a i e p ocedu e. The main poin s o e o m we e he
educ ion o he leng h o laws, in oduc ion and egula ion o new legal ins i u es (e.g.
adminis a i e con ac ), enabling he use o elec onic communica ion in adminis a i e
p ocedu e, simpli ica ion o legal emedies and in oduc ion o new ones (e.g. complain ).
Despi e many no el ies, he new GAPA ep esen s a combina ion o adi ion and mode -
nisa ion wi h he p e ailing elemen s o adi ion. Ne e heless, he special adminis a i e
p ocedu es ha exis in C oa ia a e s ill a huge sou ce o unnecessa y adminis a i e bu -
dens o ci izens and he economy. The e a e mo e han 100 special laws ha con ain
p ocedu al p o isions, so i migh be easonable o conside he limi ed p e alence o
special law o e he GAPA. The new C oa ian GAPA has been assessed as a law ha
ep esen s he combina ion o mode nisa ion and adi ion wi h p e ailing elemen s o
adi ion. Al hough mode nisa ion e o s ha e been unde aken wi hin he law i sel , i
seems ha he wide mode nisa ion e ec s ha e no been achie ed. This is pa icula ly
seen in he pe cep ion o ci il se an s who s a e ha hei e e yday wo k has no changed
despi e he ac ha he new law has been adop ed (Ðulabić (2014, p. 192)). The same
esea ch also showed ha implemen a ion challenges g ea ly lie ou side he legal ex i sel .
They should p edominan ly be sough in p e ailing adminis a i e cul u e, commi men
o public adminis a ion e o ms and awa eness building. All hese dimensions should
enable ci il se an s o p ope ly implemen he new law, as well as ci izens o use he new
ins i u es en isaged in he new GAPA.
V. Discussion
Based on he indings o he analyses, he e a e some key issues o be unde lined when
discussing sys emic RAB policies on a na ional o b oade le el. I poli icians and admi-
nis a o s aim o op imal e ec s, hey should p ima ily pu mo e emphasis on sys emic
app oach in planning RAB measu es, legisla i e amendmen s and coo dina ed o educed
implemen a ion, on bo h na ional and EU le els. As es ablished by he case s udies o
Slo enia and C oa ia, o he me hods, e en hough inco po a ing no el ies o impo an
adminis a i e laws (such as ax o cons uc ion ac s), do no su ice o e en ha e coun e -
p oduc i e impac s o en ep eneu s and adminis a ion i sel . RAB will be e ec i e i
he go e nmen akes o e accoun abili y and does no dispe se i among minis ies. Go-
e nmen al policy on adminis a i e e o ms o ha calib e as RAB canno be jus a sum
o sec o al measu es and minis ies p oposals, as is o en he case, especially i ce ain
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223
policies a e mos ly ex e nally d i en (e.g. by he EC). Ins ead, i should be s a egically
managed based on he p io de ini ion o na ional in e es s in he egion.
Howe e , o Slo enia and C oa ia, he EU appa en ly ep esen s an ine i able ex e nal
incen i e and key g ounds o de eloping espec i e na ional p og ams. Unde he Eu-
opean condi ionali y doc ine (see Buckley (2016, p. 130)), his is especially so when
ce ain app oaches shall be me i cohesion und esou ces a e deployed. The e o e, bo h
coun ies emphasise RAB as c oss-sec o al measu es wi hin hei na ional s a egies o
PAR, a leas decla a o y. As a esul , i is no su p ising ha coun ies wi h longe EU
membe ship in oduce b oade and mo e in-dep h-o ien ed se s o RAB measu es.
Mo eo e , good go e nance and he con empo a y de elopmen o adminis a i e ela ions
demand mo e in e disciplina y adminis a i e me hods as adi ional judicial and no ma-
i e measu es (mo e by Ba nes in Rose-Acke man and Lindse h (2010, pp. 336–356)). In
he RAB ield, consequen ly classically domina ing economic iew does no su ice. I
p ima ily selec ed in e es s o s akeholde s a e conside ed (e.g. o in es o s in cons uc ion
pe mi ing) and no balanced p opo ionally o o he s and public in e es (c . OECD (2007,
p. 25)), such (legal) solu ions would be dispu ed, annulled o omi ed. A nega i e exam-
ple, again based in Slo enia and C oa ia, is gi en by s a egies on public adminis a ion
de elopmen . Namely, in Slo enia, he Minis y o PA is simply denying i s accoun abili y
o he en i onmen al and cons uc ion a ea e en hough he minis y is c oss-sec o al by
de ini ion and espec i e ield cons an ly assesses as a c i ical one by EC, WB and na ional
chambe s o comme ce. In C oa ia, he espec i e s a egy is no e en acknowledged o be
in o ce due o ecen in e nal poli ical ins abili y and s ill awai s any ac ion plan. In sum,
when RAB is conce ned, decla a o y policy pape s and dead le e s in he law canno lead
o sus ainable de elopmen . Ci izens and en ep eneu s expec and dese e mo e angible
and as e esponse om public adminis a ion unless hey ake ad an age o a globalised
wo ld and o e he yea s lea e a non-s imula ing en i onmen .
In sum, p og ess in Slo enia and C oa ia is oo slow and no su icien ly in ensi e, bo h
on na ional and compa able scales. The signi ican implemen a ion gap ega ding RAB
measu es, e en he mos impo an ones (see EC (2014, p. 33)), is he esul o se e al
subop imal app oaches. Fi s ly, i is ob ious ha bo h coun ies ha e main p oblems whe e
pa ial measu es a e aken and no sys emic ones. Secondly, usually he i s and o en he
only s ep aken is an amendmen o a sec o -speci ic law. Hence, he e a e no sys emic
e ec s ac oss he ield add esses, as lacking una oidable in e connec ion o social and
ax measu es. Thi dly, due o o mal(is ic) adminis a i e adi ion, i is unde a ed ha
a no ma i e componen is necessa y bu no su icien . To aise o e all capaci y, i needs o
be accompanied by o ganisa ional, manage ial, e-go e nmen ela ed and o he ac i i ies
o p o ide sys emic p og ess. Finally, any changes, legisla i e as well, should be pa o
a egula o y eedback loop,37 wi h ex pos assessmen s ha is in espec i e coun ies no
so a inco po a ed in a egula o y sys em. Addi ionally, he e is a need o dis inguish RAB
sec o s acco ding o he p io i ies se o a speci ic ield o bene icia ies. This is he case
37 No ma i e componen mus be conside ed, especially in mo e o mally-o ien ed adminis a i e en i onmen s.
See Rusch (2014). On he impo ance o IT suppo in RAB, see OECD (2012, p. 4). On egula o y eedback
loop, see Ko ač (2009, 2015) and EC (2014, p. 45).
224 Polonca Ko ač, Ved an Ðulabić, Ne ia Čičin-Šain: Remo al o Adminis a i e
Ba ie s h ough he Recen P ocedu al Simpli ica ions in Slo enia and C oa ia
since Slo enia and C oa ia bo h seem o ha e such s a egies as equi ed by he WB o
known compa a i ely. Abo e all, appa en ly SMSE should be aken in o accoun (see TUC
(2016), unde he i le o »Think Small Fi s «, c . EC (2014), WB epo (2016; p. 3)).
Tax p ocedu e in his espec indeed plays a signi ican ole in enabling mo e e ec i e
adminis a i e e iciency and business p oduc i i y (Ko ač (2012, p. 413)).
Fu he , an open ques ion a ises as o wha ex en he legisla o akes in o accoun adi i-
onal p inciples o sma egula ion.38 Abo e all, i is ques ionable as o whe he minis ies
as policy make s unde s and he p inciple o he necessi y o egula ing social a ai s.
Based on he esul s o ou analyses, some end o egula e all de ails ega dless o i s le el
o impo ance by law, and he o he ex eme do no change e en a law in place p ac ically
he same o 90 yea s (as he Slo ene GAPA). The e is also an impo an dilemma o
dis inguishing subs an i e issues o be (de) egula ed as opposed o p ocedu al simpli i-
ca ions, o en neglec ed o misunde s ood. The p inciples o necessa y legal egula ion
impose on he d a legisla o (i.e. egula ing adminis a i e au ho i y) i s ly he necessi y
o an in-dep h analysis o he policy (which is ini ia ed o amended and supplemen ed)
gi ing ise o ques ions ha need o be egula ed, causes o p oblems, p ecise objec i es,
and me hods o egula ion. I equi es sel - es ain and p opo ionali y by p oposing o
pa liamen comp ehensible egula ion, wi hou unnecessa y bu dens bu simul aneously
exp essed awa eness o public bene i o be p o ec ed in exposed a eas. The s udy o
Slo enia and C oa ia e eals ha esul s a e he lowes when e alua ing na ional com-
pe i i eness, especially in hose ields lacking such an app oach ega dless o o mally
mode nised laws (like Cons A and e en he GAPA in C oa ia as he mos ob ious cases
in his s udy).
Ano he sys emic aspec ela es o he combined need o simpli ica ions and he e o e
subs i u e mechanisms o measu es espec i ely. In o he wo ds, i he le el o o mali-
ies and e en condi ions o a business ac i i y is educed, i has o be clea who akes
o e he accoun abili y o a possible gap in public in e es in he ield, such as an en-
dange ed en i onmen o lowe amoun o axes collec ed. Pa icula ly, when simpli ying
any adminis a i e ela ion, sel - egula ion and s a e con ol ha e o be s eng hened. The
s a e canno only a oid i s own esponsibili y o public go e nance.39 De egula ion and
simpli ica ion, espec i ely. RAB also necessa ily leads o an inc eased esponsibili y o
en ep eneu s o he socie y as a whole.
The GAPA is gene ally conside ed an impo an ins umen o adminis a i e echnology
(Kop ić and Ðulabić (2009)). Tha is he eason why i should be app oached as an impo -
an ool o wide adminis a i e e o m, especially when i comes o ac i i ies connec ed
wi h RAB. I should no jus be seen as a law, which egula es p ocedu al aspec s o
au ho i a i e, unila e al decision-making abou igh s, obliga ions and legal in e es s o
pa icipan s in adminis a i e p ocedu e. F om ha poin o iew, he GAPA could be an
impo an enable o he RAB, bu also a signi ican obs acle i i egula es p ocedu e in
oo o malis ic and bu eauc a ic a manne . The e should be a balance be ween c ea ing
legal p econdi ions o simple and ci izen-o ien ed public adminis a ion and espec ing
38 See Radaelli and de F ancesco (2007, p. 32) o Slo ene Resolu ion (2009) o C oa ian law on RIA (2011).
39 C . A be šek (2011, p. 113), WB (2016, pp. 62–63).
DANUBE: Law, Economics and Social Issues Re iew, 8 (4), 207–228
DOI: 10.1515/danb-2017-0014
225
basic ule-o -law p inciples, a he same ime. The C oa ian expe ience shows ha , despi e
signi ican mode nisa ion o he GAPA, ha aken as an isola ed e o will no esul in
signi ican adminis a i e e o m no RAB ha would ha e s onge impac on imp o e-
men o he business en i onmen . Doing Business anking and o he indica o s show ha ,
despi e he mode nisa ion o legal ex s, he e a e se e al me a law ac i i ies ha should
be unde aken in o de o achie e a wide posi i e e ec .
VI. Conclusion
In hisanalysis,weha eshownRAB asbeingessen ialinp ocedu al e ms,since espec i e
simpli ica ions p ese e he le el o public in e es on he indi idual adminis a i e a ea,
bu ease business ac i i y. I is he e o e no su p ising ha we de ec he mos e icien
changes on his le el, pa icula ly i pu sued by gene al p ocedu al law and upg aded along
he same line by sec o -speci ic ac s. Mo eo e , one mus inco po a e any legal no el ies
in o he b oade cycle o he egula o y p ocess, equi ing complex adminis a i e me-
asu es and egula e alua ions. In u u e, mo e a en ion should he e o e be pu o he
econcilia ion o in e es in he socie y. Good public go e nance means o e lapping and no
exclusi e concep s ega ding law ulness and e iciency, in gene al and o en ep eneu s
in pa icula . The e o e, o RAB o be an e ec i e policy in e ms o balanced p o ec ion
o he public in e es and inc easing economic compe i i eness, all s akeholde s mus hold
sha ed accoun abili y.
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