Challenges in exercising the right to appeal – the case of Slovenian administrative consultation

Kovač, Polonca (author)

Purpose: The article aims to identify systemic challenges in Slovenian administrative practice arising from an inadequately regulated right to appeal under the General Administrative Procedure Act (GAPA). For this purpose, an analysis of Administrative Consultation (AC), a legal clinic operating since 2009, was conducted. The study includes analyses of the content, complexity, and reasoning behind the occurring dilemmas as a ground for GAPA recodification. Design/Methodology/Approach: Considering the nature of the topic in the scope of administrative law, a combined qualitative approach is applied, including normative and dogmatic methods, literature analysis, case law review, basic statistics, and axiological method. Empirical research is based on over one hundred cases with questions and answers regarding GAPA interpretation in administrative practice. Findings: Administrative appeal serves multiple functions, from protecting the rights of the parties to ensuring consistent sector-specific legislation implementation. The analysis identifies systemic issues, such as: standing to file an appeal (especially for other affected persons or authorities), grounds for appeal, competence regarding appellate decisions, determining when the first-instance body can handle an appeal and when devolution is necessary, alternative dispute resolution in appeals, deadlines for lodging and deciding on appeals, and the possibility of waiving the right to appeal. In addition, the (lack of) options for digitalised proceedings is notable. These insights serve as an empirical basis GAPA recodification. Academic Contribution to the Field: The article offers a regulatory and doctrinal analysis of the relevant legal provisions (including EU law, the Slovenian Constitution, and the GAPA) focusing on the aims, locus standi, time limits, grounds, and other elements of appeals. It also explores the key findings from Slovenian case law on administrative disputes regarding appeals, as reflected in decisions by the Supreme and Administrative Courts as well as in administrative practice. Research/Practical/Social Implications: The article provides a concise overview of the relevant literature and an analysis of the rules that underpin the implementation, evaluation, and improvement of GAPA as regards the right to appeal. Based on these insights, it proposes de lege ferenda solutions for a clearer GAPA. The findings can serve as a foundation for data-based decision-making. Originality/Value: The article brings forward the study of AC as a source for systemic overview of problems in the field. With more than a hundred cases from the past 15 years analysed, it offers an objective insight into recurring dilemmas in administrative practice. The approach to identifying key challenges is consistent through the use of established and combined social sciences research methods.

• Language: English
• Keywords: administrative procedural law, Administrative Consultation, right to appeal, GAPA codification, Slovenia
• Work type: Article
• Typology: 1.01 - Original Scientific Article
• Organization: FU - Faculty of Administration
• Publication status: Published
• Publication version: Version of Record
• Publication date: 01.11.2024
• Year: 2024
• Number of pages: Str. 255-252, 261-262
• Numbering: Vol. 22, no. 2
• PID: 20.500.12556/RUL-165646
• UDC: 342.9:347.92(497.4)
• ISSN on article: 2591-2240
• DOI: 10.17573/cepar.2024.2.11
• COBISS.SI-ID: 218388739
• Publication date in RUL: 11.12.2024

Record is a part of a journal

• Title: Central European public administration review
• Shortened title: CEPAR
• Publisher: Fakulteta za upravo
• ISSN: 2591-2240
• COBISS.SI-ID: 293849600

Licences

• License: CC BY-SA 4.0, Creative Commons Attribution-ShareAlike 4.0 International
• Link: http://creativecommons.org/licenses/by-sa/4.0/
• Description: This Creative Commons license is very similar to the regular Attribution license, but requires the release of all derivative works under this same license.

Secondary language

• Language: Slovenian
• Title: Izzivi pri uresničevanju pravice do pritožbe – primer Upravne svetovalnice

Abstract

Namen: Prispevek proučuje sistemske izzive v slovenski upravni praksi, ki izhajajo iz neustrezno urejene pravice do pritožbe po Zakonu o splošnem upravnem postopku (ZUP). V ta namen je bila opravljena analiza Upravne svetovalnice, ki deluje od leta 2009. Študija vključuje analizo vsebine, kompleksnosti in utemeljenosti ponavljajočih se dilem kot podlage za novo kodifikacijo ZUP. Zasnova/metodologija/pristop: Glede na naravo teme je uporabljen kombiniran kvalitativni pristop, ki vključuje normativne in dogmatične metode, analizo literature, pregled sodne prakse in statističnih podatkov ter aksiološko metodo. Empirična raziskava temelji na več kot sto primerih z vprašanji in odgovori v zvezi z razlago ZUP v upravni praksi. Ugotovitve: Upravna pritožba služi več namenom, od varstva pravic strank do zagotavljanja doslednega izvajanja področne zakonodaje. Opravljena analiza opredeljuje sistemska vprašanja, kot so: pravni interes za vložitev pritožbe (zlasti za druge prizadete osebe ali organe), pritožbeni razlogi, pristojnost glede pritožbenih odločitev, določitev, kdaj lahko pritožbo obravnava prvostopenjski organ in kdaj je potrebna devolucija, alternativno reševanje sporov v pritožbah, roki za vložitev pritožbe in odločanje o njej ter možnost odpovedi pravici do pritožbe. Obravnavane so tudi (pomanjkljive) možnosti za digitalizirane postopke. Ta spoznanja služijo kot empirična podlaga za ponovno kodifikacijo ZUP. Akademski doprinos k znanosti: Prispevek ponuja normativno in doktrinarno analizo relevantnih pravnih določb (vključno s pravom EU, slovensko ustavo in ZUP) s poudarkom na ciljih, pravnem interesu, rokih, razlogih in drugih elementih pritožbe. Obenem proučuje ugotovitve iz slovenske sodne prakse v upravnih sporih v zvezi s pritožbami, ki se odražajo v odločitvah vrhovnega in upravnega sodišča ter v upravni praksi. Raziskovalne/praktične/družbene posledice: Prispevek prinaša strnjen pregled relevantne literature in analizo pravil za izvajanje, oceno in izboljšanje določb ZUP v zvezi s pravico do pritožbe. Na podlagi teh spoznanj predlaga de lege ferenda rešitve za jasnejši ZUP. Ugotovitve lahko služijo kot osnova za odločanje na podlagi podatkov. Izvirnost/vrednost: Analiza primerov Upravne svetovalnice lahko služi kot vir za sistemski pregled problemov na tem področju. Z več kot sto analiziranimi primeri iz zadnjih 15 let ponuja objektiven vpogled v ponavljajoče se dileme v upravni praksi. Ključni izzivi so prepoznani z uporabo uveljavljenih in kombiniranih družboslovnih raziskovalnih metod.

• Keywords: upravno procesno pravo, Upravna svetovalnica, pravica do pritožbe, kodifikacija ZUP, Slovenija

Projects

• Funder: ARIS - Slovenian Research and Innovation Agency
• Project number: P5-0093-2019
• Name: Razvoj sistema učinkovite in uspešne javne uprave

• Funder: ARIS - Slovenian Research and Innovation Agency
• Project number: V5-2383-2023
• Name: Teoretični in praktični vidiki modernizacije upravnega postopka v Sloveniji