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![Page 1: Process Modelling and Knowledge Management in the Legislative Process Günther Schefbeck ECPRD Seminar „Digitisation of Parliamentary Information and Archives“](https://reader035.fdocuments.in/reader035/viewer/2022062314/56649efa5503460f94c0c2f0/html5/thumbnails/1.jpg)
Process Modelling and Knowledge Managementin the Legislative Process
Günther SchefbeckECPRD Seminar „Digitisation of
Parliamentary Information and Archives“ Part 1
Brussels, 30 May 2002
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A legal enactment ... traditional style
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Legislative Processes
• Complex and multi-layered
• Highly formalized legal procedure
(going back to 19th century)
vs.
• Informal political decision-making process (semi-structured or negotiation process)
• Interaction of political and legal layers
![Page 4: Process Modelling and Knowledge Management in the Legislative Process Günther Schefbeck ECPRD Seminar „Digitisation of Parliamentary Information and Archives“](https://reader035.fdocuments.in/reader035/viewer/2022062314/56649efa5503460f94c0c2f0/html5/thumbnails/4.jpg)
The value of legislative processes
• “A business process is a collection of activities that takes one or more kinds of inputs and creates an output that is of value to the customer” (Hammer & Champy)
• What is the value of a law?
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The value of laws
• Individual law: quality of content• Rule of law: quality of justice (Aristotle: “Under the rule of law the
chances for justice are better than under the rule of men”)
• Law produced in a democratic process: quality of legitimation
(Luhmann: “legitimization by procedure”)
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Rule of law in a democratic system
• Knowledge of laws as a prerequisite for acceptance of laws and law enforcement
• Transparency of the legislative process as a prerequisite for the acceptance of this process and its output
• Crucial function of publicity of laws and legislative processes
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Transparency and democracy
Means of parliamentary transparency• public access to (plenary!) meetings• media coverage• print documentationare as young as democracy (or even younger:
early 19th century) andhave been given a new quality through the
NICT in the 1990s
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The IT impact• 1970s: law documentation (mainframes)• 1980s: documentation of legislative processes
(mainframes … PCs)• 1990s: electronic availability of data (metadata,
full texts of documents, audio/video streaming) to the general public (PCs … Internet)
• Today: “electronification” of legislative processes• Tomorrow: ?
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Legislative processes and E-business/government functions
• Information
• Communication
• Transaction
• Communication and transaction functions have been made large-scale available through the Internet and Intranet applications
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Five steps of electronic support of legislative processes
• Knowledge management
• Workflow management
• Improving the procedural quality
• Improving the output quality
• Improving the participatory quality
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Process modelling
• Knowledge management: descriptive modelling (reduction of complexity)
• Workflow management: descriptive/prescriptive modelling (complex legal and administrative procedure)
• Future development: prescriptive modelling/process re-engineering (changing the legislative process, e.g. by introducing new instruments/steps)?
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Present situation –functional variety
• Plain information systems
• Mixed systems combining information with aspects of communication/transaction
• Fully electronic workflow systems
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Present situation –organizational variety
• Isolated systems of single parliamentary chambers
• Overall systems of (bicameral) Parliaments
• Integrated systems of all organs involved in the legislative process
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Example: Switzerland (1)
• Workflow system introduced in 1998
• Electronic production of all legislative documents
• System and format breach: Parliament
• Authenticity: paper document
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Example: Switzerland (2)
• Functional view: electronic workflow system with derived information function, parliamentary information and production systems
• Organizational view: government system, Parliament involved as a “black box”
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Example: Austria (1)
• Workflow system operational since 1 January 2002
• Electronic production and transfer of all legislative documents
• System (but not format) breach: Parliament• Authenticity: paper document/at least as to
publication from 1 January 2003 on electronic document
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Example: Austria (2)
• Functional view: electronic workflow system, governmental section using the existing Legal Information System as archival system, parliamentary section based on the existing Parliamentary Documentation System
• Organizational view: separated government and Parliament systems with interfaces
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Way of federal legislation (simplified organizational view)
FederalMinister
FederalGovernment
Parliament FederalPresident
FederalChancellor
Example: Austria (3-5)
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Process steps
Government bill Legal enactment
Authentication
Publication
LIS
FederalMinister
FederalGovernment
Parliament FederalPresident
FederalChancellor
Consultation
Proposal to theCouncil of Ministers
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Electronic workflow system
FederalMinister
FederalGovernment
Parliament FederalPresident
Federalchancellor
LIS
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Improving the procedural quality
• Process modelling makes aware of capability of improvement
• Necessary amendment of rules of procedure (shift of paradigm towards autheticity of electronic documents) gives opportunity to improve procedures
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Improving the output quality
• Legimatic systems for improving the formal quality of laws (checking the implementation of or implementing guidelines for legislation)
• Impact assessment and simulation systems for improving the material quality of legislation
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Improving the participatory quality
• Already emerging standard solution: introducing new communication tools into the representative system
• Dichotomy indirect vs. direct democracy?
• Visionary concepts for intermediate democracy models … the discussion is opened