Table Of Content

Legal Commentary by SIGMA on the Code of Administrative Procedures of the Republic of Albania April 2018 edition This commentary has been produced with the financial assistance of the European Union (EU). It should not be reported as representing the official views of the EU, the OECD or its member countries, or of partners participating in the SIGMA Programme. The opinions expressed and arguments employed are those of the authors. © OECD 2018 – The use of this material, whether digital or print, is governed by the Terms and Conditions to be found on the OECD website page http://www.oecd.org/termsandconditions. TABLE OF CONTENTS INTRODUCTION ................................................................................................................................. 6 PART ONE GENERAL PROVISIONS ....................................................................................................... 8 CHAPTER I PURPOSE, SCOPE AND DEFINITIONS ............................................................................... 8 Article 1 Purpose of the law ......................................................................................................................... 8 Article 2 Scope of application ....................................................................................................................... 9 Article 3 para. 1 Definitions of “administrative act” .................................................................................... 11 Article 3 para. 2 Definition of “normative sub-legal act”. ............................................................................ 18 Article 3 para. 3 Definition of “discretion of the public body” ..................................................................... 19 Article 3 para. 4 Definition of “administrative contract” ............................................................................. 19 Article 3 para. 5 Definition of “administrative competence” ....................................................................... 20 Article 3 para. 6 Definition of “public body” ................................................................................................ 21 Article 3 para. 7 Definition of “party” .......................................................................................................... 22 Article 3 para. 8 Definition of “person” ........................................................................................................ 22 Article 3 para. 9 Definition of “administrative procedure” .......................................................................... 23 Article 3 para. 10 Definition of “administrative action” ............................................................................... 24 Article 3 para. 11 Definition of “other administrative action” ..................................................................... 24 Article 3 para. 12 Definition of “administrative activity” ............................................................................. 24 CHAPTER II GENERAL PRINCIPLES .................................................................................................. 26 Article 4 Legality principle .......................................................................................................................... 26 Article 5 Transparency principle................................................................................................................. 26 Article 6 Information principle ................................................................................................................... 27 Article 7 Principle of state secret protection ............................................................................................. 28 Article 8 Protection of confidentiality principle ......................................................................................... 28 Article 9 Principle of data protection ......................................................................................................... 29 Article 10 Principle of providing active assistance ....................................................................................... 29 Article 11 Principle of lawful exercise of discretion ..................................................................................... 30 Article 12 Proportionality principle .............................................................................................................. 32 Article 13 Fairness and impartiality principle ............................................................................................... 33 Article 14 Objectivity principle ..................................................................................................................... 33 Article 15 Liability principle .......................................................................................................................... 33 Article 16 The Decision-making principle ..................................................................................................... 34 Article 17 Equality and non-discrimination principle ................................................................................... 34 Article 18 De-bureaucratization and efficiency principle ............................................................................. 35 Article 19 Principle of non-payment in administrative procedure ............................................................... 37 Article 20 Language and translation in an administrative procedure .......................................................... 38 Article 21 Control principle .......................................................................................................................... 40 PART TWO COMPETENCE, DELEGATION AND SUBSTITUTION ............................................................ 43 CHAPTER I JURISDICTION AND COMPETENCE ................................................................................ 43 Article 22 Determining jurisdiction and competence .................................................................................. 43 Article 23 Verification of competence ......................................................................................................... 44 Article 24 Lack of competence ..................................................................................................................... 45 Article 25 Prohibition to waive competence ................................................................................................ 46 Article 26 Competence in urgent cases ........................................................................................................ 46 Article 27 Disputes over competence .......................................................................................................... 47 CHAPTER II DELEGATION AND SUBSTITUTION OF COMPETENCIES .................................................. 49 Article 28 Delegation of powers ................................................................................................................... 49 Article 29 Delegation procedure .................................................................................................................. 49 PART THREE ENSURING IMPARTIALITY OF THE PUBLIC ADMINISTRATION.......................................... 51 Article 30 Legal impediments ....................................................................................................................... 51 Article 31 Self-declaration of legal impediments and request for exclusion ............................................... 53 Legal Commentary by SIGMA on the Code of Administrative Procedures of the Republic of Albania Article 32 Decision-making and effects of exclusion .................................................................................... 54 PART FOUR ADMINISTRATIVE PROCEDURE ...................................................................................... 58 CHAPTER I PARTICIPATION IN THE ADMINISTRATIVE PROCEDURE.................................................. 58 Article 33 Parties in administrative procedure ............................................................................................ 58 Article 34 Capacity to act in the administrative procedure ......................................................................... 66 Article 35 Party representation .................................................................................................................... 67 Article 36 Ex officio appointed representative............................................................................................. 68 Article 37 Joint representative ..................................................................................................................... 74 Article 38 Appointed representative ............................................................................................................ 75 Article 39 Assistant ....................................................................................................................................... 77 Article 40 Capacity for being representative or assistant ............................................................................ 78 CHAPTER II GENERAL PROVISIONS ON THE ADMINISTRATIVE PROCEDURE ..................................... 79 Article 41 Initiation of the administrative procedure .................................................................................. 79 Article 42 Communication with parties ....................................................................................................... 83 Article 43 Responsible unit and responsible official .................................................................................... 87 Article 44 Initiation of the administrative procedure upon request ............................................................ 93 CHAPTER III RIGHTS OF PARTIES DURING THE ADMINISTRATIVE PROCEDURE ................................. 99 Article 45 Right of the parties to inspect the files ........................................................................................ 99 Article 46 Limitation of the parties’ right to inspect the file ...................................................................... 104 Article 47 Right to submit opinions and explanations ............................................................................... 105 Article 48 Obligation to assess ................................................................................................................... 108 CHAPTER IV DOCUMENT UNIFICATION AND SIGNATURE CERTIFICATION...................................... 110 Article 49 Unification of own documents .................................................................................................. 110 Article 50 Unification in connection with electronic documents ............................................................... 112 Article 51 Unification of documents issued by other public bodies........................................................... 114 Article 52 Certification of signatures .......................................................................................................... 115 CHAPTER V DEADLINES ............................................................................................................... 117 Article 53 Determination and extension of procedural deadlines ............................................................. 117 Article 54 Reinstatement of deadlines ....................................................................................................... 120 Article 55 Decision and effects of the reinstatement of deadline ............................................................. 122 Article 56 Calculation of the deadlines ...................................................................................................... 124 Article 57 Assumptions for calculations of the deadlines .......................................................................... 127 CHAPTER VI REQUEST AND ITS SUBMISSION ................................................................................ 130 Article 58 Form and content of the request............................................................................................... 130 Article 59 Submission of the request ......................................................................................................... 133 Article 60 Registration and certification of submission of requests .......................................................... 137 Article 61 Other submissions ..................................................................................................................... 140 Article 62 Inaccuracies of the request of the interested party to initiate the administrative procedure .. 140 Article 63 Verbal request for the initiation of the administrative procedure ............................................ 145 Article 64 Right to complete, amend and withdraw the request............................................................... 146 Article 65 Preliminary verification before the initiation of the administrative procedure ............................ 149 CHAPTER VII PRELIMINARY ISSUES AND INTERIM DECISIONS ....................................................... 150 Article 66 Preliminary issues ...................................................................................................................... 150 Article 67 Interim decisions ........................................................................................................................ 154 Article 68 Termination of interim decisions ............................................................................................... 157 Article 69 Reconciliation of parties ............................................................................................................ 159 CHAPTER VIII JOINT DECISION- MAKING AND ASSISTANCE BETWEEN PUBLIC BODIES ................... 162 Article 70 Joint decision making ................................................................................................................. 162 Article 71 Administrative assistance .......................................................................................................... 166 Article 72 Refusal of a request for administrative assistance .................................................................... 168 Article 73 Procedure of administrative assistance ..................................................................................... 169 CHAPTER IX ONE STOP SHOP ....................................................................................................... 171 Article 74 One stop shops .......................................................................................................................... 171 Article 75 Responsibilities of one stop shops ............................................................................................. 172 Article 76 Information and procedure ....................................................................................................... 174 2 Legal Commentary by SIGMA on the Code of Administrative Procedures of the Republic of Albania CHAPTER X ADMINISTRATIVE INVESTIGATION ............................................................................. 175 Article 77 Principle of Ex Officio Investigation ........................................................................................... 175 Article 78 Cooperation during the administrative investigation ................................................................ 178 Article 79 Subject of investigation procedure ............................................................................................ 180 Article 80 Meaning and means for search of evidence .............................................................................. 182 Article 81 Evaluation of evidence ............................................................................................................... 184 Article 82 Burden of proof ......................................................................................................................... 185 Article 83 Presentation of evidence before another public body .............................................................. 186 Article 84 Methods for submission of information and evidence .............................................................. 187 Article 85 Failure to submit the evidence .................................................................................................. 187 Article 86 Securing the evidence ................................................................................................................ 188 Article 87 Notification and the right to be heard before a final decision is made ..................................... 189 Article 88 Exercising the right to be heard ................................................................................................. 193 Article 89 Exemption from the right to be heard ....................................................................................... 194 CHAPTER XI CONCLUSION OF THE ADMINISTRATIVE PROCEDURE ................................................ 196 Article 90 Conclusion of the administrative procedure ............................................................................. 196 Article 91 Deadline for the conclusion of the administrative procedure ................................................... 200 Article 92 Extension of the procedure deadline......................................................................................... 204 Article 93 Death of the party and termination of legal person .................................................................. 207 Article 94 Withdrawal or abandonment of the request ............................................................................ 212 Article 95 Impossibility of the object or purpose ....................................................................................... 217 Article 96 Failure to pay fees ...................................................................................................................... 218 Article 97 Silent consent ............................................................................................................................ 221 PART FIVE ADMINISTRATIVE ACTIVITY ............................................................................................ 227 CHAPTER I ADMINISTRATIVE ACT ............................................................................................... 227 Article 98 Form of administrative act ......................................................................................................... 227 Article 99 Formal requirements of the administrative act written on paper or electronic ....................... 233 Article 100 Reasoning of the act .................................................................................................................. 237 Article 101 Acts that are not required to be reasoned ................................................................................ 239 Article 102 Additional conditions for the beneficial administrative act....................................................... 243 Article 103 Act of assurance ........................................................................................................................ 246 Article 104 Commencement and ending of the legal effects of the administrative act .............................. 249 Article 105 Retroactive effects ..................................................................................................................... 252 Article 106 Publication of the acts in the Official Journal ............................................................................ 253 Article 107 Legality of the administrative act .............................................................................................. 254 Article 108 Absolutely invalid administrative act ......................................................................................... 255 Article 109 Unlawfulness of an administrative act....................................................................................... 259 Article 110 Effect and ascertainment of the absolute invalidity .................................................................. 263 Article 111 Mandatory declaration of absolutely invalid act ....................................................................... 265 Article 112 Correction of material errors in an administrative act .............................................................. 266 Article 113 Procedure and legal effects of annulment and repeal .............................................................. 267 Article 114 Discretionary annulment and repeal of an unlawful administrative act ................................... 278 Article 115 Annulment of a lawful administrative act ................................................................................. 282 Article 116 Repeal of a lawful administrative act......................................................................................... 284 Article 117 Deadline of annulment and repeal ............................................................................................ 287 Article 118 Reimbursement in case of annulment ....................................................................................... 288 CHAPTER II ADMINISTRATIVE CONTRACT .................................................................................... 290 Article 119 Conditions and requirements of administrative contracts ........................................................ 290 Article 120 Substituting administrative contract ......................................................................................... 298 Article 121 Administrative contract between public bodies ........................................................................ 300 Article 122 Invalidity of an administrative contract ..................................................................................... 301 Article 123 Amendment, termination or withdrawal from an administrative contract .............................. 303 Article 124 Applicability of other legal provisions ........................................................................................ 305 Article 125 Settlement of disputes ............................................................................................................... 305 3 Legal Commentary by SIGMA on the Code of Administrative Procedures of the Republic of Albania CHAPTER III OTHER ADMINISTRATIVE ACTIONS UNDER THE REGIME OF ADMINISTRATIVE LAW ... 306 Article 126 Other administrative actions under the regime of administrative law ..................................... 306 CHAPTER IV INDIRECT PROVISION OF PUBLIC SERVICES ............................................................... 310 Article 127 Indirect provision of public services .......................................................................................... 310 PART VI ADMINISTRATIVE REMEDIES ............................................................................................. 316 CHAPTER I GENERAL PROVISIONS ............................................................................................... 316 Article 128 Legitimacy and administrative remedies ................................................................................... 316 Article 129 Exhaustion of the administrative appeal remedies ................................................................... 320 CHAPTER II ADMINISTRATIVE APPEAL ......................................................................................... 322 Article 130 Administrative appeal against the administrative act and its purpose ..................................... 322 Article 131 Content of the administrative appeal ........................................................................................ 324 Article 132 Deadlines of administrative appeal against an administrative act ............................................ 326 Article 133 Effects of an administrative appeal against an administrative act ............................................ 328 Article 134 Body where the appeal is addressed ......................................................................................... 332 Article 135 Conditions for admissibility of the appeal ................................................................................. 333 Article 136 Procedure of reviewing the appeal by the competent public body .......................................... 335 Article 137 Procedure for the review of the appeal by the superior body .................................................. 340 Article 138 Appeal against administrative omission .................................................................................... 342 Article 139 Content and effect of the act resolving the appeal ................................................................... 344 Article 140 Deadline for notifying the act resolving the appeal................................................................... 345 CHAPTER III ADMINISTRATIVE OBJECTION .................................................................................. 347 Article 141 Scope of administrative objection ............................................................................................. 347 Article 142 Content and deadline of administrative objection .................................................................... 350 Article 143 Review of the administrative objection ..................................................................................... 351 CHAPTER IV REVISION ................................................................................................................. 353 Article 144 Revision ...................................................................................................................................... 353 Article 145 Deadline and submission ........................................................................................................... 354 Article 146 Decision on the revision ............................................................................................................. 355 PART SEVEN NOTIFICATION ............................................................................................................ 357 CHAPTER I GENERAL RULES OF NOTIFICATION ............................................................................. 357 Article 147 Appropriate notification ............................................................................................................ 357 Article 148 Forms of notification.................................................................................................................. 361 Article 149 Notification receiver .................................................................................................................. 363 Article 150 Person responsible for the notifications .................................................................................... 364 Article 151 Places of notification ................................................................................................................. 368 Article 152 International notification ........................................................................................................... 368 Article 153 Notification in special cases ....................................................................................................... 369 Article 154 Notification mistakes ................................................................................................................. 370 CHAPTER II WAYS AND MEANS OF NOTIFICATION ....................................................................... 374 Article 155 Notification by surface mail ....................................................................................................... 374 Article 156 Notification via electronic means .............................................................................................. 375 Article 157 Formal notification .................................................................................................................... 379 Article 158 Ways of formal notification ....................................................................................................... 381 Article 159 Personal delivery........................................................................................................................ 383 Article 160 Notification through a third person ............................................................................................ 387 Article 161 Notification via electronic publication ....................................................................................... 393 Article 162 Public notification ...................................................................................................................... 396 Article 163 Official publication ..................................................................................................................... 399 4 Legal Commentary by SIGMA on the Code of Administrative Procedures of the Republic of Albania PART EIGHT EXECUTION OF THE ADMINISTRATIVE ACT ................................................................... 402 CHAPTER I GENERAL PROVISIONS ............................................................................................... 402 Article 164 Executable Act ........................................................................................................................... 402 Article 165 Principles of forceful execution ................................................................................................. 405 Article 166 Grounds for non-execution ........................................................................................................ 406 Article 167 Competent body for forceful execution .................................................................................... 407 Article 168 Addressee of forceful execution ................................................................................................ 408 CHAPTER II VOLUNTARY EXECUTION OF THE ADMINISTRATIVE ACT ............................................. 410 Article 169 Notification of voluntary execution ........................................................................................... 410 Article 170 Content of the voluntary notice ................................................................................................ 411 CHAPTER III FORCEFUL EXECUTION OF THE ADMINISTRATIVE ACT ............................................... 413 Article 171 Time of forceful execution ......................................................................................................... 413 Article 172 Notification of the forceful execution........................................................................................ 413 Article 173 Content of the notification of the forceful execution ................................................................ 415 Article 174 Forceful execution of pecuniary obligations .............................................................................. 417 Article 175 Execution of non–pecuniary obligations ................................................................................... 418 Article 176 Execution of non-financial obligations through third persons .................................................. 419 Article 177 Duty to cooperate ...................................................................................................................... 421 Article 178 Execution of interim decisions ................................................................................................... 422 Article 179 Immediate execution ................................................................................................................. 423 CHAPTER IV SUSPENSION, DISMISSAL AND APPEAL OF EXECUTION .............................................. 426 Article 180 Suspension of execution ............................................................................................................ 426 Article 181 Termination of execution .......................................................................................................... 427 Article 182 Postponement of the execution ................................................................................................ 428 Article 183 Consequences of the execution of a repealed or annulled act ................................................. 429 Article 184 Appeal against execution actions .............................................................................................. 431 PART NINE TRANSITIONAL AND FINAL PROVISIONS ....................................................................... 434 Article 185 Transitional provision ................................................................................................................ 434 Article 186 Secondary legislation and internal rules ................................................................................... 436 Article 187 References to the legislation in force ........................................................................................ 437 Article 188 Repeals ....................................................................................................................................... 437 Article 189 Entry into force .......................................................................................................................... 437 5 Legal Commentary by SIGMA on the Code of Administrative Procedures of the Republic of Albania INTRODUCTION On 30 April 2015, the Assembly of the Republic of Albania adopted a new Code on Administrative Procedures (CAP), which created a comprehensive and practical set of rules, often referred to in EU Member States as “The Constitution of Public Administration”. In accordance with the Continental-European culture and tradition of democratic public administration, which goes back to the early twentieth century, such a regulatory framework governs comprehensively what a public administration should do and how it should be done in the relation to the citizen. It provides principles and rules that apply to all authorities of the public sector and thus constitutes - together with the institution of the Ombudsman - one of the four pillar that an administrative system (based on the Rule of Law) is built on. The other three pillars of a Rule-of-Law-based public administration are: a clearly structured organisation of the public administration and its bodies in all policy areas and territorial levels; a professional, competent and independent personnel; and a system of effective judicial control of administrative actions. These four pillars, together, support the overall system that aims at both protecting individuals’ rights and interests as well as safeguarding the public interest. According to the European Commission’s assessment the new Albanian CAP is in line with EU Law and the requirements of the European principles of good administration, as well as international standards of good administrative practice. Thus, it helps individual citizens to understand and obtain their rights, and promotes the public interest in an open, efficient, and citizen-oriented public administration. The Code helps citizens to understand what administrative standards they are entitled to expect from public bodies. It also serves as a binding guide for public officials in any dealings with the citizen and the general public. By making the principles of good administration more concrete, the Code helps to encourage the highest standards of administration.1 SIGMA - a joint initiative of the OECD and the EU, principally financed by the EU - provided support to the drafting process of the new CAP by the Albanian law drafting institutions, in particular the Ministry of Justice and the Assembly’s Commission for Legal Affairs, Public Administration and Human Rights. During the final legislative phase, SIGMA was asked by the Albanian authorities to continue its support in the first phase of implementing the new and, by its nature, very substantial and complex piece of legislation. For this purpose, it was agreed to develop a tool that, on the one hand, allows citizens to comprehend their rights and obligations when dealing with public bodies and, on the other, provides explanatory guidelines for the public sector to put the spirit, principles and rules of the new legislation into every day administrative practice. As a result, SIGMA developed this Commentary on the Code of Administrative Procedures2. With regard to its structure, content and extent, this practical tool was inspired by models which are an integral part of the legal and administrative practice in various EU Member States (in particular in Austria, Germany, and Italy), with which Albania shares the principles and values of its legal and administrative system. Accordingly, the Commentary provides, for every article, an explanatory introduction to its regulatory purpose followed by comments on how to interpret each legal concept, with a view to their relevance for administrative decision making in an individual case. Target groups of this Commentary should firstly be the two “parties”, who directly participate in an administrative procedure, namely the citizens and the administrative practitioners in administrative bodies. However, other professionals will also benefit from this instrument, such as judges of administrative courts, members of the bar, teaching staff of law faculties, trainers of civil servants, law students and journalists. The development of this Commentary was led by Primož Vehar of the SIGMA Programme, with substantial expert contribution from: Manfred Möller; Ulrich Ramsauer; Wolfgang Rusch; Zhani Shapo; Jan Skrobotz and Ilir Rusmalli. Thanks also go to the Albanian Ministry of Justice, in particular the Legal Codification Department. 1 See also the Introduction to the European Code of Good Administrative Behaviour https://www.ombudsman.europa.eu/en/resources/code.faces#/page/1 2 The English version of the Code of Administrative Procedures in the Commentary is a SIGMA translation. 6 Legal Commentary by SIGMA on the Code of Administrative Procedures of the Republic of Albania PART ONE GENERAL PROVISIONS 7 Legal Commentary by SIGMA on the Code of Administrative Procedures of the Republic of Albania PART ONE GENERAL PROVISIONS CHAPTER I PURPOSE, SCOPE AND DEFINITIONS Article 1 Purpose of the law The purpose of this Code is to ensure the effective realisation of the public function to the service of the persons, and the protection of their legal rights and interests, in the realization of these functions, applying the principle of due process of law. A. General Introduction I. Purpose and content of art. 1 Art. 1 describes the purposes of the whole CAP in order to give a kind of guideline to the public bodies and other public entities how to apply administrative law and how to proceed in administrative matters within the scope of the CAP as defined in art. 2. The purposes are not enumerated clearly and entirely and must be amended by the constitutional principles which provide guidelines for all entities exercising public power in Albania. As stated in art. 4 para. 3 of the Albanian Constitution its principles are applicably directly. Moreover, the purposes must be seen on the background of European principles concerning administration. 1. Rule of Law, Legality Principle As stated in art. 4 para. 1 of the Albanian Constitution and in art. 4 as well the law constitutes the basis and the boundaries of all activities of the state which means all activities of public bodies and other entities. That means that - all activities of public entities, especially public bodies must be in alignment with the law - the provisions of the law must be executed in order to fulfil the legal requirements - all affections of subjective rights or legal interests must be based on the lawn (art. 4 para. 2). 2. Protection of subjective rights and legal interests As stated in art. 1 the protection of the legal rights and interests of persons is one of the main principles and purposes of the CAP. As defined in art. 3 para. 7 lit. 8 person is any natural person, legal entity or subject of law under the legislation in force. The administrative procedures must be conducted in a way that subjective rights and legal interests of all persons involved are respected and protected. The rights and legal interests comprises the fundamental human rights and freedoms as stipulated in art. 15 ff. of the Albanian Constitution and moreover all rights and legal interests granted by special law. 3. Effective fulfilment of administrative functions Art. 1 emphasizes the purpose of effective realisation of the administrative functions. These functions can be derived primarily from the rule of law: The precise and complete execution of the requirements and provisions of the law must be seen as the most important function of the administrative organs. Moreover it belongs to the function to protect and promote both the public interests and the subjective rights and legal interests of the persons. To promote and protect these interests mean to fulfil and execute the legal duties in an efficient, economical, fair and proper way as fast as possible. 4. Principle of due legal process It is a main purpose of the CAP to implement the requirements of the rule of law by providing legal procedures to ensure the impartial execution and application of the law, the participation of the persons affected, transparency of the decision processes and to fight tendencies of corruption. These aims must be pursued not 8 Legal Commentary by SIGMA on the Code of Administrative Procedures of the Republic of Albania only by executing material law but also by providing specific procedural requirements and by providing effective remedies to protect the individual rights and legal interests of affected persons. II. Constitution and EU-Law As already mentioned before, the principles stated in art. 1 are entirely based on the Albanian Constitution which comprises the principles mentioned before. As most important principles must be emphasized the rule of law and the protection of the rights and legal interests of the persons. Art. 41 of the European Charta of fundamental rights comprises the right to good administration which comprises all principles listed in art. 1 and all others mentioned before. It must be seen as a main element of the acquis communautaire” to have implemented procedural regulations in order to achieve the purposes of good administration. III. Scope of the norm The purpose stated in art. 1 is of relevance for the implementation of the entire CAP. The scope of the CAP is legally defined in art. 2. IV. Relation to previous CAP It must be assumed that the same purposes have been pursued even by the previous CAP. Article 2 Scope of application 1. This Code shall apply in cases where a public body, during the exercise of the administrative powers regulated by administrative law: a) decides on the rights, duties and legal interest of persons, and in any other case, when the law explicitly provides for the issuance of an administrative act; b) concludes an administrative contract or performs another administrative action, which concerns the rights, duties and legal interests of persons. 2. The provisions of this Code shall also apply in cases where: a) public or private legal entities exercising self-regulatory functions in the area of regulated professions, established by law, or being conferred the right to exercise such functions, in line with letter a) of paragraph 1 of this Article, as per the legislation in force; b) private persons who are conferred the right to exercise public functions, duties, or competencies, decide in line with letter a) of paragraph 1 of this Article; c) public or private legal entities, which provide public services, decide on the rights and duties of the service users. In cases provided in paragraph 2 of this Article, every provision of this Code related to the public body shall apply also to the public or private entity or person. 3. The principles stipulated in this Code shall apply as appropriate also to the normative sub- legal acts. A. General Introduction I. Purpose and content of art. 2 This article describes the scope of the whole law and is therefore most importance. No regulation of the CAP must be applied unless the case is comprised by the scope of the law in accordance with art. 2. While the scope of para. 1 is classical the extension stipulated in para. 2 is without models. The latter is to extent the scope of the CAP to specific activities of entities which do not fulfil the preconditions of para. 1 either because they are no public bodies or because they don’t exercise public law. 9

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Legal Commentary by SIGMA on the Code of Administrative Procedures of the Republic of Albania April 2018 edition This commentary has been produced with the financial assistance of the European Union (EU). It should not be reported as representing the official views of the EU, the OECD or its member countries, or of partners participating in the SIGMA Programme. The opinions expressed and arguments employed are those of the authors. © OECD 2018 – The use of this material, whether digital or print, is governed by the Terms and Conditions to be found on the OECD website page http://www.oecd.org/termsandconditions. TABLE OF CONTENTS INTRODUCTION ................................................................................................................................. 6 PART ONE GENERAL PROVISIONS ....................................................................................................... 8 CHAPTER I PURPOSE, SCOPE AND DEFINITIONS ............................................................................... 8 Article 1 Purpose of the law ......................................................................................................................... 8 Article 2 Scope of application ....................................................................................................................... 9 Article 3 para. 1 Definitions of “administrative act” .................................................................................... 11 Article 3 para. 2 Definition of “normative sub-legal act”. ............................................................................ 18 Article 3 para. 3 Definition of “discretion of the public body” ..................................................................... 19 Article 3 para. 4 Definition of “administrative contract” ............................................................................. 19 Article 3 para. 5 Definition of “administrative competence” ....................................................................... 20 Article 3 para. 6 Definition of “public body” ................................................................................................ 21 Article 3 para. 7 Definition of “party” .......................................................................................................... 22 Article 3 para. 8 Definition of “person” ........................................................................................................ 22 Article 3 para. 9 Definition of “administrative procedure” .......................................................................... 23 Article 3 para. 10 Definition of “administrative action” ............................................................................... 24 Article 3 para. 11 Definition of “other administrative action” ..................................................................... 24 Article 3 para. 12 Definition of “administrative activity” ............................................................................. 24 CHAPTER II GENERAL PRINCIPLES .................................................................................................. 26 Article 4 Legality principle .......................................................................................................................... 26 Article 5 Transparency principle................................................................................................................. 26 Article 6 Information principle ................................................................................................................... 27 Article 7 Principle of state secret protection ............................................................................................. 28 Article 8 Protection of confidentiality principle ......................................................................................... 28 Article 9 Principle of data protection ......................................................................................................... 29 Article 10 Principle of providing active assistance ....................................................................................... 29 Article 11 Principle of lawful exercise of discretion ..................................................................................... 30 Article 12 Proportionality principle .............................................................................................................. 32 Article 13 Fairness and impartiality principle ............................................................................................... 33 Article 14 Objectivity principle ..................................................................................................................... 33 Article 15 Liability principle .......................................................................................................................... 33 Article 16 The Decision-making principle ..................................................................................................... 34 Article 17 Equality and non-discrimination principle ................................................................................... 34 Article 18 De-bureaucratization and efficiency principle ............................................................................. 35 Article 19 Principle of non-payment in administrative procedure ............................................................... 37 Article 20 Language and translation in an administrative procedure .......................................................... 38 Article 21 Control principle .......................................................................................................................... 40 PART TWO COMPETENCE, DELEGATION AND SUBSTITUTION ............................................................ 43 CHAPTER I JURISDICTION AND COMPETENCE ................................................................................ 43 Article 22 Determining jurisdiction and competence .................................................................................. 43 Article 23 Verification of competence ......................................................................................................... 44 Article 24 Lack of competence ..................................................................................................................... 45 Article 25 Prohibition to waive competence ................................................................................................ 46 Article 26 Competence in urgent cases ........................................................................................................ 46 Article 27 Disputes over competence .......................................................................................................... 47 CHAPTER II DELEGATION AND SUBSTITUTION OF COMPETENCIES .................................................. 49 Article 28 Delegation of powers ................................................................................................................... 49 Article 29 Delegation procedure .................................................................................................................. 49 PART THREE ENSURING IMPARTIALITY OF THE PUBLIC ADMINISTRATION.......................................... 51 Article 30 Legal impediments ....................................................................................................................... 51 Article 31 Self-declaration of legal impediments and request for exclusion ............................................... 53 Legal Commentary by SIGMA on the Code of Administrative Procedures of the Republic of Albania Article 32 Decision-making and effects of exclusion .................................................................................... 54 PART FOUR ADMINISTRATIVE PROCEDURE ...................................................................................... 58 CHAPTER I PARTICIPATION IN THE ADMINISTRATIVE PROCEDURE.................................................. 58 Article 33 Parties in administrative procedure ............................................................................................ 58 Article 34 Capacity to act in the administrative procedure ......................................................................... 66 Article 35 Party representation .................................................................................................................... 67 Article 36 Ex officio appointed representative............................................................................................. 68 Article 37 Joint representative ..................................................................................................................... 74 Article 38 Appointed representative ............................................................................................................ 75 Article 39 Assistant ....................................................................................................................................... 77 Article 40 Capacity for being representative or assistant ............................................................................ 78 CHAPTER II GENERAL PROVISIONS ON THE ADMINISTRATIVE PROCEDURE ..................................... 79 Article 41 Initiation of the administrative procedure .................................................................................. 79 Article 42 Communication with parties ....................................................................................................... 83 Article 43 Responsible unit and responsible official .................................................................................... 87 Article 44 Initiation of the administrative procedure upon request ............................................................ 93 CHAPTER III RIGHTS OF PARTIES DURING THE ADMINISTRATIVE PROCEDURE ................................. 99 Article 45 Right of the parties to inspect the files ........................................................................................ 99 Article 46 Limitation of the parties’ right to inspect the file ...................................................................... 104 Article 47 Right to submit opinions and explanations ............................................................................... 105 Article 48 Obligation to assess ................................................................................................................... 108 CHAPTER IV DOCUMENT UNIFICATION AND SIGNATURE CERTIFICATION...................................... 110 Article 49 Unification of own documents .................................................................................................. 110 Article 50 Unification in connection with electronic documents ............................................................... 112 Article 51 Unification of documents issued by other public bodies........................................................... 114 Article 52 Certification of signatures .......................................................................................................... 115 CHAPTER V DEADLINES ............................................................................................................... 117 Article 53 Determination and extension of procedural deadlines ............................................................. 117 Article 54 Reinstatement of deadlines ....................................................................................................... 120 Article 55 Decision and effects of the reinstatement of deadline ............................................................. 122 Article 56 Calculation of the deadlines ...................................................................................................... 124 Article 57 Assumptions for calculations of the deadlines .......................................................................... 127 CHAPTER VI REQUEST AND ITS SUBMISSION ................................................................................ 130 Article 58 Form and content of the request............................................................................................... 130 Article 59 Submission of the request ......................................................................................................... 133 Article 60 Registration and certification of submission of requests .......................................................... 137 Article 61 Other submissions ..................................................................................................................... 140 Article 62 Inaccuracies of the request of the interested party to initiate the administrative procedure .. 140 Article 63 Verbal request for the initiation of the administrative procedure ............................................ 145 Article 64 Right to complete, amend and withdraw the request............................................................... 146 Article 65 Preliminary verification before the initiation of the administrative procedure ............................ 149 CHAPTER VII PRELIMINARY ISSUES AND INTERIM DECISIONS ....................................................... 150 Article 66 Preliminary issues ...................................................................................................................... 150 Article 67 Interim decisions ........................................................................................................................ 154 Article 68 Termination of interim decisions ............................................................................................... 157 Article 69 Reconciliation of parties ............................................................................................................ 159 CHAPTER VIII JOINT DECISION- MAKING AND ASSISTANCE BETWEEN PUBLIC BODIES ................... 162 Article 70 Joint decision making ................................................................................................................. 162 Article 71 Administrative assistance .......................................................................................................... 166 Article 72 Refusal of a request for administrative assistance .................................................................... 168 Article 73 Procedure of administrative assistance ..................................................................................... 169 CHAPTER IX ONE STOP SHOP ....................................................................................................... 171 Article 74 One stop shops .......................................................................................................................... 171 Article 75 Responsibilities of one stop shops ............................................................................................. 172 Article 76 Information and procedure ....................................................................................................... 174 2 Legal Commentary by SIGMA on the Code of Administrative Procedures of the Republic of Albania CHAPTER X ADMINISTRATIVE INVESTIGATION ............................................................................. 175 Article 77 Principle of Ex Officio Investigation ........................................................................................... 175 Article 78 Cooperation during the administrative investigation ................................................................ 178 Article 79 Subject of investigation procedure ............................................................................................ 180 Article 80 Meaning and means for search of evidence .............................................................................. 182 Article 81 Evaluation of evidence ............................................................................................................... 184 Article 82 Burden of proof ......................................................................................................................... 185 Article 83 Presentation of evidence before another public body .............................................................. 186 Article 84 Methods for submission of information and evidence .............................................................. 187 Article 85 Failure to submit the evidence .................................................................................................. 187 Article 86 Securing the evidence ................................................................................................................ 188 Article 87 Notification and the right to be heard before a final decision is made ..................................... 189 Article 88 Exercising the right to be heard ................................................................................................. 193 Article 89 Exemption from the right to be heard ....................................................................................... 194 CHAPTER XI CONCLUSION OF THE ADMINISTRATIVE PROCEDURE ................................................ 196 Article 90 Conclusion of the administrative procedure ............................................................................. 196 Article 91 Deadline for the conclusion of the administrative procedure ................................................... 200 Article 92 Extension of the procedure deadline......................................................................................... 204 Article 93 Death of the party and termination of legal person .................................................................. 207 Article 94 Withdrawal or abandonment of the request ............................................................................ 212 Article 95 Impossibility of the object or purpose ....................................................................................... 217 Article 96 Failure to pay fees ...................................................................................................................... 218 Article 97 Silent consent ............................................................................................................................ 221 PART FIVE ADMINISTRATIVE ACTIVITY ............................................................................................ 227 CHAPTER I ADMINISTRATIVE ACT ............................................................................................... 227 Article 98 Form of administrative act ......................................................................................................... 227 Article 99 Formal requirements of the administrative act written on paper or electronic ....................... 233 Article 100 Reasoning of the act .................................................................................................................. 237 Article 101 Acts that are not required to be reasoned ................................................................................ 239 Article 102 Additional conditions for the beneficial administrative act....................................................... 243 Article 103 Act of assurance ........................................................................................................................ 246 Article 104 Commencement and ending of the legal effects of the administrative act .............................. 249 Article 105 Retroactive effects ..................................................................................................................... 252 Article 106 Publication of the acts in the Official Journal ............................................................................ 253 Article 107 Legality of the administrative act .............................................................................................. 254 Article 108 Absolutely invalid administrative act ......................................................................................... 255 Article 109 Unlawfulness of an administrative act....................................................................................... 259 Article 110 Effect and ascertainment of the absolute invalidity .................................................................. 263 Article 111 Mandatory declaration of absolutely invalid act ....................................................................... 265 Article 112 Correction of material errors in an administrative act .............................................................. 266 Article 113 Procedure and legal effects of annulment and repeal .............................................................. 267 Article 114 Discretionary annulment and repeal of an unlawful administrative act ................................... 278 Article 115 Annulment of a lawful administrative act ................................................................................. 282 Article 116 Repeal of a lawful administrative act......................................................................................... 284 Article 117 Deadline of annulment and repeal ............................................................................................ 287 Article 118 Reimbursement in case of annulment ....................................................................................... 288 CHAPTER II ADMINISTRATIVE CONTRACT .................................................................................... 290 Article 119 Conditions and requirements of administrative contracts ........................................................ 290 Article 120 Substituting administrative contract ......................................................................................... 298 Article 121 Administrative contract between public bodies ........................................................................ 300 Article 122 Invalidity of an administrative contract ..................................................................................... 301 Article 123 Amendment, termination or withdrawal from an administrative contract .............................. 303 Article 124 Applicability of other legal provisions ........................................................................................ 305 Article 125 Settlement of disputes ............................................................................................................... 305 3 Legal Commentary by SIGMA on the Code of Administrative Procedures of the Republic of Albania CHAPTER III OTHER ADMINISTRATIVE ACTIONS UNDER THE REGIME OF ADMINISTRATIVE LAW ... 306 Article 126 Other administrative actions under the regime of administrative law ..................................... 306 CHAPTER IV INDIRECT PROVISION OF PUBLIC SERVICES ............................................................... 310 Article 127 Indirect provision of public services .......................................................................................... 310 PART VI ADMINISTRATIVE REMEDIES ............................................................................................. 316 CHAPTER I GENERAL PROVISIONS ............................................................................................... 316 Article 128 Legitimacy and administrative remedies ................................................................................... 316 Article 129 Exhaustion of the administrative appeal remedies ................................................................... 320 CHAPTER II ADMINISTRATIVE APPEAL ......................................................................................... 322 Article 130 Administrative appeal against the administrative act and its purpose ..................................... 322 Article 131 Content of the administrative appeal ........................................................................................ 324 Article 132 Deadlines of administrative appeal against an administrative act ............................................ 326 Article 133 Effects of an administrative appeal against an administrative act ............................................ 328 Article 134 Body where the appeal is addressed ......................................................................................... 332 Article 135 Conditions for admissibility of the appeal ................................................................................. 333 Article 136 Procedure of reviewing the appeal by the competent public body .......................................... 335 Article 137 Procedure for the review of the appeal by the superior body .................................................. 340 Article 138 Appeal against administrative omission .................................................................................... 342 Article 139 Content and effect of the act resolving the appeal ................................................................... 344 Article 140 Deadline for notifying the act resolving the appeal................................................................... 345 CHAPTER III ADMINISTRATIVE OBJECTION .................................................................................. 347 Article 141 Scope of administrative objection ............................................................................................. 347 Article 142 Content and deadline of administrative objection .................................................................... 350 Article 143 Review of the administrative objection ..................................................................................... 351 CHAPTER IV REVISION ................................................................................................................. 353 Article 144 Revision ...................................................................................................................................... 353 Article 145 Deadline and submission ........................................................................................................... 354 Article 146 Decision on the revision ............................................................................................................. 355 PART SEVEN NOTIFICATION ............................................................................................................ 357 CHAPTER I GENERAL RULES OF NOTIFICATION ............................................................................. 357 Article 147 Appropriate notification ............................................................................................................ 357 Article 148 Forms of notification.................................................................................................................. 361 Article 149 Notification receiver .................................................................................................................. 363 Article 150 Person responsible for the notifications .................................................................................... 364 Article 151 Places of notification ................................................................................................................. 368 Article 152 International notification ........................................................................................................... 368 Article 153 Notification in special cases ....................................................................................................... 369 Article 154 Notification mistakes ................................................................................................................. 370 CHAPTER II WAYS AND MEANS OF NOTIFICATION ....................................................................... 374 Article 155 Notification by surface mail ....................................................................................................... 374 Article 156 Notification via electronic means .............................................................................................. 375 Article 157 Formal notification .................................................................................................................... 379 Article 158 Ways of formal notification ....................................................................................................... 381 Article 159 Personal delivery........................................................................................................................ 383 Article 160 Notification through a third person ............................................................................................ 387 Article 161 Notification via electronic publication ....................................................................................... 393 Article 162 Public notification ...................................................................................................................... 396 Article 163 Official publication ..................................................................................................................... 399 4 Legal Commentary by SIGMA on the Code of Administrative Procedures of the Republic of Albania PART EIGHT EXECUTION OF THE ADMINISTRATIVE ACT ................................................................... 402 CHAPTER I GENERAL PROVISIONS ............................................................................................... 402 Article 164 Executable Act ........................................................................................................................... 402 Article 165 Principles of forceful execution ................................................................................................. 405 Article 166 Grounds for non-execution ........................................................................................................ 406 Article 167 Competent body for forceful execution .................................................................................... 407 Article 168 Addressee of forceful execution ................................................................................................ 408 CHAPTER II VOLUNTARY EXECUTION OF THE ADMINISTRATIVE ACT ............................................. 410 Article 169 Notification of voluntary execution ........................................................................................... 410 Article 170 Content of the voluntary notice ................................................................................................ 411 CHAPTER III FORCEFUL EXECUTION OF THE ADMINISTRATIVE ACT ............................................... 413 Article 171 Time of forceful execution ......................................................................................................... 413 Article 172 Notification of the forceful execution........................................................................................ 413 Article 173 Content of the notification of the forceful execution ................................................................ 415 Article 174 Forceful execution of pecuniary obligations .............................................................................. 417 Article 175 Execution of non–pecuniary obligations ................................................................................... 418 Article 176 Execution of non-financial obligations through third persons .................................................. 419 Article 177 Duty to cooperate ...................................................................................................................... 421 Article 178 Execution of interim decisions ................................................................................................... 422 Article 179 Immediate execution ................................................................................................................. 423 CHAPTER IV SUSPENSION, DISMISSAL AND APPEAL OF EXECUTION .............................................. 426 Article 180 Suspension of execution ............................................................................................................ 426 Article 181 Termination of execution .......................................................................................................... 427 Article 182 Postponement of the execution ................................................................................................ 428 Article 183 Consequences of the execution of a repealed or annulled act ................................................. 429 Article 184 Appeal against execution actions .............................................................................................. 431 PART NINE TRANSITIONAL AND FINAL PROVISIONS ....................................................................... 434 Article 185 Transitional provision ................................................................................................................ 434 Article 186 Secondary legislation and internal rules ................................................................................... 436 Article 187 References to the legislation in force ........................................................................................ 437 Article 188 Repeals ....................................................................................................................................... 437 Article 189 Entry into force .......................................................................................................................... 437 5 Legal Commentary by SIGMA on the Code of Administrative Procedures of the Republic of Albania INTRODUCTION On 30 April 2015, the Assembly of the Republic of Albania adopted a new Code on Administrative Procedures (CAP), which created a comprehensive and practical set of rules, often referred to in EU Member States as “The Constitution of Public Administration”. In accordance with the Continental-European culture and tradition of democratic public administration, which goes back to the early twentieth century, such a regulatory framework governs comprehensively what a public administration should do and how it should be done in the relation to the citizen. It provides principles and rules that apply to all authorities of the public sector and thus constitutes - together with the institution of the Ombudsman - one of the four pillar that an administrative system (based on the Rule of Law) is built on. The other three pillars of a Rule-of-Law-based public administration are: a clearly structured organisation of the public administration and its bodies in all policy areas and territorial levels; a professional, competent and independent personnel; and a system of effective judicial control of administrative actions. These four pillars, together, support the overall system that aims at both protecting individuals’ rights and interests as well as safeguarding the public interest. According to the European Commission’s assessment the new Albanian CAP is in line with EU Law and the requirements of the European principles of good administration, as well as international standards of good administrative practice. Thus, it helps individual citizens to understand and obtain their rights, and promotes the public interest in an open, efficient, and citizen-oriented public administration. The Code helps citizens to understand what administrative standards they are entitled to expect from public bodies. It also serves as a binding guide for public officials in any dealings with the citizen and the general public. By making the principles of good administration more concrete, the Code helps to encourage the highest standards of administration.1 SIGMA - a joint initiative of the OECD and the EU, principally financed by the EU - provided support to the drafting process of the new CAP by the Albanian law drafting institutions, in particular the Ministry of Justice and the Assembly’s Commission for Legal Affairs, Public Administration and Human Rights. During the final legislative phase, SIGMA was asked by the Albanian authorities to continue its support in the first phase of implementing the new and, by its nature, very substantial and complex piece of legislation. For this purpose, it was agreed to develop a tool that, on the one hand, allows citizens to comprehend their rights and obligations when dealing with public bodies and, on the other, provides explanatory guidelines for the public sector to put the spirit, principles and rules of the new legislation into every day administrative practice. As a result, SIGMA developed this Commentary on the Code of Administrative Procedures2. With regard to its structure, content and extent, this practical tool was inspired by models which are an integral part of the legal and administrative practice in various EU Member States (in particular in Austria, Germany, and Italy), with which Albania shares the principles and values of its legal and administrative system. Accordingly, the Commentary provides, for every article, an explanatory introduction to its regulatory purpose followed by comments on how to interpret each legal concept, with a view to their relevance for administrative decision making in an individual case. Target groups of this Commentary should firstly be the two “parties”, who directly participate in an administrative procedure, namely the citizens and the administrative practitioners in administrative bodies. However, other professionals will also benefit from this instrument, such as judges of administrative courts, members of the bar, teaching staff of law faculties, trainers of civil servants, law students and journalists. The development of this Commentary was led by Primož Vehar of the SIGMA Programme, with substantial expert contribution from: Manfred Möller; Ulrich Ramsauer; Wolfgang Rusch; Zhani Shapo; Jan Skrobotz and Ilir Rusmalli. Thanks also go to the Albanian Ministry of Justice, in particular the Legal Codification Department. 1 See also the Introduction to the European Code of Good Administrative Behaviour https://www.ombudsman.europa.eu/en/resources/code.faces#/page/1 2 The English version of the Code of Administrative Procedures in the Commentary is a SIGMA translation. 6 Legal Commentary by SIGMA on the Code of Administrative Procedures of the Republic of Albania PART ONE GENERAL PROVISIONS 7 Legal Commentary by SIGMA on the Code of Administrative Procedures of the Republic of Albania PART ONE GENERAL PROVISIONS CHAPTER I PURPOSE, SCOPE AND DEFINITIONS Article 1 Purpose of the law The purpose of this Code is to ensure the effective realisation of the public function to the service of the persons, and the protection of their legal rights and interests, in the realization of these functions, applying the principle of due process of law. A. General Introduction I. Purpose and content of art. 1 Art. 1 describes the purposes of the whole CAP in order to give a kind of guideline to the public bodies and other public entities how to apply administrative law and how to proceed in administrative matters within the scope of the CAP as defined in art. 2. The purposes are not enumerated clearly and entirely and must be amended by the constitutional principles which provide guidelines for all entities exercising public power in Albania. As stated in art. 4 para. 3 of the Albanian Constitution its principles are applicably directly. Moreover, the purposes must be seen on the background of European principles concerning administration. 1. Rule of Law, Legality Principle As stated in art. 4 para. 1 of the Albanian Constitution and in art. 4 as well the law constitutes the basis and the boundaries of all activities of the state which means all activities of public bodies and other entities. That means that - all activities of public entities, especially public bodies must be in alignment with the law - the provisions of the law must be executed in order to fulfil the legal requirements - all affections of subjective rights or legal interests must be based on the lawn (art. 4 para. 2). 2. Protection of subjective rights and legal interests As stated in art. 1 the protection of the legal rights and interests of persons is one of the main principles and purposes of the CAP. As defined in art. 3 para. 7 lit. 8 person is any natural person, legal entity or subject of law under the legislation in force. The administrative procedures must be conducted in a way that subjective rights and legal interests of all persons involved are respected and protected. The rights and legal interests comprises the fundamental human rights and freedoms as stipulated in art. 15 ff. of the Albanian Constitution and moreover all rights and legal interests granted by special law. 3. Effective fulfilment of administrative functions Art. 1 emphasizes the purpose of effective realisation of the administrative functions. These functions can be derived primarily from the rule of law: The precise and complete execution of the requirements and provisions of the law must be seen as the most important function of the administrative organs. Moreover it belongs to the function to protect and promote both the public interests and the subjective rights and legal interests of the persons. To promote and protect these interests mean to fulfil and execute the legal duties in an efficient, economical, fair and proper way as fast as possible. 4. Principle of due legal process It is a main purpose of the CAP to implement the requirements of the rule of law by providing legal procedures to ensure the impartial execution and application of the law, the participation of the persons affected, transparency of the decision processes and to fight tendencies of corruption. These aims must be pursued not 8 Legal Commentary by SIGMA on the Code of Administrative Procedures of the Republic of Albania only by executing material law but also by providing specific procedural requirements and by providing effective remedies to protect the individual rights and legal interests of affected persons. II. Constitution and EU-Law As already mentioned before, the principles stated in art. 1 are entirely based on the Albanian Constitution which comprises the principles mentioned before. As most important principles must be emphasized the rule of law and the protection of the rights and legal interests of the persons. Art. 41 of the European Charta of fundamental rights comprises the right to good administration which comprises all principles listed in art. 1 and all others mentioned before. It must be seen as a main element of the acquis communautaire” to have implemented procedural regulations in order to achieve the purposes of good administration. III. Scope of the norm The purpose stated in art. 1 is of relevance for the implementation of the entire CAP. The scope of the CAP is legally defined in art. 2. IV. Relation to previous CAP It must be assumed that the same purposes have been pursued even by the previous CAP. Article 2 Scope of application 1. This Code shall apply in cases where a public body, during the exercise of the administrative powers regulated by administrative law: a) decides on the rights, duties and legal interest of persons, and in any other case, when the law explicitly provides for the issuance of an administrative act; b) concludes an administrative contract or performs another administrative action, which concerns the rights, duties and legal interests of persons. 2. The provisions of this Code shall also apply in cases where: a) public or private legal entities exercising self-regulatory functions in the area of regulated professions, established by law, or being conferred the right to exercise such functions, in line with letter a) of paragraph 1 of this Article, as per the legislation in force; b) private persons who are conferred the right to exercise public functions, duties, or competencies, decide in line with letter a) of paragraph 1 of this Article; c) public or private legal entities, which provide public services, decide on the rights and duties of the service users. In cases provided in paragraph 2 of this Article, every provision of this Code related to the public body shall apply also to the public or private entity or person. 3. The principles stipulated in this Code shall apply as appropriate also to the normative sub- legal acts. A. General Introduction I. Purpose and content of art. 2 This article describes the scope of the whole law and is therefore most importance. No regulation of the CAP must be applied unless the case is comprised by the scope of the law in accordance with art. 2. While the scope of para. 1 is classical the extension stipulated in para. 2 is without models. The latter is to extent the scope of the CAP to specific activities of entities which do not fulfil the preconditions of para. 1 either because they are no public bodies or because they don’t exercise public law. 9

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other three pillars of a Rule-of-Law-based public administration are: a clearly of good administration more concrete, the Code helps to encourage the purpose wide enough to accommodate current forms personal identification.
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