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Universitatea de stat din Moldova

REPORTThe legislative power in Republic of Moldova

Frunz Cristina

Chiinu,2013

The Parliament is unicameral with 101 members, elected by direct universal
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suffra e! "t n#rmally sits in tw# #rdinary sessi#ns each year$ the first be ins inFebruary and cann#t e%tend bey#nd &uly and the sec#nd be ins in 'e(tember andcann#t e%tend bey#nd )ecember3! *#wever, it d#es have the ca(acity t# sit ine%tra#rdinary #r s(ecial sessi#ns #utside these (eri#ds+!

The Chairman '(ea-er. #f the Parliament, the 'tandin /ureau, and the standinand s(ecial c#mmittees are the central instituti#nal elements in the le islative(r#cess!

The Chairman is elected by an abs#lute ma #rity #f the Ps in secret ball#t f#r theterm #f the Parliament , fr#m candidates (r#(#sed by the rec# nised facti#ns inthe Parliament ! "n additi#n t# e%ercisin si nificant influence, n#t least in chairinthe 'tandin /ureau, the Chairman has f#rmal (#wers in relati#n t# the le islative(r#cess! "t is, f#r instance, the Chairman wh# f#rmally receives and distributes draftlaws and le islative (r#(#sals4, and wh# si ns the laws ad#(ted by Parliament5 andsubmits them t# the President #f the 6e(ublic f#r (r#mul ati#n!

The 'tandin /ureau is c#m(#sed #f the Chairman and )e(uty Chairmen #f theParliament, e% #ffici#, t# ether with re(resentatives #f the rec# nised facti#ns inthe Parliament and the number #f these re(resentatives is (r#(#rti#nal t# thenumber #f (arliamentarians in each facti#n7! 8m#n st its f#rmal functi#ns the'tandin /ureau (r#(#ses, sub ect t# f#rmal (arliamentary a((r#val in each case9the structure #f standin c#mmittees and (resumably the #ther (arliamentaryc#mmittees., the dates #f (arliamentary sessi#ns and the a endas f#r(arliamentary sittin s10! "t als# establishes the (arliamentary (r#cedures f#rc#nsiderin draft le islati#n, includin the manner in which (ublic debates #n draftle islative acts sh#uld be carried #ut11, and c#:#rdinates the activities #f thestandin c#mmittees! 12! The 'tandin /ureau is als# tas-ed with ensurin c#ntr#l#f timely u(datin #f the Parliament;s website with draft le islative acts, a enda,minutes #f (lenary sittin s and #ther inf#rmati#n which is #(en t# the (ublic!

There a((ear t# be currently nine standin c#mmittees #f the Parliament, and eachP #ther than the Chairman #f the Parliament wh# is n#t eli ible. must be elected

as a v#tin member #f #ne but n#t m#re than #ne.1+ #f the standinc#mmittees!1 Ps may attend and (artici(ate in the (r#ceedin s #f standinc#mmittees #f which they are n#t members!1 "n terms #f the le islative (r#cess,standin c#mmittees c#nsider draft (rimary le islati#n and le islative (r#(#salsreferred t# them, and (re(are re(#rts and advis#ry n#tes #n them f#r (lenaryc#nsiderati#n #f the le islati#n14$ they als# draft le islati#n t# im(lementle islative (r#(#sals which have been a((r#ved by Parliament15$ and, inunderta-in these tas-s, they have the ca(acity t# establish w#r-in r#u(s with amembershi( which includes s(ecialists wh# are n#t Ps.17! There is als# aca(acity f#r standin c#mmittees t# h#ld #int sittin s20! The standin c#mmitteesmay als# issue c#nsultative n#tes le islati#n?21!


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"n additi#n t# the standin c#mmittees, the Parliament may als# establish s(ecialc#mmittees t#, inter alia, scrutinise and re(#rt #n draft le islati#n #f reater thanusual c#m(le%ity! These s(ecial c#mmittees (erf#rm the same functi#ns asstandin c#mmittees in this res(ect22$ and, li-e standin c#mmittees, themembershi( #f the s(ecial c#mmittees is (r#(#sed by the 'tandin /ureau and

sub ect t# (arliamentary a((r#val23!

"t may be c#nvenient here t# #bserve that the Parliament is essentially in c#ntr#l #fits #wn bud et! The (arliamentary bud et is (re(ared by the 'tandin /ureau2+,and it includes a s(ecific fund f#r the (re(arati#n #f le islati#n and relatedactivities2 ! The Parliament a((r#ves its #wn annual bud et2 The Chairmanmana es the bud et and re(#rts m#nthly t# the 'tandin /ureau #n its mana 24ement !

"n (r#cedural terms, there are three basic cate #ries #f (rimary le islati#n enactedby Parliament9 le islati#n t# amend the C#nstituti#n25$ #r anic laws, relatin t#

s(ecified sub ects and further sub ects which the Parliament rec#mmends sh#uld bere ulated by #r anic laws27$ and #rdinary laws, which re ulate #ther matters30!@rdinary laws may be enacted by the Parliament after a first readin alth#u hc#mm#nly it is after a sec#nd readin .31$ #r anic laws may #nly be enacted after aminimum #f tw# readin s32$ laws ma-in c#nstituti#nal amendments and #r aniclaws #n the bud et, financial matters, #r which are c#m(le%, im(#rtant #r will incursubstantial (ublic e%(enditure may be iven three readin s bef#re enactment33!

Aaws ma-in c#nstituti#nal amendments reBuire a v#te #f tw#:thirds #f the Ps anabs#lute ma #rity #f tw#:thirds. t# (ass3+$ #r anic laws reBuire a ma #rity #f Ps asim(le abs#lute ma #rity. t# (ass3 $ and #rdinary laws reBuire a v#te #f thema #rity #f Ps in attendance t# (ass3 !

Ae islati#n can be initiated either in the f#rm #f draft le islati#n #r as a le islative(r#(#sal! "n b#th cases they are first c#nsidered by a (arliamentary standinc#mmittee t# which the draft #r (r#(#sal is all#cated by the Chairman hereinafter,referred t# in the 6e(#rt as


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Dhere the draft le islati#n is sub ect t# a sec#nd readin , f#ll#win a further re(#rt#f the c#mmittee #f reference, the sec#nd readin must ta-e (lace within + days#f first readin a((r#val! "t is (#ssible t# submit further amendments t# thec#mmittee within 10 days #f first readin a((r#val! The sec#nd readin debatec#nsists #f the (resentati#n #f the re(#rt #f the c#mmittee #f reference, and

c#nsiderati#n and v#te #n the articles #f the draft, article by article, andamendments t# them, t# ether with thereafter, if c#nsidered necessary, a v#te #nthe draft as wh#le!

8ny draft le islati#n may be enacted ad#(ted. at sec#nd readin sta e, but theParliament may decide that there sh#uld be a third readin #f drafts within thecate #ries indicated ab#ve, and als# where the le islati#n was substantiallyamended at sec#nd readin #r the sec#nd readin amendments w#uld result insubstantial (ublic e%(enditure! The c#mmittee #f reference may then be reBuired t#re(#rt #n the ec#n#mic and financial im(licati#ns #f the amendments and h#w theymay be met, and the #vernment may be as-ed t# submit an advis#ry n#te #n thesame matters!

The debate at third readin is limited t# th#se articles #f the draft le islati#n t#which amendments were made at sec#nd readin and is inf#rmed by the c#mmittee#f reference re(#rt and the #vernment advis#ry n#te! Partici(ati#n in the debate islar ely curtailed t# the facti#ns and individual members wh# (r#(#sed amendmentsat sec#nd readin which were n#t acce(ted by the c#mmittee #f reference!

"f the #utc#me #f the third readin debate substantially m#difies the le islative te%t,it may be referred bac- t# the c#mmittee #f reference f#r editin and (resentati#nf#r the final readin , and this will #ccur with c#m(le% drafts and c#des! The (eri#df#r such editin is set by the Parliament and cann#t e%ceed 30 w#r-in days, withthe e%ce(ti#n #f c#m(le% draft le islati#n and c#des where it may a ma%imum #fthree m#nths! The edited draft le islati#n returns t# a (lenary sessi#n f#r finalenactment ad#(ti#n., and at that sta e n# further amendment is (ermitted, unlesst# rectify a discre(ancy between the a((r#ved third readin te%t and the editedversi#n!

The a((r#val #f the le islative te%t at this (#int is the ad#(ti#n #f the le islati#n byParliament! "t is then si ned by the Chairman #f the Parliament and sent t# thePresident f#r (r#mul ati#n! *#wever, if the President has #b ecti#ns t# any #f its(r#visi#ns, the President may within a tw#:wee- (eri#d refer the le islati#n bac- t#the Parliament t# c#nsider the Presidential #b ecti#ns! The Parliament may acce(tthe #b ecti#ns and amend the le islati#n acc#rdin ly, #r it may ch##se t# maintainthe #ri inal te%t in which case the President is then #bli ed t# (r#mul ate thele islati#n!

8fter (r#mul ati#n, the le islati#n must be (ublished in the #nit#rul @ficial the@fficial azette. and until it is (ublished it cann#t have any le al effect! @nce


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enacted the le islati#n must als# be re istered and rec#rded, and the #ri inal te%tmust be retained in the Parliamentary 8rchive!

'ubseBuently, there is statut#ry reBuirement t# review the machinery f#renf#rcement #f the le islati#n within si% m#nths #f it c#min int# f#rce$ and (rimary

le islati#n enerally is reBuired t# be reviewed and systematised at least every tw#years!

"E"T"8A 'T8 '

Ae islative "nitiative

embers #f Parliament, the President #f the 6e(ublic #f #ld#va, the #vernmentand the Pe#(leGs 8ssembly #f the aut#n#m#us territ#rial:unit #f a auzia all havethe ri ht t# initiate (rimary le islati#n35$ and in the case #f a (r#(#sal t# initiate anamendment #f the C#nstituti#n, the initiative can als# be by a citizen;s (etiti#n37!

The initiative may be in the f#rm #f draft (rimary le islati#n #r, in the case #f thePresident and #f (arliamentarians, where there is c#nsidered t# be a need f#r aran e #f le islati#n in res(ect #f an issue, it may sim(ly be a le islative (r#(#salrather than draft le islati#n+0$ if the (r#(#sal is a((r#ved by the Parliament thedraft le islati#n is usually drafted by a w#r-in r#u( #f a standin c#mmittee+1! 8tleast in res(ect #f (rimary le islati#n initiated by Parliament, there must be a (ri#rwide:ran in investi ati#n #f the c#nte%tual im(licati#ns #f the le islati#n+2 and,similarly, where a standin c#mmittee w#r-in r#u( is draftin (rimary le islati#nin im(lementati#n #f a le islative (r#(#sal it must first c#nduct a similar br#adanalysis #f the im(licati#ns #f the (r#(#sed le islati#n+3! "n each case, thisbac- r#und material must be submitted with the draft le islati#n++!

The Parliament is als# reBuired t# ad#(t a le islative (r# ramme, enc#m(assinnew le islati#n and necessary amendment #f e%istin le islati#n, and the(r# ramme may be amended #n the (r#(#sal #f the initiat#r #f individual draftle islati#n+ !

6e istrati#n and 8ll#cati#n

)raft (rimary le islati#n and le islative (r#(#sals are re istered by (arliamentary#fficials in the #rder that they are submitted+ !

@n re istrati#n, draft (rimary le islati#n submitted in c#m(liance with the Aaw #nthe 6e ulati#n #f Parliament+4 is circulated t# all the standin c#mmittees+5, andall#cated by the Chairman #f the Parliament t# the a((r#(riate standin c#mmitteef#r c#nsiderati#n and re(#rt and, where necessary, it may be als# all#cated t# #theran initiative t# amend the C#nstituti#n may als# be by a third #f the members #fParliament #r by the #vernment9 in all three cases, it can #nly be submitted t#Parliament acc#m(anied by an advis#ry #(ini#n #f the C#nstituti#nal C#urt ad#(tedby at least f#ur #f its si% ud es$ there are als# restricti#ns #n the substance and the


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Dhere the c#mmittee #f reference has under c#nsiderati#n m#re than #ne (iece #fdraft le islati#n re ulatin the same matter in the same manner 1, it is reBuired t#e%amine them individually but may re(#rt that they be inte rated as #ne te%t f#rc#nsiderati#n at the sec#nd readin sta e 2! *#wever, where there is m#re than#ne draft le islative te%t re ulatin a matter but in different ways 3, the c#mmittee

#f reference may (r#(#se that a s(ecified te%t be treated in (lenary sessi#n as the(rinci(al draft and the #thers as alternative drafts +!

@nce the c#mmittee #f reference re(#rts, its re(#rt t# ether with the advis#ryn#tes it has received fr#m #ther standin c#mmittees and the Parliament;s le alstaff is circulated t# Ps and the initiat#rs #f the draft le islati#n ! "t is als#submitted by the c#mmittee #f reference, with additi#nal inf#rmati#n, t# the'tandin /ureau, which determines when the draft le islati#n sh#uld be (laced #nthe a enda f#r a (lenary meetin #f the Parliament 4! )raft (rimary le islati#n isusually (ut #n the a enda within 10 days #f the re(#rt #f the c#mmittee #freference bein received 5! +!+ The (eri#d in which the c#mmittee #f referencehas t# re(#rt may be varied by the 'tandin /ureau 7! "n (articular, the 'tandin/ureau may reduce the (eri#d at the reBuest #f the Prime inister, where the

#vernment c#nsiders a draft law it has initiated is a matter #f (ri#rity40! "f the'tandin /ureau accedes t# that reBuest, the (eri#d f#r the c#mmittee #f referencet# re(#rt must be set at a ma%imum #f 10 w#r-in days and, #nce received, it mustbe (laced #n the a enda f#r the ne%t (lenary sittin 41!

F"6'T 6 8)"E

The first readin debate c#nsists #f a series #f sh#rt s(eeches42! The initiat#r #fthe draft le islati#n (resents the le islati#n43 and als# has a ri ht #f a final which intranslati#n (r#vides


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8ls# at this sta e Parliament decides #n any rec#mmendati#ns #f the c#mmittee #freference #n amal amatin alternative drafts #r treatin #n draft as the (rinci(alte%t and #ther drafts as alternative drafts I as #utlined in (ara ra(h +!2 ab#ve50!

P@'T:F"6'T 6 8)"E F"E8A"'8T"@E @F T JT

Dhere the Parliament decides at the c#nclusi#n #f the first readin that thele islative te%t sim(ly reBuires t# be finalised by the c#mmittee #f reference, theinitiat#rs #f the draft le islati#n are entitled t# attend and (artici(ate in the meetin#f the c#mmittee when this is d#ne51!

P6 :' C@E) 6 8)"E 'T8E)"E C@ "TT C@E'") 68T"@E

8lth#u h this may be a misreadin , it w#uld a((ear, that it is at this sta e that thec#mmittee #f reference c#nsiders the d#cumentati#n which was submitted t# itunder time:limits (ri#r t# its initial (re:first readin c#nsiderati#n #f the draftle islati#n52! Eevertheless, within 10 days after the a((r#val #f the draft le islati#nat first readin , Ps, standin c#mmittees and (arliamentary facti#ns have afurther #((#rtunity t# submit amendments t# the c#mmittee #f reference53! Thec#mmittee #f reference must re(#rt #n its c#nsiderati#n #f these materials withinthe timeframe f#r the sec#nd readin in (lenary sessi#n see (ara ra(h 5!1.!

' C@E) 6 8)"E

8s (revi#usly indicated, tw# readin s are the n#rm f#r le islati#n and mandat#ry f#r#r anic laws$ and the sec#nd readin must ta-e (lace within + days #f the firstreadin a((r#val5+!

8t the sec#nd readin debate, the re(#rt #f the c#mmittee #f reference is(resented, and the draft le islati#n is c#nsidered and v#ted #n article by article,t# ether with amendments t# each article, and a v#te may then be ta-en #n thewh#le draft5 ! @ral amendments relatin t# le islative techniBue and lan ua e are(ermitted durin the debate, t# which the c#mmittee #f reference ra((#rteur mayres(#nd5 !

#vernment re(resentatives may als# (artici(ate in the sec#nd readin debate54!

'T8E)"E C@ "TT C@E'") 68T"@E P6"@6 T@ T*"6) 6 8)"E 55

8s indicated earlier, Parliament may decide #n a third readin #f laws ma-inc#nstituti#nal amendments and #r anic laws #n the bud et, financial matters, #rwhich are c#m(le%, im(#rtant #r will incur substantial (ublic e%(enditure may be

iven three readin s bef#re enactment57! "t may als# decide t# ive a third readint# draft le islati#n which was substantially amended at sec#nd readin #r where thesec#nd readin amendments w#uld result in substantial (ublic e%(enditure70!

The c#mmittee #f reference may be reBuested t# re(#rt within three wee-s #n the


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ec#n#mic and financial im(licati#ns #f sec#nd readin amendments and h#w theymi ht be met! The #vernment may als# be reBuested t# submit an advis#ry n#te#n these matters within the same timeframe71!

T*"6) 6 8)"E

The debate at third readin is limited t# th#se articles #f the draft le islati#n t#which amendments were (r#(#sed f#r sec#nd readin 72 the re(#rt #f thec#mmittee #f reference and the advis#ry n#te #f the #vernment! Partici(ati#n inthe debate is lar ely limited t# a re(resentative #f each (arliamentary facti#nwhich, and the (r#cedure f#r debate enerally, and c#nsiderati#n #f, and v#tin #n,individual articles and individual Ps wh#, (r#(#sed a sec#nd readin amendmentand which was n#t acce(ted by the c#mmittee #f reference in its re(#rt73!

"f the #utc#me #f the third readin debate substantially m#difies the le islativete%t, it may be referred bac- t# the c#mmittee #f reference f#r editin and

(resentati#n f#r the final readin , and this will #ccur with c#m(le% drafts andc#des7+! The (eri#d f#r such editin is set by the Parliament and cann#t e%ceed 30w#r-in days, with the e%ce(ti#n #f c#m(le% draft le islati#n and c#des where itmay be a ma%imum #f three m#nths7 !

The edited draft le islati#n returns t# a (lenary sessi#n f#r final enactmentad#(ti#n., and at that sta e n# further amendment is (ermitted, unless there is a

discre(ancy between the a((r#ved third readin te%t and the edited versi#n7 !

F"E8A 'T8 '

'i nature #f Chairman

@nce enacted ad#(ted. by the Parliament, the le islati#n must be si ned by theChairman #f the Parliament #r, in certain cases by a )e(uty Chairman. within 20days #f its ad#(ti#n74, and by the ne%t w#r-in day f#ll#win its si nature at thelatest, the Chairman #r a )e(uty Chairman. must send it t# the President #f the6e(ublic f#r (r#mul ati#n75!

Pr#mul ati#n

"f the President has an #b ecti#n t# the law as enacted ad#(ted., the President, #n#ne #ccasi#n #nly77 and within tw# wee-s #f receivin it, may refer it bac- t# the

Parliament f#r rec#nsiderati#n #f the basis #f the #b ecti#n100! "f the Parliamentu(h#lds the #ri inal te%t #f the le islati#n #r amends it t# acc#mm#date thePresidential #b ecti#n, then the President is #bli ed t# (r#mul ate it within tw#wee-s101! "f, havin c#nsidered the President;s #b ecti#ns, the Parliament fails t#u(h#ld the law, it is treated as re ected102!

Primary le islati#n is numbered when it is ad#(ted10 and the #ri inals must be(ermanently retained in the Parliamentary 8rchives10 ! ach (iece #f (rimary


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le islati#n is, in additi#n, the sub ect #f multi(le re istrati#n and rec#rdin ! "t isreBuired t# be re istered in the 'tate 6e ister #f 8cts and als# in the 'tate 6e ister#f Ae al 8cts104! 8 rec#rd #f (rimary le islati#n is reBuired t# be maintained by theParliament in several f#rmats.105 and als# by the inistry #f &ustice107!

"t may be #bserved in (assin that these rather elab#rate arran ements d# n#t e%facie s(ecifically and definitively address s#me (ractical Buesti#ns9 where anenacted te%t is dis(uted, which te%t is t# be treated as the definitive te%t

(resumably the archived #ri inalK.K which re istrati#n #r rec#rd ta-es (recedenceand in what circumstancesK ! C@E' LM EC ' @F 6 & CT"@E @F )68FTA "'A8T"@E

Msually draft le islati#n re ected by the Parliament cann#t be reintr#duced in thesame sessi#n110!

P@'T: E8CT ET P6@C )M6 '

nf#rcement #f Ae islati#n

The final and transiti#nal (r#visi#ns #f le islati#n are reBuired t# include necessary(r#visi#ns f#r (r#vidin that the law is enf#rced and a((lied111! E#rmally(arliamentary c#nsiderati#n #f these matters is by the a((r#(riate standinc#mmittee which ma-es rec#mmendati#ns #n enf#rcement t# the #vernment and#ther relevant (ublic b#dies, and re(#rts t# Parliament, usually within m#nths #fthe le islati#n c#min int# f#rce, but a different (eri#d may be s(ecified in thele islati#n itself112!

6eview #f Ae islati#n

There is a statut#ry #bli ati#n t# review le islati#n at least every tw# years t#determine whether, in br#ad terms, individual (ieces #f le islati#n are effectivelyachievin their #b ectives, and als# t# systematise statut#ry (r#visi#ns enerallyand where a((r#(riate c#ns#lidate and c#dify them113!


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