Ashot Khurshudyan

Improvement of Public Policy Making Process in Armenia

Background

Armenia’s constitution, adopted through a national referendum on July 5, 1995, established the legal framework for a government based on the rule of law, and separation of the executive, legislative and judicial branches of government. On the same day, Armenia elected its first post-independence legislative body, known as the National Assembly. Because the constitution had not been adopted at the time the elections were planned, the National Assembly was elected according to provisional laws. It had 191 deputies, and was not considered “professional” as deputies were allowed to hold other paid positions.

In May 1999, the current National Assembly was elected for a four-year term. Prior to these elections, the National Assembly was reconfigured to have 131 deputies, with 75 elected through majoritarian races and 56 elected through a proportional system. According to the Constitution, deputies are not allowed to hold paid positions outside the National Assembly, except for scientific, educational, or creative work. The current National Assembly contains six political parties and blocs elected from the proportional list, and two parliamentary groups that were formed among independent majoritarian deputies.

In December 2000, the National Assembly amended the Electoral Code to increase the number of proportional seats to 97, and reduce the number of majoritarian seats to 34. These changes will not take effect, however, until the next scheduled parliamentary elections in 2003. The reasons behind these changes in the National Assembly structure have not been clearly explained. Some theorize that these changes were pushed by the president to ensure greater discipline in National Assembly debates and voting.

The Constitution establishes six standing committees within the National Assembly, although ad hoc committees may be formed as well. The current standing committees are the Committee for Foreign Affairs, the Committee for Science, Education, Culture and Youth Issues, the Committee for Social, Health, and Environmental Protection Issues, the Committee for Defense, Security, and International Affairs, the Committee for State and Legal Issues, and the Committee for Finance, Budget, and Economic Issues. The State and Legal Issues Committee and the Finance, Budget and Economic Issues Committee each have 32 members, while the other committees have 16.

There are more than 370 permanent staff (including over 150 support staff) in the National Assembly. All staff are located in the National Assembly building in Yerevan, and only the Speaker and the two Deputy Speakers are assigned personal staff. The staff structure is managed by a chief of staff. For the most part, the permanent staff does not change with elections. As with other public sector positions in Armenia, pay is low, and the National Assembly lacks promotion systems, incentive mechanisms, and competitive hiring processes for staff. Although the staff structure appears highly organized, in reality, staff do not have clear position descriptions nor are they generally well-prepared for legislative work. Relationships among various departments are not well-structured or clearly defined.

Legislative Process
Under the Constitution, the Government of Armenia (GOA) establishes the sequence of the discussion of draft laws that it presents to the National Assembly, and can demand that drafts be voted on which include amendments or revisions which are acceptable to the GOA. Both the National Assembly and the GOA can initiate draft legislation. If the GOA and National Assembly both present versions of the same draft legislation, they usually reach consensus on which draft will be considered, or agree to introduce a unified draft for hearings. Legislative drafts are submitted to the Speaker of the National Assembly, who forwards the drafts to the relevant committee for review within two days. The committee submits its opinion on the draft to the Speaker within one month, and for drafts considered urgent, the timeframe is shortened to within two weeks. Committees do not have their own separate professional staff, but are supported in their work by the legal and economic analyses departments.

Relationship with the Executive Branch
The National Assembly’s relationship with the executive is determined by the Constitution. The National Assembly approves the annual executive budget, supervises the way the budget is executed, approves the annual Government program and has the power to vote no-confidence in the Government. The National Assembly holds a weekly Government question session, but the Constitution does not allow for the issuance of any resolutions or official votes based on what is discussed in these sessions.

Constituency Relations
National Assembly deputies generally do not have individual offices, either in Yerevan or in the districts which they represent. Access to the National Assembly is restricted by a range of bureaucratic and security procedures. These procedures were strengthened since October 1999, when the National Assembly was the site of assassinations of the top Armenian leadership, including the prime minister, the Speaker of the National Assembly and other key figures. There are no formal systems in place for responding to or addressing citizen concerns. General access to information about the National Assembly and its proceedings is limited. Although the National Assembly affirms that draft legislation can be provided to the public, it is extremely difficult, if not impossible, for citizens to get copies of draft legislation or the schedule for its review. No information is posted related to the National Assembly’s schedule. Recently, the National Assembly has been holding a number of public hearings on draft legislation, some of which have included a wider than usual list of invitees.

Objectives of the Research

Taking into account that there isn’t tradition of involving Public Policy Research Institutions, Think Tanks or Interested Parties into discussions and analysis of draft laws in Armenia the objective of my study is working out propositions and schemes for the following:

1) Strengthening the internal capacity of the National Assembly to support the legislative process, focusing particularly on the financial and economic analytical aspects of that process by providing link with Public Policy Research Institutions

2) Improving National Assembly systems for constituency relations and outreach by involving Public Policy Institutions into Lobbing Activity

3) Increasing public and media access to information about the National Assembly’s operations.

Although these three areas are listed separately, they are interrelated.

Illustrative Activities

• Research on the development of a capacity to support the National Assembly’s review of the budgetary and economic impact of proposed legislation and of the GOA national budget and propositions on who to do it.
• Working with appropriate NA staff for establishment of linkages with local organizations outside of the National Assembly with capacity in this area
• Development of mechanisms for the regular interchange of information with the GOA on national budget formulation and implementation
• Based on National Assembly structure and resources, develop recommendations for improvement of constituency relations
• Clarify appropriate role of deputies in responding directly to citizen requests for information or to citizen concerns
• Working out referral system within National Assembly for tracking and responding to inquiries on a timely basis
• Develop public information materials on role of National Assembly in responding to direct citizen concerns, or to requests from the media or other organizations
• Proposition of technical assistance to deputies to assist them in setting up mechanisms for constituency outreach and carrying out meetings with constituents in the regions and in Yerevan
• Provide training to Assembly staff on customer service techniques
• Working out and proposition of developed mechanisms to regularly disseminate information to the public

For implementation of the following activities I will be calling for focus groups and interesting parties to participate at round tables. Also I am planning to apply for study tour visit to Parliaments of Hungary. Also I would like to visit CEU for meeting with International Relations and European Studies Department experts and discussion with them results of the research.

Expected Performance Outcomes

As indicated above, my objective for legislative strengthening is to help develop a more responsive and effective parliament, with an improved capacity to draft, review and approve legislation and increased citizen access to the National Assembly. The activities described in this proposal are expected to lead to the outcomes below, which in turn will help to achieve the overall objective. At the end of this one year program, I expect that my research would assist in achieving the following outcomes:

1. Capacity to conduct financial and economic review of legislation and national budget within the National Assembly is strengthened by different think tanks and interest groups input.
2. Systems are in place for managing constituency relations which are appropriate to the National Assembly structure and resources
3. A system is in place for easier access to information on the National Assembly by the general public and specific target groups, including the media
4. The press office is strengthened to be more responsive to inquiries it receives.

project

home	Improvement of Public Policy Making Process in Armenia Interim Activity Report Final Activity Report Draft Research Paper Final Research Paper Policy Paper Interrelated Policy Paper Timetable Background Armenia’s constitution, adopted through a national referendum on July 5, 1995, established the legal framework for a government based on the rule of law, and separation of the executive, legislative and judicial branches of government. On the same day, Armenia elected its first post-independence legislative body, known as the National Assembly. Because the constitution had not been adopted at the time the elections were planned, the National Assembly was elected according to provisional laws. It had 191 deputies, and was not considered “professional” as deputies were allowed to hold other paid positions. In May 1999, the current National Assembly was elected for a four-year term. Prior to these elections, the National Assembly was reconfigured to have 131 deputies, with 75 elected through majoritarian races and 56 elected through a proportional system. According to the Constitution, deputies are not allowed to hold paid positions outside the National Assembly, except for scientific, educational, or creative work. The current National Assembly contains six political parties and blocs elected from the proportional list, and two parliamentary groups that were formed among independent majoritarian deputies. In December 2000, the National Assembly amended the Electoral Code to increase the number of proportional seats to 97, and reduce the number of majoritarian seats to 34. These changes will not take effect, however, until the next scheduled parliamentary elections in 2003. The reasons behind these changes in the National Assembly structure have not been clearly explained. Some theorize that these changes were pushed by the president to ensure greater discipline in National Assembly debates and voting. The Constitution establishes six standing committees within the National Assembly, although ad hoc committees may be formed as well. The current standing committees are the Committee for Foreign Affairs, the Committee for Science, Education, Culture and Youth Issues, the Committee for Social, Health, and Environmental Protection Issues, the Committee for Defense, Security, and International Affairs, the Committee for State and Legal Issues, and the Committee for Finance, Budget, and Economic Issues. The State and Legal Issues Committee and the Finance, Budget and Economic Issues Committee each have 32 members, while the other committees have 16. There are more than 370 permanent staff (including over 150 support staff) in the National Assembly. All staff are located in the National Assembly building in Yerevan, and only the Speaker and the two Deputy Speakers are assigned personal staff. The staff structure is managed by a chief of staff. For the most part, the permanent staff does not change with elections. As with other public sector positions in Armenia, pay is low, and the National Assembly lacks promotion systems, incentive mechanisms, and competitive hiring processes for staff. Although the staff structure appears highly organized, in reality, staff do not have clear position descriptions nor are they generally well-prepared for legislative work. Relationships among various departments are not well-structured or clearly defined. Legislative Process Under the Constitution, the Government of Armenia (GOA) establishes the sequence of the discussion of draft laws that it presents to the National Assembly, and can demand that drafts be voted on which include amendments or revisions which are acceptable to the GOA. Both the National Assembly and the GOA can initiate draft legislation. If the GOA and National Assembly both present versions of the same draft legislation, they usually reach consensus on which draft will be considered, or agree to introduce a unified draft for hearings. Legislative drafts are submitted to the Speaker of the National Assembly, who forwards the drafts to the relevant committee for review within two days. The committee submits its opinion on the draft to the Speaker within one month, and for drafts considered urgent, the timeframe is shortened to within two weeks. Committees do not have their own separate professional staff, but are supported in their work by the legal and economic analyses departments. Relationship with the Executive Branch The National Assembly’s relationship with the executive is determined by the Constitution. The National Assembly approves the annual executive budget, supervises the way the budget is executed, approves the annual Government program and has the power to vote no-confidence in the Government. The National Assembly holds a weekly Government question session, but the Constitution does not allow for the issuance of any resolutions or official votes based on what is discussed in these sessions. Constituency Relations National Assembly deputies generally do not have individual offices, either in Yerevan or in the districts which they represent. Access to the National Assembly is restricted by a range of bureaucratic and security procedures. These procedures were strengthened since October 1999, when the National Assembly was the site of assassinations of the top Armenian leadership, including the prime minister, the Speaker of the National Assembly and other key figures. There are no formal systems in place for responding to or addressing citizen concerns. General access to information about the National Assembly and its proceedings is limited. Although the National Assembly affirms that draft legislation can be provided to the public, it is extremely difficult, if not impossible, for citizens to get copies of draft legislation or the schedule for its review. No information is posted related to the National Assembly’s schedule. Recently, the National Assembly has been holding a number of public hearings on draft legislation, some of which have included a wider than usual list of invitees. Objectives of the Research Taking into account that there isn’t tradition of involving Public Policy Research Institutions, Think Tanks or Interested Parties into discussions and analysis of draft laws in Armenia the objective of my study is working out propositions and schemes for the following: 1) Strengthening the internal capacity of the National Assembly to support the legislative process, focusing particularly on the financial and economic analytical aspects of that process by providing link with Public Policy Research Institutions 2) Improving National Assembly systems for constituency relations and outreach by involving Public Policy Institutions into Lobbing Activity 3) Increasing public and media access to information about the National Assembly’s operations. Although these three areas are listed separately, they are interrelated. Illustrative Activities • Research on the development of a capacity to support the National Assembly’s review of the budgetary and economic impact of proposed legislation and of the GOA national budget and propositions on who to do it. • Working with appropriate NA staff for establishment of linkages with local organizations outside of the National Assembly with capacity in this area • Development of mechanisms for the regular interchange of information with the GOA on national budget formulation and implementation • Based on National Assembly structure and resources, develop recommendations for improvement of constituency relations • Clarify appropriate role of deputies in responding directly to citizen requests for information or to citizen concerns • Working out referral system within National Assembly for tracking and responding to inquiries on a timely basis • Develop public information materials on role of National Assembly in responding to direct citizen concerns, or to requests from the media or other organizations • Proposition of technical assistance to deputies to assist them in setting up mechanisms for constituency outreach and carrying out meetings with constituents in the regions and in Yerevan • Provide training to Assembly staff on customer service techniques • Working out and proposition of developed mechanisms to regularly disseminate information to the public For implementation of the following activities I will be calling for focus groups and interesting parties to participate at round tables. Also I am planning to apply for study tour visit to Parliaments of Hungary. Also I would like to visit CEU for meeting with International Relations and European Studies Department experts and discussion with them results of the research. Expected Performance Outcomes As indicated above, my objective for legislative strengthening is to help develop a more responsive and effective parliament, with an improved capacity to draft, review and approve legislation and increased citizen access to the National Assembly. The activities described in this proposal are expected to lead to the outcomes below, which in turn will help to achieve the overall objective. At the end of this one year program, I expect that my research would assist in achieving the following outcomes: 1. Capacity to conduct financial and economic review of legislation and national budget within the National Assembly is strengthened by different think tanks and interest groups input. 2. Systems are in place for managing constituency relations which are appropriate to the National Assembly structure and resources 3. A system is in place for easier access to information on the National Assembly by the general public and specific target groups, including the media 4. The press office is strengthened to be more responsive to inquiries it receives.