This volume, entitled Hungarian Public Administration and Administrative Law, serves to fill a long-standing void in the history of Hungarian administrative science, attempting to offer a complete introduction to Hungarian public administration in the English language, focusing upon each of its relevant aspects, such as the traditional characteristics of Hungarian public policy, the constitutional basis of public administration, organization and personnel, as well as the characteristics of administrative science.
This volume has been written with non-Hungarian readers in mind, in order to suit their special needs. Thus, the discussion of each topic goes beyond the traditional, descriptive presentation of the subject matter, offering references to relevant literature in foreign languages, as well. This volume is the joint work of the L?rincz Lajos Public Law Research Group of the Károli Gáspár University of the Reformed Church in Hungary and the National University of Public Service.
Contents
Foreword 21
Editors’ Preface 23
List of Abbreviations 24
List of Cases 27
PART I.
INTRODUCTION
1. Introduction 33
PART II.
Administrative sciences in Hungary
1. The Science of Public Administration, and the Study of Administrative
Law in Hungary 163
2. Some features of the foreign language literature of Hungarian public administration in the past quarter century 181
PART III.
PUBLIC ADMINISTRATION’S LEGAL GROUNDINGS AND EXTERNAL CONNECTIONS WITHIN HUNGARY
1. The constitutional basis of Hungarian public administration 203
2. Administrative justice in Hungary 219
3. Public administration and the Posecution service 229
4. The Ombudsman 242
5. The relationship between civil organisations and public administration in Hungary 252
PART IV.
INSTITUTIONAL SYSTEM OF HUNGARIAN PUBLIC ADMINISTRATION
1. Central adminitration 287
2, Territorial public administration 304
3. Local self-governments 320
4. Minority self-governments in Hungary 350
PART V.
FINANCIAL AND ORGANISATIONAL ASPECTS
1. Public finances in Hungary 368
2. Tasks and powers of the Hungarian public administration resulting
from EU membership 386
3. Public services 402
PART VI.
PROCEDURAL LAW AND E-GOVERNMENT
1. Act on administrative proceedings 419
2. Administrative sanctions: sanctioning power of public administration 446
3. E-government, infocommunication 478
PART VII.
CIVIL SERVICE
1. The Civil Service System in Hungary 501
Indexes 521
English – Hungarian Vocabulary 534
Hungarian – English Vocabulary 541
Editors and Authors of the Book 548
Detailed Table of Contents
Foreword 21
Editors’ Preface 23
List of Abbreviations 24
List of Cases 27
PART I.
INTRODUCTION 31
INTRODUCTION 33
1. Possibilities of the scientific analysis of Hungarian public administration 33
1.1. The significance of jurisprudential approaches 33
1.2. The significance of inter- and multidisciplinarity in administrative research 35
1.3. Beyond multi- and interdisciplinarity: new approach of social sciences 38
1.3.1. Strengthening of the natural law approach 39
2. The effect of the science of public administration on the itemised
regulations and practice of public administration 41
3. Traditional features of Hungarian public administration 42
3.1. Introduction 42
3.2. The traditional features of Hungarian public administration in public policy approach 43
3.3. Traditional features of Hungarian public administration 47
4. Effects on Hungarian public administration 48
4.1. Introduction 48
4.2. Heritage of the past 48
4.2.1. Heritage of the far past 48
4.2.2. The heritage of state socialism 52
4.2.2.1. The revival of the solutions of state socialism – mistake or necessity? 53
4.2.3. Heritage and consequences of the transition of 1989 56
5. External effects and patterns 57
5.1. Introduction 57
5.2. Possibilities and effects of ‘external’ models 59
5.3. General expectations towards the state 61
5.3.1. The first question: type of the state 61
5.3.2. Determinative directions. NPM and its rivals in the reflection
of Hungarian science and practice 66
6. The Future, as an important factor affecting public administration.
The idea of Hungarian public administration as being directed by certain
facts of objective reality. 71
7. (Changes of) the norm types of public administration 72
7.1. Sources of Hungarian administrative law 72
7.2. The notion of administrative law and its place in the legal system 75
7.3. Features of the administrative norm and its relationship with other
social norms 75
7.3.1. Traditional features of the administrative norm 75
7.3.2. On the relationship of legal and other types of norms 76
7.4. Some features of legislation 79
7.4.1. New rules on legislation 81
8. Content of the notion of public administration and its fine tuning 82
8.1. Introduction 82
8.2. The notion of Hungarian public administration 87
8.3. The concept of European public administration 90
9. The transformation of Hungarian public administration 91
9.1. Introduction 91
9.2. The transformation of state administration 93
9.2.1. Central public administration and its transformation 94
9.2.2. The transformation of regional-local state administration in Hungary 97
9.2.2.1. Government offices 97
9.2.2.1.1. Establishment of districts 99
9.3. Transformation of the system of local governments 102
9.4. Main theoretical issues and practical approaches of the organisation
of public services 106
9.4.1. Transformation of the global environment of public services 106
9.4.2. Notion of public service 108
9.4.3. Practical developments in Hungary 109
9.4.3.1. General approaches to the provision of public services 109
9.4.3.2 Changes in certain areas of service provision 110
9.5. Civil service 118
10. Principles of public administration 121
10.1. Introduction to the principles of public administration 121
10.2. Definition of principle 122
10.2.1. Relationship of basic principles and legal principles 122
10.3. Types of basic principles 123
10.3.1. Main basic principles of today’s Hungarian public administration 125
11. Change of features and weight of principles of the organisation of public administration and of administrative competences 154
11.1. Introduction 154
11.2. Changes in today’s Hungary 155
11.2.1. The principle of subsidiarity 158
PART II.
ADMINISTRATIVE SCIENCES IN HUNGARY 161
THE SCIENCE OF PUBLIC ADMINISTRATION, AND THE STUDY OF ADMINISTRATIVE LAW
IN HUNGARY 163
Introduction 163
1. Heritage and Tradition of the Past 163
2. The path searching period: from 1990 until nowadays 165
3. Professional Infrastructure 167
4. Education of public administration and the science of public administration 170
5. Topics, methods, results 172
6. Summary 176
SOME FEATURES OF THE FOREIGN LANGUAGE LITERATURE OF HUNGARIAN PUBLIC ADMINISTRATION IN THE PAST QUARTER CENTURY 181
1. Introduction 181
2. Main features 183
2.1. Basic peculiarities of the use of language 183
2.2. Some features of foreign language works, with special attention
to the analysed topics 186
2.3. Works prepared within international cooperation 194
2.4. The authors – who cite and who are cited 195
3. Closing remarks 198
PART III.
PUBLIC ADMINISTRATION’S LEGAL GROUNDINGS AND EXTERNAL CONNECTIONS WITHIN HUNGARY 201
THE CONSTITUTIONAL BASIS OF THE HUNGARIAN PUBLIC ADMINISTRATION 203
Introduction 203
1. The effective judicial control over the functioning of the public
administration in Hungary 205
1.1. The subordination of public administration to law as a requirement
deriving from the rule of law 205
1.2. A fundamental right to a fair official administration 207
1.3. Right to a court hearing 208
1.4. The authorities’ obligation of reasoning in the Fundamental Law 208
1.5. The constitutional principle of public authority liability 209
1.6. The judicial review of administrative orders by the Constitution and the Fundamental Law 209
1.7. The constitutional guarantees of public administrative procedure 212
1.8. A new legal remedy on the constitutionality of the authority’s application
of law: the constitutional complaint 214
2. The (constitutional) court control in the legislation of the public
administration 215
ADMINISTRATIVE JUSTICE IN HUNGARY 219
Introduction 219
1. Who reviews administrative acts? 220
1.1. Competent Bodies 220
1.2. Rules governing Competent Bodies 221
1.3. Internal organization and composition of competent bodies 221
1.4. Judges 221
1.5. Role of Competent Bodies 222
1.6. Allocation of Duties and Relationship between Competent Bodies 223
2. How are administrative acts and actions reviewed by the Courts? 223
2.1. Access to Justice 223
2.2. Main Trial 224
2.3. Judgement 225
2.4. Effects of decisions and execution of judgement 226
2.5. Remedies 226
2.6. Emergency Proceedings and summary jurisdiction/application
for interim relief 227
3. Can administrative disputes be settled by non-judicial Bodies? 227
4. Administration of Justice and Statistic Data 227
4.1. Financial resources made available for the review of administrative acts 227
4.2. Other Facts and Figures 228
PUBLIC ADMINISTRATION AND THE PROSECUTION SERVICE 229
Introduction 229
1. Role of prosecutors concerning administrative law – history of regulation 232
2. European standards of non-penal role of prosecutors 233
3. Administrative law tasks of Hungarian Prosecution Service until the new Fundamental Law 236
3.1. Historical roots 236
3.2. The socialist prosecution service (prokuratura) 236
3.3. Prosecution Service after transition of the 90’s 237
4. Prosecution and administrative law in the framework of the new
Fundamental Law 239
4.1. Prosecution Service as part of the Judiciary 239
4.2. Non-penal powers and competencies of prosecutors – rules of the
Fundamental Law 240
4.3. The administrative role of prosecutors – rules of the new cardinal act 240
THE OMBUDSMAN 242
1. The position of the ombudsman in the separation of powers 242
2. The origin of the ombudsman 243
3. Models 244
4. Efficiency 245
4.1. The correlation of the efficiency of ombudsmen-actions with the nature
of the institution 245
4.2. Possible fields of activity, where growth of efficiency is expectable 246
5. Ombudsmen in Hungary 247
5.1. Ombudsmen before 2012 247
5.2. The new approach of the Fundamental Law 248
5.3. Novelties of regulation 249
5.4. The ombudsman’s competence of turning to the Constitutional Court 250
6. Conclusions regarding alternative forms of control 251
THE RELATIONSHIP BETWEEN CIVIL ORGANISATIONS AND PUBLIC ADMINISTRATION
IN HUNGARY, WITH SPECIAL REGARD TO THEIR PARTICIPATION IN LEGISLATION 252
1. Introduction 252
2. Civil participation in program making and legislation 255
2.1. General questions of civil participation in program making and legislation 255
2.2. Civil tools in state administration directly influencing the legislator 258
2.2.1. Direct participation in program making and legislation without membership in bodies 258
2.2.2. Participation in program making and legislation through membership
in bodies 264
2.3. Civil tools in local governmental administration which directly influence
the legislator 273
2.3.1. Legal bases of civil participation 273
2.3.2. General questions of the participation of local societies 274
2.3.3. Civil participation in program making and legislation through
membership in bodies 276
2.3.4. Civil cooperation in program making and legislation without
membership in bodies 278
3. Tools influencing the legislator indirectly, through other bodies 282
4. Summary 282
PART IV.
INSTITUTIONAL SYSTEM OF HUNGARIAN PUBLIC
ADMINISTRATION 285
CENTRAL ADMINISTRATION 287
1. Introduction 287
2. The legal framework of central government in Hungary 288
3. The Government 289
3.1. The definition and tasks of the Government 289
3.2. The competences of the Government 290
3.2.1. Law-making 290
3.2.2. Organizational power 290
3.2.3. Competences related to local governments 292
3.2.4. Other competences 292
3.3. The structure of the Government 292
3.3.1. The Government as a body 292
3.3.2. The Prime Minister 293
3.3.3. Government Committees and other consultative bodies 293
3.4. The functioning of the Government 294
3.4.1. The decision-making process of the Government 294
4. The Minister and the Ministry 295
4.1. The Minister as a Member of the Government 295
4.2. The tasks and competences of the Minister 295
4.2.1. Governmental decision-making 295
4.2.2. Law-making 296
4.2.3. Budget and resource management 296
4.2.4. Direction of subordinate bodies 296
4.2.5. Legal supervision 296
4.2.6. Managing sectoral information systems 296
4.2.7. Administrative proceedings 297
4.2.8. Public relations 297
4.3. The structure of Ministries 297
4.3.1. The political elements of the structure 297
4.3.2. The professional elements of the structure 298
5. The non-ministerial central bodies 298
5.1. Central offices 299
5.2. Government offices 299
5.3. Autonomous bodies and autonomous regulatory bodies 300
5.3.1. Guarantees of autonomy 301
5.3.2. The specialities of autonomous regulatory bodies 301
5.3.3. Problems with autonomy in central government 303
TERRITORIAL PUBLIC ADMINISTRATION 304
1. Territorial Public Administration after 1990 304
1.1 Re-establishment of the dual system of local administration 304
1.2 Issue of regionalisation 305
1.3 The concept to regionalise territorial administration 306
1.4. Reform of State Administration in territorial level in 2011 308
2. The current system of territorial administration of the State – an integrated system 309
2.1 Capital and County Government’s Offices 309
2.2 Territorial units of tax administration – the National Tax and Customs Administration 312
2.3. Nonintegrated Organs of State Administration in Territorial Level 313
2.3.1. In the group of county – and capital – based territorial organisations
of the State administration we can find 6 services. All of them have
19 or 20 units in the counties as a general rule. They are as follows: 313
2.3.2. Some of the territorial organs of State Administration follow
the regional division based on NUTS. As a principle these territorial – regional – units can be found in 7 NUTS regions of the level II of the system. Regarding that earlier the NUTS II was the basis
of the territorial division of State Administration only three
services remained by 2014. 315
2.3.3 The third possible territorial framework of operation of the
administration of the State is the particular units of a deconcentrated
organ, meaning that either the county system or the NUTS II regional system does not serve as territorial framework of the operation.
The services of this particular kind are as follows. 315
2.4. Administration of State in Local Level, the Districts 316
LOCAL SELF-GOVERNMENTS 320
1. Introduction and the concept of self-governance and local
self-governments. European standards for local self-governments
and Hungarian regulations 320
2. The constitutional legal status of self-governments in Hungary 322
3. Tasks of the Hungarian local governments 327
3.1. Municipal tasks 328
3.1.1. Obligatory tasks 328
3.1.2. Facultative tasks 328
3.1.3. Alternative tasks 329
3.1.4. The limit of the municipal task performance: the right
of the Government to the completion of a project 330
3.2. Delegated administrative tasks of the officers of the local governments 330
3.3. The provision of municipal public services 331
4. Types of Hungarian local self-governments 332
4.1. Settlement- level local self-governments 332
4.2. County local governments 333
5. The administrative organization of Hungarian local governments 333
5.1. The representative body (assembly) of Hungarian local governments
as strategic decision making body 334
5.1.1. Decisions of the representative bodies 334
5.1.2. Duties and powers of the representative body 335
5.1.3. General rules on the operation of the representative body 336
5.1.3. The beginning and the end of the mandate of the representative
body and the councilors 337
5.4. Inter-municipal associations as organs of the local governments 339
6. Land management in the Act on Local Self-Governments of Hungary 340
6.1. Declaration of a village 341
6.2. Merge of the settlements 341
6.3. Replacement of the parts of the local governments 342
6.4. Towns 342
6.5. Counties and the Capital of Hungary 342
7. The asset and finance of the Hungarian local governments 342
7.1. The asset of the local governments 342
7.2. Finance of local governments 343
7.2.1. Municipal revenues 344
7.2.2. The control of the local government economic management 345
8. Relationship between local governments and state organs,
legal supervision over local governments 345
MINORITY SELF-GOVERNMENTS IN HUNGARY 350
Introduction 350
1. Constitutional bases, legal regulations, international undertakings 351
2. Definition of minority and minority self-government 352
3. Types and establishment of minority self-governments 355
3.1. The role of the census data in the establishment of minority
self-governments 356
3.2. Transformed minority self-government 356
4. Rights and obligations of minority self-governments 357
5. Tasks and competences of minority self-governments 357
5.1. Tasks and competences of the local minority self-governments 358
5.2. Tasks and competences of national minority self-governments 359
6. Financing system of minority self-governments 361
7. Relationship with the local government 362
8. Conclusion 362
PART V.
FINANCIAL AND ORGANISATIONAL ASPECTS 365
PUBLIC FINANCES IN HUNGARY 367
1. Introduction 367
2. Public financial institutions 368
2.1. Provisions of the Fundamental Law 368
2.1.1. The regulation of the central budget in the Fundamental Law 368
2.1.2. State duties and recompenses 369
2.1.3. National asset 371
2.1.4. Budget support 371
2.1.5. Detailed regulation of public burden sharing 372
2.2. System of public finance. General remarks 372
2.3. The State Budget 373
2.3.1. Final accounts, control 373
2.4. Local self-governments 374
2.4.1. The property of self-governments 374
2.4.2. The budget of the local governments 374
2.4.3. The financial resources of local self-governments 375
2.4.3.1. Own revenues 376
2.4.3.2. State subsidies 376
2.4.3.3. Shared taxes 377
2.5. The Hungarian Tax System 377
2.5.1. Corporate Tax 377
2.5.2. Value added tax 378
2.5.3. Customs duties 378
2.5.4. Personal income tax 378
2.5.4.1. Cafeteria benefit system 379
2.5.5. Social security contribution 379
2.5.6. Rehabilitation Fund Contribution 379
2.5.7. Training Fund Contribution 380
2.5.8. Gift tax, inheritance tax, and other ‘duties’ 380
2.5.8.1. Inheritance tax 380
2.5.8.2. Gift tax 380
2.5.8.3. Registration fees and stamp duties 380
2.5.8.4. Property transfer tax 380
2.5.9. Local Business Tax 381
2.5.10. Other taxes 381
2.6. Public Procurement 381
2.6.1. The prosperous economic and financial effects of the legal
environment of the new public procurement. 381
TASKS AND POWERS OF THE HUNGARIAN PUBLIC ADMINISTRATION RESULTING FROM EU MEMBERSHIP 386
1. Introduction – the phenomenon of a ‘European Public Administration’ 386
2. The coordination of EU affairs in Hungary 389
3. Changes in the territorial level state administration due to EU membership 392
4. The implementation of the EU Cohesion Policy in Hungary 393
5. The implementation of the Common Agricultural Policy
of the EU in Hungary 398
PUBLIC SERVICES 402
1. The definition of public services 402
2. The classification of public services 402
3. The organs responsible for public services 406
4. The organization of public services 409
5. Changes in the provision of public services in the light
of the regulation in force 414
PART VI. PROCEDURAL LAW AND E-GOVERNMENT 417
ACT ON ADMINISTRATIVE PROCEEDINGS 419
1. The Significance of Administrative Proceedings 419
2. The Legal History of Administrative Proceedings 420
2.1. The First Codifications of Administrative Proceedings 420
2.2. The Effective Regulations of Administrative Proceedings 422
3. The most important rules of administrative authority proceedings 424
3.1. The legal relations of administrative authority proceedings and the stages
of proceedings 424
3.2. The principles of administrative proceedings 425
3.3. The scope of GRAPS 432
3.4. First instance administrative proceedings 434
3.4.1. Opening the proceeding 434
3.4.2. Most important activities of basic procedure 436
4. Emerge of Administrative Proceedings in Foreign Legal Literature 444
ADMINISTRATIVE SANCTIONS: SANCTIONING POWER OF PUBLIC ADMINISTRATION 446
Introduction – administrative repression in national and supranational aspects 446
1. The evolution of the system of administrative sanctions in the Hungarian
legal system 448
2. Theoretical basics of administrative sanctioning 453
3. European models of administrative sanctioning 455
4. The concept and aims of administrative sanctions in the Hungarian law 457
4.1. Administrative repression 457
4.2. The preventive purpose of the administrative sanction 459
4.3. Reparation, restoration 459
5. The administrative fine 459
5.1. Defining elements 459
5.2. The extent of fine 460
5.3. Principle of proportional fine 460
5.4. Regulation on the extent of fine in Hungary 462
5.5. The aggravating and mitigating factors of fine-setting 462
6. Administrative sanctioning measures 463
7. Personal element of the administrative sanction: ‘Who is to blame for administrative offence by sanction?’ 464
7.1. Natural persons 464
7.2. Special liability of leaders 465
7. 3. Administrative sanctions of corporations 466
8. Culpability criteria of administrative sanctions 467
8.1. In terms of liability classification of legal sanctions to be imposed
on natural persons strict liability sanctions can be distinguished
from subjective liability sanctions. Liability criteria and classification. 468
8.2. Strict liability in administrative sanctions 468
9. The complexity of administrative repression in the legal system 470
9.1. The heterogeneous cumulation 471
9.2. The homogenous substantive cumulation 472
9.3. The homogenous procedural cumulation 472
9.4. The parallel between European Union administrative sanctions and national penal sanctions 473
E-GOVERNMENT, INFOCOMMUNICATION 478
1. Introduction 478
2. The regulatory system of communications governance in Hungary 478
2.1. Liberalisation of the Hungarian communications market 480
2.2 The current regulatory system of communications governance in Hungary 481
2.2.1. Scope of the Electronic Communications Act, the object
and framework of electronic communications law 481
2.2.2. The ‘regulatory authority’ of communications governance:
the National Media and Infocommunications Authority 482
2.2.3. The ex ante sector-specific regulation introduced by the Electronic Communications Act and its legal institutions 484
2.2.4. Conditions for commencing electronic communications activities 485
2.2.5 Individual authorisation powers linked to communications activities 485
2.2.6. Regulation related to subscriber and user interests and rights
and consumer protection 487
3. eGovernment 488
3.1. Actions of the European Union 489
3.1.1. eEurope programmes 489
3.1.2. IDA programmes 491
3.1.3. eGovernment Action Plan 2011–2015 492
3.2. eGovernment in Hungary 493
3.2.1. The definition of electronic administration 493
3.2.2. Electronic documents in authority proceedings 494
3.2.3. Contacting administrative organs 495
3.2.4. The client gate 496
PART VII. CIVIL SERVICE 499
THE CIVIL SERVICE SYSTEM IN HUNGARY 501
Introduction 501
1. General overview 502
2. Major elements of the civil service system 506
3. Analysis 513
IndexesIndex
I. Index of Subjects 521
II. Index of Proper Names 530
III. Index of Institutional Names 531
English – Hungarian Vocabulary 534
Hungarian – English Vocabulary 541
Editors and Authors of the Book 548
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Die Redaktion
Ministerpräsident, Ungarn, Polen;void(0);)
