Instituto de Estudios Políticos y Derecho Público "Dr. Humberto J. La Roche"
de la Facultad de Ciencias Jurídicas y Políticas de la Universidad del Zulia
Maracaibo, Venezuela
Esta publicación cientíca en formato digital es continuidad de la revista impresa
ISSN-Versión Impresa 0798-1406 / ISSN-Versión on line 2542-3185Depósito legal pp
197402ZU34
ppi 201502ZU4645
Vol.41 N° 77
Abril
Junio
2023
Recibido el 02/03/23 Aprbado el 24/04/23
ISSN 0798- 1406 ~ De pó si to le gal pp 198502ZU132
Cues tio nes Po lí ti cas
La re vis ta Cues tio nes Po lí ti cas, es una pu bli ca ción aus pi cia da por el Ins ti tu to
de Es tu dios Po lí ti cos y De re cho Pú bli co “Dr. Hum ber to J. La Ro che” (IEPDP) de la Fa-
cul tad de Cien cias Ju rí di cas y Po lí ti cas de la Uni ver si dad del Zu lia.
En tre sus ob je ti vos fi gu ran: con tri buir con el pro gre so cien tí fi co de las Cien cias
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ti ga do res; es ti mu lar la in ves ti ga ción en es tas áreas del sa ber; y pro pi ciar la pre sen ta-
ción, dis cu sión y con fron ta ción de las ideas y avan ces cien tí fi cos con com pro mi so so cial.
Cues tio nes Po lí ti cas apa re ce dos ve ces al año y pu bli ca tra ba jos ori gi na les con
avan ces o re sul ta dos de in ves ti ga ción en las áreas de Cien cia Po lí ti ca y De re cho Pú bli-
co, los cua les son so me ti dos a la con si de ra ción de ár bi tros ca li fi ca dos.
ESTA PU BLI CA CIÓN APA RE CE RE SE ÑA DA, EN TRE OTROS ÍN DI CES, EN
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nes Cien tí fi cas y Tec no ló gi cas Ve ne zo la nas del FO NA CIT, La tin dex.
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Eduviges Morales Villalobos
Fabiola Tavares Duarte
Ma ría Eu ge nia Soto Hernández
Nila Leal González
Carmen Pérez Baralt
Co mi té Ase sor
Pedro Bracho Grand
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Joan López Urdaneta y Nil da Ma rín
Re vis ta Cues tio nes Po lí ti cas. Av. Gua ji ra. Uni ver si dad del Zu lia. Nú cleo Hu ma nís ti co. Fa-
cul tad de Cien cias Ju rí di cas y Po lí ti cas. Ins ti tu to de Es tu dios Po lí ti cos y De re cho Pú bli co
“Dr. Hum ber to J. La Ro che”. Ma ra cai bo, Ve ne zue la. E- mail: cues tio nes po li ti cas@gmail.
com ~ loi chi ri nos por til lo@gmail.com. Te le fax: 58- 0261- 4127018.
Vol. 41, Nº 77 (2023), 584-595
IEPDP-Facultad de Ciencias Jurídicas y Políticas - LUZ
Public control over the activities of the
State Bureau of Investigation:
A comparative analysis
DOI: https://doi.org/10.46398/cuestpol.4177.39
Оlena Gulak *
Andrii Halai **
Iuliia Iarmolenko ***
Oleksandr Spodynskyi ****
Nataliia Kapitanenko *****
Abstract
The purpose of this work was to analyze the adequate level of
legal support for the implementation of public control over the
activities of the State Investigation Bureau through the activities
of the Public Control Council. To achieve the objective, general
scientic and special scientic methods of cognition were
used simultaneously, in particular dialectical, logical-formal, analysis
and synthesis, systemic-structural, legal-comparative, legal-formal and
prognostic. On the basis of a comparative analysis of the legal regulation
of the issues of formation and activity of the Public Control Councils in a
number of newly created law enforcement bodies, a system of blocks was
highlighted, which were the subject of analysis, namely: 1) control over
the activity of the body; 2) powers of the Public Control Council; 3) the
name of the main area of activity of the Public Council; 4) the object of
approval of the Regulations of the Public Council. Everything allowed to
conclude which are the «bad» normative constructions, the contradictory
norms in the related normative acts and to locate the need for unication
of approaches according to the identied structural blocks, which were the
object of analysis. In addition, attention is focused on those directions that
require further scientic analysis and regulatory optimization.
Keywords: law and policy; public control; law enforcement agencies;
state research oce; comparative law.
* National University of Life and Environmental Sciences of Ukraine, Kyiv, Ukraine. ORCID ID: https://
orcid.org/0000-0001-9004-0185
** Department on criminal punishments execution of Ukraine, Kyiv, Ukraine. ORCID ID: https://orcid.
org/0000-0002-8184-6336
*** Bila Tserkva National Agrarian University, Ukraine. ORCID ID: https://orcid.org/0000-0002-8818-
9025
**** Lviv State University of Internal Aairs Lviv, Ukraine. ORCID ID: https://orcid.org/0000-0001-
7583-8033
***** Dnipropetrovsk State University of Internal Aairs, Ukraine. ORCID ID: https://orcid.org/0000-
0002-1475-5784
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CUESTIONES POLÍTICAS
Vol. 41 Nº 77 (2023): 584-595
El control público de las actividades de la Ocina
Estatal de Investigación: Un análisis comparativo
Resumen
El propósito de este trabajo fue analizar el nivel adecuado de respaldo
legal para la implementación del control público, sobre las actividades del
Negociado Estatal de Investigación a través de las actividades del Consejo
de Control Público. Para lograr el objetivo, se utilizaron simultáneamente
métodos cientícos generales y cientícos especiales de cognición,
en particular dialéctico, lógico-formal, análisis y síntesis, sistémico-
estructural, legal-comparativo, legal-formal y pronóstico. Sobre la base de
un análisis comparativo de la regulación legal de las cuestiones de formación
y actividad de los Consejos de Control Público en una serie de cuerpos de
seguridad de nueva creación, se destacó un sistema de bloques, que fueron
objeto de análisis, a saber: 1) control sobre la actividad del cuerpo; 2)
facultades del Consejo de Control Público; 3) el nombre del área principal
de actividad del Consejo Público; 4) el objeto de aprobación del Reglamento
del Consejo Público. Todo permitió concluir cuales son las construcciones
normativas «malas», las normas contradictorias en los actos normativos
relacionados y ubicar la necesidad de unicación de enfoques según los
bloques estructurales que sean identicado, que fueron objeto de análisis.
Además, se centra la atención en aquellas direcciones que requieren mayor
análisis cientíco y optimización regulatoria.
Palabras clave: derecho y política; control público; organismos
encargados de hacer cumplir la ley; ocina estatal de
investigación; derecho comparado.
Introduction
The role of the public and normatively regulated public organizations
is currently considered extremely important. In addition, precisely those
that have the maximum legitimacy and are mandatory in the activity of the
system of new law enforcement agencies of Ukraine received quite powerful
powers from the lawmaker. However, it is important to clearly enshrine
them in domestic legislation, because, as the research shows, sometimes
such powers are not clearly specied at the regulatory level.
Thus, it is the controlling role of the public over the activities, in particular,
of bodies that currently perform both preventive and countermeasure
functions in the eld of oenses committed primarily by ocials with
signicant public powers and civil servants, is quite signicant and largely
depends on the level of its implementation and the level of eciency of such
state law enforcement institutions depends.
586
Оlena Gulak, Andrii Halai, Iuliia Iarmolenko, Oleksandr Spodynskyi y Nataliia Kapitanenko
Public control over the activities of the State Bureau of Investigation: A comparative analysis
At a time when the state of Ukraine was subjected to large-scale military
aggression from a neighboring country, during the year Ukrainians
courageously defended their land precisely thanks to the self-organization
of civil society in its various manifestations, which, in fact, is what most
experts emphasize. And it was the public that became the driving force that
caused the cohesion and stability of public institutions in the “face” of the
military threat.
At the same time, the legal status of Public Councils/Public Control
Councils over the activities of newly created state institutions is not
clearly dened. In particular, at the beginning of January 2023, the new
composition of the High Council of Justice, when approving the Project of
the State Anti-corruption Program for 2023-2025 (for the implementation
of the Anti-Corruption Strategy for 2022-2025 adopted at the level of the
Law of Ukraine).
Regarding the expansion of the powers of the Public Council of Integrity
(permanently operating an independent body in the judicial system of
Ukraine, appointed to assist the Higher Qualication Commission of Judges
of Ukraine in establishing the compliance of a judge/candidate for the
position of judge with the criteria of professional ethics and integrity for the
purposes of qualication assessment), it was stated that “current legislation
does not clearly dene the status of the Public Council of Integrity - it is
a subject of authority or an institution of civil society,” and “the scope of
responsibility of the Public Council of Integrity” is not dened at all. Also,
the High Council of Justice once again reminded that “decisions of the
Public Integrity Council should have a recommendatory nature” (Judicial
and legal newspaper, 2023).
The State Bureau of Investigation (hereinafter referred to as the SBI)
is a state law enforcement agency of Ukraine tasked with the prevention,
detection, termination, disclosure, and investigation of criminal oenses
primarily against high-ranking ocials, heads of anti-corruption agencies,
the judicial corps, law enforcement ocers, and against the established
order of wearing a military uniform. service, which, in fact, concentrates in
itself perhaps the most signicant powers in terms of the system of currently
operating domestic law enforcement agencies as a whole.
The changes introduced in accordance with Laws of Ukraine No. 305-IX
dated 03.12.2019 and No. 720-IX dated 17.06.2020 add special importance
and update the status of the body, according to which the SDB from the
status of “central body of executive power carrying out law enforcement
activities” was transformed into a “state law enforcement body”, which is
entrusted with the above-mentioned tasks, which, in fact, strengthened the
independence of this body and gave it considerable governmental weight.
587
CUESTIONES POLÍTICAS
Vol. 41 Nº 77 (2023): 584-595
In this context, the control function of the public over the activity of
the body as a whole and its observance of the principles of objectivity, the
maximum possible (within the regulatory eld) transparency, compliance
with anti-corruption norms and generally accepted principles of the activity
of an independent law enforcement body, whose activities are primarily
aimed at ensuring rights and human and citizen freedoms, is considered
extremely important. In addition, the Council of Public Control under the
SBI, whose members undergo a transparent and rather strict competitive
selection, is called to implement such functions.
1. Objectives
The purpose of this work is to analyze the appropriate level of legal
support for the implementation of public control over the activities of the
State Bureau of Investigation through the activities of the Council of Public
Control.
2. Materials and methods
To achieve the goal, general scientic and special scientic methods
of cognition were used, in particular dialectical, formal-logical, analysis
and synthesis, systemic-structural, comparative-legal, formal-legal and
prognostic.
The theoretical basis for conducting the research was the scientic output
of scientists who dealt with issues of the controlling role of the public over
the activities of, in particular, the system of newly created law enforcement
bodies, as well as the legal basis of the formation and operation of these
bodies as a system, and separately the problems of the functioning of each
of them.
Among these, it is worth noting the research of Yara O., Artemenko
O. and Lytvyn O. regarding the analysis of legal principles of activities of
public administration entities, which carry out measures in the eld of
prevention and control of domestic violence (Yara et al., 2021); Ladychenko
V., Bryhinets O. and Uliutina O., who carried out an analysis of the features
of the regulatory regulation of state nancing of the maintenance of a public
institute in Ukraine, as a jury trial (Ladychenko et al., 2022); Oleksenko
R., Malchev B., Venger O., who studied in more detail the peculiarities
of the Ukrainian public using the example of a modern Ukrainian voter
(Oleksenko et al., 2021); Ladychenko V., Danyliuk Yu., who studied public
participation in ensuring security and law and order at the level of local
self-government bodies (Ladychenko et al., 2021); certain aspects of the
588
Оlena Gulak, Andrii Halai, Iuliia Iarmolenko, Oleksandr Spodynskyi y Nataliia Kapitanenko
Public control over the activities of the State Bureau of Investigation: A comparative analysis
legal basis for the implementation of public control over state institutions
both in Ukraine and abroad are studied in the works of Mudrolubova N.
(Mudrolubova et al., 2022), Kutsevych M. (Kutsevych et al., 2020), Kidalov
S. (Kidalov et al., 2020), Golovko L. (Golovko et al., 2022); the problems
of the functioning and activity of the system of new law enforcement
agencies, whose activities are aimed primarily at combating and preventing
corruption, were investigated in the work of Gulak O., Kurylo V., Dubchak
L., Golovko L., Holovii L. (Gulak et al., 2015; Gulak et al., 2021; Dubchak
and Gulak, 2021; Gulak et al., 2022).
A comparative analysis of the legal support for the formation and
activity of both these bodies and public organizations, which are called
to implement the control function, became important in the scope of the
research. A number of by-laws, reports, online meetings and speeches in the
mass media, the specialized committee of the Verkhovna Rada of Ukraine
were examined, and a critical look was made at the personal participation
of the co-authors of the study in the election of the Council of Public Control
at the SBI of the new term.
3. Results and discussion
Currently, in accordance with the requirements of paragraph 3 of the
Procedure for the formation of the Public Control Council at the State
Bureau of Investigation, approved by the Decree of the President of Ukraine
No. 42 of February 5, 2020 and in accordance with Articles 12, 23 and 28 of
the Law of Ukraine “On the State Bureau of Investigation”, the head of the
SBI issued an Order No. 508 of October 5, 2022 on approval of the personal
composition of the competition commission specically for the selection of
members of this Council.
In fact, it is her who is called upon to monitor the gaps in the regulatory
support for the activities of the SBI itself and to develop appropriate
proposals aimed at optimizing the organizational and legal foundations of
the body’s activities, preventing any corrupt elements.
At the same time, it is worth paying attention to certain conicting or
debatable issues that are xed in the domestic legal eld in relation to
the legal regulation of the formation and activity of the Council of Public
Control under the SBI.
Among them is the very name of this public body. In particular, the legal
correctness of its denition can be formulated by analyzing similar bodies
in terms of normative legal acts on the consolidation of such in the system
of new law enforcement bodies, which have primarily / including an anti-
corruption function.
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CUESTIONES POLÍTICAS
Vol. 41 Nº 77 (2023): 584-595
The National Agency for the Prevention of Corruption (hereinafter
referred to as the National Agency for the Prevention of Corruption) should
be included among a number of such; National Anti-Corruption Bureau
(hereinafter - NABU); Economic Security Bureau of Ukraine (hereinafter
- ESBU).
Thus, in the prole laws that regulate the activities of these bodies, the
structure of the system of the blocks we have identied is presented in a
slightly dierent way:
1. control over the body’s activities;
2. powers of the Council of Public Control;
3. the actual name of the main area of activity of the Civic Council;
4. the subject of approval of the Regulations on the Public Council.
Table 1. Dierences in the legislative regulation of public control councils in
newly created law enforcement and anti-corruption bodies
Blocks
highlighted
by us
Prole Laws of Ukraine
On prevention
of corruption/
NAZK
About the
National Anti-
Corruption
Bureau/NABU
About the Bureau
of Economic
Security/BEB
About the State
Bureau of
Investigation/
SBI
Control
over the
activity of
the body
Article 14. Control
over the activities
of the National
Agency
4 types of control
are distinguished,
including public
control
Article 26.
Control over
the activities
of the National
Bureau and its
accountability
Public control as
such is not singled
out
Article 35. Control
over the activities
of the Bureau of
Economic Security
of Ukraine and its
accountability
Public control
as such is not
highlighted
Article 23. Control
over the activities of
the State Bureau of
Investigation
Public control as
such is not singled
out
590
Оlena Gulak, Andrii Halai, Iuliia Iarmolenko, Oleksandr Spodynskyi y Nataliia Kapitanenko
Public control over the activities of the State Bureau of Investigation: A comparative analysis
Powers of
the Council
of Public
Control
There is no
separate article
7 clearly delineated
powers at the
level of the Law
of Ukraine (Part
2 of Article 14)
are singled out,
including:
• membership
of
competitive
and
disciplinary
commissions;
• expert work;
• legislative
activity
Article 31.
Council of Public
Control under the
National Bureau
There are 3 clearly
dened powers
at the level of the
Law of Ukraine
(Part 3 of Article
31), which have
a rather limited
nature
Стаття 34. Article
34. Council of Public
Control under the
Bureau of Economic
Security of Ukraine
5 clearly delineated
powers at the
level of the Law of
Ukraine are singled
out
(Part 2 of Article
34), including:
1) membership
of competitive
and disciplinary
commissions
Article 28.
Council of Public
Control under the
State Bureau of
Investigation
There are 4 clearly
dened powers
at the level of the
Law of Ukraine
(Part 2 of Article
34), which are of
a rather limited
nature, providing,
unlike other
Public Councils,
a requirement for
the development
and approval
of the Rules of
Professional Ethics
of the State Bureau
of Investigation
The name
of the main
area of
activity of
the Civic
Council
Part 2 of Art. 14.
Public control over
the activities of the
NACP
Part 1 of Art. 31.
Civilian control
over NABU
activities
Part 1 of Art. 34.
Public control over
the activities of the
ESBU
Part 1 of Art. 28.
Civilian control
over the activities of
the SBI
Subject of
approval
of the
Regulation
on the
Public
Council
Part 2 of Art.
14. Regulations
on the Public
Council under the
National Agency
are approved by
the Cabinet of
Ministers of
Ukraine.
Part 1 of Art. 31.
Regulations on
the Council of
Public Control
under the
National Bureau
and on the order
of its formation
are approved by
the Cabinet of
Ministers of
Ukraine.
Part 1 of Art. 34.
Regulations on the
Council of Public
Control under the
Bureau of Economic
Security of Ukraine
and the procedure
for its formation
are approved by
the Cabinet of
Ministers of
Ukraine.
Part 2 of Art. 28.
Regulations on
the Council of
Public Control
and the procedure
for its formation
are approved by
the President of
Ukraine upon
submission of the
Director of the
State Bureau of
Investigation.
Source: authors.
Based on the comparative table developed and presented within the
scope of this study regarding the discrepancies in the legislative regulation
of the formation and activity of the Councils of Public Control in the newly
created law enforcement and anti-corruption bodies, we can state a number
of signicant discrepancies.
1. In particular, Article 14 “Control over the activities of the National
Agency” of the Law of Ukraine “On Prevention of Corruption” (Law
of Ukraine, 2014a) denes four types of such control, and the public
one - which is actually implemented by the “Public Council under the
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CUESTIONES POLÍTICAS
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NACP” - is one of them. Neither this Law of Ukraine, nor its Chapter
II “National Agency for the Prevention of Corruption” contains a
separate article regarding the normalization of the function, structure
and tasks of the Public Council under the NACP.
Actually, Part 2 of Art. 14 of this Law clearly regulates the name of
the main activity of the Public Council, namely: “Public control over the
activities of the National Agency is ensured through the Public Council
under the National Agency…”. At the same time, the Laws of Ukraine:
“On the National Anti-Corruption Bureau” (Law of Ukraine, 2014b), “On
the Bureau of Economic Security” (Law of Ukraine, 2021) and “On the
State Bureau of Investigation” (Law of Ukraine, 2016) to dene the main
direction the term “public” and “civilian control” are used for the activities
of the Councils of Public Control, which, of course, requires unication in
the domestic legal eld.
It should be emphasized that the current Article 26 of the Law of
Ukraine “On the National Anti-Corruption Bureau” entitled: “Control over
the activities of the National Bureau and its accountability” quite illegally
contains 2 signicant regulatory gaps:
2. an incorrect reference to the committee of the Verkhovna Rada of
Ukraine “... the subject of which is the ght against corruption and
organized crime”, because among the 23 currently active committees
of the Verkhovna Rada of Ukraine there is only “the committee of
the Verkhovna Rada of Ukraine on anti-corruption policy” (Word
and Deed, Analytical portal, 2023), and the function of “ghting
organized crime” is not inherent in any of these;
3. among the legal bases for ensuring control over the activities of the
National Anti-Corruption Bureau, in addition to the Constitution of
Ukraine, the Law of Ukraine “On Democratic Civilian Control over
the Military Organization and Law Enforcement Bodies of the State”,
which is invalid as of 07/08/2018, based on the adoption of the Law
of Ukraine “On National Security of Ukraine” dated June 21, 2018
under No 2469 (Law of Ukraine, 2018).
Actually, this Law of Ukraine (clause 5, article 1) denes the term
“democratic civil control”, by which the legislator understands: “a set
of legal, organizational, informational, personnel and other measures
implemented in accordance with the Constitution and laws of Ukraine to
ensure the rule of law, legality, accountability, transparency of the bodies
of the security and defense sector and other bodies whose activities are
related to the restriction of human rights and freedoms in cases dened by
law, promotion of their eective activity and performance of the functions
entrusted to them, strengthening of the national security of Ukraine”.
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Оlena Gulak, Andrii Halai, Iuliia Iarmolenko, Oleksandr Spodynskyi y Nataliia Kapitanenko
Public control over the activities of the State Bureau of Investigation: A comparative analysis
However, none of the bodies analyzed by us is directly dened in the
Law of Ukraine “On National Security of Ukraine” as being included in
the security and defense sector, which also raises the issue of conicting
regulatory regulation regarding the issues outlined by us.
Moreover, and what is most important in the essential understanding
of the issues we are investigating, this Law of Ukraine in Section III
“Democratic Civil Control” presents its structure, where actually, by making
changes to the same Law of Ukraine, “public control” was replaced by an
absolutely unacceptable the legal construction “public supervision” (Law
of Ukraine, 2020), but it is only the last, namely, the tenth element in the
structure of democratic civil control, which includes: “control carried out
by the President of Ukraine; control carried out by the Verkhovna Rada of
Ukraine; control carried out by the National Security and Defense Council
of Ukraine; control carried out by the Cabinet of Ministers of Ukraine,
executive authorities and local self-government bodies; judicial control and
public supervision” (Part 1, Article 4 of the Law of Ukraine “On National
Security of Ukraine”) (Law of Ukraine, 2018).
In addition, the analysis of the content of Article 10 of the Law of Ukraine
“On the National Security of Ukraine” under the title: “Public supervision”
allows us to assert the granting of such powers to all citizens of Ukraine
who “participate in the implementation of civil control through public
associations.”
That is, the lawmaker dened “public supervision” as one of the
components of civil control, giving such authority signicant legal
opportunities, which we actually interpret as “legal ignorance”, which
causes legal and regulatory uncertainty and leads to both theoretical and
law-enforcement conicts, which denitely need streamlining and clarity
in general.
In addition, the blocks we singled out and analyzed: “powers of the
Council of Public Control” and “subject of approval of the Regulations on
the Public Council”, based on the structure of the presented table, are also
conicting from a legal point of view, requiring regulatory arrangement and
certain unication.
In addition, the President of Ukraine, according to the exhaustive order
of norms dened for him by the Constitution of Ukraine, does not have
such powers in relation to the newly created body - the State Bureau of
Investigation. Therefore, the norm established in Part 2 of Art. 28 of the
Law of Ukraine “On the State Bureau of Investigations”, regarding the fact
that the Regulations on the Council of Public Control and the procedure for
its formation are approved by the President of Ukraine at the request of the
Director of the State Bureau of Investigations, do not correspond, in our
opinion, to the main Law of our state.
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CUESTIONES POLÍTICAS
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Conclusions
Our analysis of the legal foundations of the formation and activity of
the Council of Public Control at the newly created state law enforcement
body - the State Bureau of Investigation, which, according to its status, is
currently, in our opinion, the law enforcement body with the most powerful
powers, showed a number of conicting norms and contradictions.
In particular, on the basis of a comparative analysis of the legal
regulation of issues of formation and activity of Public Control Councils at
a number of newly created law enforcement bodies, a system of blocks was
singled out, which were subjected to analysis, namely: 1) control over the
body’s activity; 2) powers of the Council of Public Control; 3) the name of
the main area of activity of the Public Council; 4) the subject of approval of
the Regulations on the Public Council.
Within the scope of the study, it is pointed out the “inappropriate”
regulatory constructions, contradictory norms in related regulatory acts,
the need for unication of approaches according to the structural blocks we
have identied, which were subjected to analysis, and attention is focused
on those directions that require further scientic analysis and regulatory
optimization.
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