actal annual report 2011
DESCRIPTION
Annual report of Dutch advisory board on regulatory burden 2011TRANSCRIPT
Actal Annual Report 2011
Annual Report 2011
Less regulatory burdenMore power
Actal Annual Report 2011
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23
Contents1. Foreword 2
2. Actal’s new role 3
2.1 Mission 3
2.2 Tasks 4
2.3 Playingfield 5
2.4 Investinginknowledge 7
3. System assessment 13
4. Ex ante scrutiny 18
4.1 AdvisoryPeriodJanuary-May2011 18
4.2 AdvisoryPeriodJune–December2011 20
4.3 AdvisingtheLowerHouseofParliament 21
5. Strategic recommendation 27
5.1 Strategicrecommendationontheapproach 27
5.2 Strategicrecommendationonaspecifictargetgroup 30
5.3 Strategicrecommendationonaspecificangle 30
6. Signals from society 32
Appendices
1. Strategic recommendations 34
2. Investigations 35
3. Organisation 36
AUTO INHOUD!!!! pagcijfers goed checken!
The citizenTherecommendationLess Regulatory Burden on Careisaboutreducingtheregulatoryburdenfor
thecareclientandthecaregiver
whenapplyingforit,proving
eligibilityforitandprovidingit.
The businessTherecommendationBuilding Blocks for Fewer Regulations
offerstheconstructionindustrya
perspectiveonlessburdensome
alternativestothecurrentbuilding
regulations.
The professionalTherecommendationLeeway for the police professional is
aboutreducingtheregulatory
burdenonthepoliceconstable,
thedetectiveandtheoperational
manager.
Actal Annual Report 2011
1. Foreword The year 2011 was an exciting transitional year for Actal, in which the foundations have been laid for the permanent Actal.
Theorganisationhasenteredanewphase.Thischangerequiredthe
developmentofanewapproach.Thus,Actalhasdevelopedan
instrumentcalledthesystemassessmentwhichwillbeusedinannual
reviewsofministriestoseehowtheyareperformingwhendrafting
newregulationsintermsofreducingregulatoryburden.
WealsohavemodernisedthewayActalpresentsitself.Weareproud
toabletoofferyoutheAnnualReport2011indigitalform.
Oursymposium‘Lessregulatoryburden,morespace’,on
2November2011,markedthestartofthenewActal.Wewant
firmercontactwiththethreetargetgroupsbusinesses, citizens
and professionals.Westrivetopickupmoresignalsfromsociety
onthereductionofregulatoryburden.
DuringtheActalsymposium,thenewimageconceptwaslaunched.
Actal’sobjectiveisasocietyinwhichtheGovernmentachievesits
objectivesinsuchawaythatcitizens,businessesandprofessionals
arehinderedaslittleaspossiblebyregulations.Afterall,ifyourhands
aretiedbehindyourback,youcanhardlyinitiatesomethingnew.
WithinthenewidentityofActal,thismetaphorisillustratedbyportraits
thatexpresstheideathroughdifferentactions:lessregulatoryburden,
morepersonalattention,moreyourself,moreinvolvement,more
decisiveness,moreinnovation,morepersonaldevelopment,more...
Wearelookingforwardtocooperatingwithyoutofurtherreduce
regulatoryburden.
Jan ten Hoopen Eric Helder Lili Doude van TroostwijkChairmanoftheBoard Boardmember Boardmember
Less regulatoryburdenMoreempathy
Actal Annual Report 2011
On 1 June 2011, Actal set itself a new course. The new decree has come into effect and the newly appointed Board has formulated a new mission. This chapter is about Actal’s new role.
2. Actal’s new role
2.1
Mission
Thenewmission:ActaladvisestheGovernmentandParliamentto
lowertheregulatoryburdenonbusinesses,citizensandprofessionals
inhealthcare,education,securityandsocialsecuritysectors,asmuch
aspossible.Actalchoosesthesubjectsonwhichitissuessolicited
and unsolicitedrecommendations,basedpartlyonsignalsfrom
society.Itseeksnewopportunitiestolimitregulatoryburdeninthe
Netherlandsandchallengesregulatorstotakeadvantageofthese
opportunities.Actalworkstogetherwithorganisationswithinand
outsidetheNetherlands,includingitssisterorganisationsinother
EuropeanmemberStates.
CorevaluesforActal’sworkingprocedureareindependence,
opennessandreliability.Inmakingitsrecommendations,Actalstrives
forquality,clarityandusability.Actal’sobjectiveisasocietyinwhich
theGovernmentachievesitsobjectivesinawayinwhichcitizens,
businessesandprofessionalsarehinderedaslittleaspossible
byregulations.
InAugust2011,ActalofferedtheWorkProgramme2012tothe
MinisterofELIandtheMinisterofBZK1.WithintheRutte-Verhagen
Cabinet,theirbriefistocoordinatethereductionofregulatoryburden.
AttherequestoftheLowerHouseofParliament,theCabinetdecided
thatActalshouldbegivenapermanentandlegalstatus.Thebill
establishingapermanentAdvisoryBoardforthereviewofregulatory
burden(ActestablishingActal)wasplacedbeforetheCouncilofState
foranopinionlate2011.
AlladvisorytasksofActalconcernregulatoryburdeninthebroad
sense.ThisisreflectedinthenewnameAdviescollegetoetsing
regeldruk(AdvisoryBoardonregulatoryburden).Becauseofits
nationalandinternationalreputation,theabbreviationActalhas
beenmaintained.
Actal Annual Report 2011
3.Strategicrecommendation:Strategicrecommendationsareabout
practicalwaysofreducingregulatoryburden.Actalhasthreetypes
ofstrategicrecommendations:
- Recommendationsabouttheoverallapproachtoregulatory
burdenandthetoolsthattheCabinetisusingforthispurpose.
- Recommendationsforaspecificgroupofbusinesses,citizensor
professionals.Theserecommendationsfocusonpolicy,
implementationandsupervisionresultingfromnationalor
Europeanregulations.
- Recommendationsfromaspecificangle,suchasreducing
regulatoryburdenbybetteruseofpublicrecordsortheuse
ofICTinordertorelievetheregulatoryburden.
2.2
Tasks
Actalhasthreeadvisorytasks:systemassessment,exantescrutiny
andstrategicrecommendation.Actalbasesitsworkasmuchas
possibleonsignalsaboutregulatoryburdenfromsociety.Thereis
constantinteractionamongsttheActal’sthreetasks.Forexample,a
signalfromsocietyaboutregulatoryburdencanleadtoastrategic
recommendation.Thesignalcanalsobeinvolvedinthesystem
assessment.TheoutlineofActal’snewroleis:
1.Systemassessment:TheGovernmentandtheministriesare
responsibleforthereductionofregulatoryburdenintheNetherlands.
Actalassesseswhetherministrieshaveasolidsystem(procedure),
toensurethatregulatoryburdenisreduced.Togetherwithministries,
Actalreviewstheactivitiesofthedepartmentandattheresults
obtained.UsingthesystemassessmentActalannuallyassesseshow,
indrawingupnewregulations,ministrieshavedealtwiththe
consequencesofregulatoryburden.
2.Exantescrutiny:Whenthereareproposalswithmajorimplications
forregulatoryburdenonbusinesses,citizensorprofessionals,Actal
canissuearecommendationtotheministersconcernedduringthe
formativephaseofthelegislation.TheLowerHousecanalsoask
Actaltoissuearecommendationaboutproposedregulationsof
theCabinetoraboutproposalsbytheLowerHouseitself(private
member’sbillsandamendments).
Actal Annual Report 2011
Advisory Board
Actalconsidersitimportanttoperiodicallyreflectonsocial
developmentsinrelationtoActal’smissionandtasks.Fromthe
beginningof2011,ActalthereforeestablishedanAdvisoryBoard.
Actalwouldliketomakeuseoftheexpertiseandexperienceof
peopleindifferentpositionsinsociety.TheAdvisoryBoardmeets
twiceayear.
Internationally
Attheendof2012,theCommission’sActionProgrammefor
ReducingAdministrativeBurdensintheEuropeanUnionwillcome
toanend.Actalhasalwaysdevoteditselftoapowerfulapproach
inEurope,sincealargeshareoftheburdenthatbusinesses(and
citizens)sufferfromisofEuropeanorigin.Itisthereforeimportantthat
theeffortofBrusselsoverrecentyearsshouldbecontinued.Much
oftheinternationaleffortofActalin2011mustbeseenagainst
thisbackground.
2.3
Playing field
Inestablishingrecommendations,Actalworkstogetherwithvarious
organisationswithinandoutsidetheNetherlands,includingsister
organisationsinotherEuropeancountries.Actalconsultswithand
carriesoutvisitstoindividualcompanies,sectororganisationsof
businesses,citizensandprofessionals.
FIGURE 1
Actal’s national playing field
Parliament
Inspecting & implementing
bodies
Local authorities
(Sector organisations of)
businesses, citizens and professionals
Request for recommendations
and signals
Request for recommendations
and signals
Assessment and recommendation
Assessment and recommendation
Work visits
Signals
Signals
Recommendation
Assessment and recommendation
Signals
Cabinet and Ministries
Actal Annual Report 2011
TheNetherlandsisinternationallyonrecordasapioneerinreducing
regulatoryburden.ReasonswhytheNetherlandsmayconsideritself
tobeinthevanguardare:
- Attentiontoallformsofregulatoryburden(inadditiontothe
administrativeburdenalsocostsofsubstantivecompliance).
- Broadorientationontargetgroups(inadditiontoregulatoryburden
forbusinesses,alsoregulatoryburdenforcitizensand
professionals).
- Solidsystemof‘checksandbalances’,includinganindependent
advisoryboard.
Attheendof2011,Actal,alongwithitssisterorganisationsin
Germany(NationalerNormenkontrollratorNKR),GreatBritain
(TheRegulatoryPolicyCommitteeorRPC)andSweden(Regelrådet),
draftedapositionpaperandputitbeforetheEuropeanCommission.
Inthispositionpaper‘TheEndoftheCommission’sAction
ProgrammeforReducingAdministrativeBurdensintheEuropean
Union-Whatcomesnext?’aneffectiveEuropeanapproachinthe
futureisoutlined.GiventhePolishEUPresidencyinthesecondhalf
of2011andtheDanishEUPresidencyinthefirsthalfof2012,visits
weremade,interalia,toWarsawandCopenhagen,tocallattention
totheideasasexpressedinthepositionpaper.
FIGURE 2
Timeline of Action Programme
InMarch2011,theInternationalRegulatoryReformConference
tookplaceinAmsterdam.Besidestheexchangeofnewideasfor
thereductionofregulatoryburden,extensivediscussionswereheld
aboutthefutureofthe(European)approachtoregulatoryburden.
ActalpresentedthemostimportantdevelopmentsoftheDutch
approachextensivelyatthepublicmeetingoftheHighLevel
GroupofIndependentStakeholdersonAdministrativeBurdens
(TheStoiberGroup).
January 2007Commission proposesto launch an Action Programme
Summer 2007Launch of the Action Programme
Spring 2008Finalisation of the mapping of IOs
January 2009First results of AB measurement
Summer 2009Finalisation of the EU baseline measurement
2010-2011Implementation of the Sectoral Reduction Plans (possible extension)
Continuous: gathering ideas, developing proposals and adopting measures for reducing Administrative Burdens on Business
March 2007European Council agrees with the target for EU legislation and invites Member States to set ambitious national targets
January 2009Commission decides to extend the scope of the Action Programme to 30 EU acts
October 2009Commission presents Sectoral Reduction Plans
2012End of the Action Programme
2012Reduction potential of measures adopted: -25%
2007 2008 2009 2010 2011 2012
Actal Annual Report 2011
2.4
Investing in knowledge
Actalpaysconstantattentiontothetransferofknowledgeand
experienceaboutreducingregulatoryburden.Bothonrequestand
onitsowninitiative,Actalorganisesbriefingsessions.Additionally,
in2011,thefollowinginitiativeswerelaunched.
Chair of ‘Costs and Benefits of Regulation’
On1July2011,TheErasmusUniversityofRotterdamappointed
NeilRickmanasProfessorfortheChairof‘CostsandBenefitsof
Regulation’.Thisacademicchairwasestablishedattheinitiativeof
ActalandisfundedbytheMinistryofEconomicAffairs,Agriculture
andInnovation.Inthisway,Actalisendeavouringtogiveanimpetus
totheknowledgeanddebateaboutbetterregulation,bothinthe
domainofpolicyandinthedomainofscience.
Actal Study Workshop
Attheendof2011,ActalopenedtheStudyWorkshop.Indoingso,
Actalgivespolicy-makerstheopportunitytomakeaprojectproposal
forreducingregulatoryburdeninaspecificpolicyarea.Obviously,the
topicneedstofitintothemissionofActal.Itcouldbeaboutaproject
proposalinaspecificpolicyarea,aspecificperson,companyorbody
oraspecificpolicytool.ThroughtheStudyWorkshop,Actalaimsto
createthechanceofnewinsightsforthereductionofregulatory
burden.Actaloffersparticipantstheopportunitytobecomefamiliar
withthetoolsforanassessment.
Furthermore,throughouttheyear,Actalhasparticipatedinthe
meetingsoftheStoiberGroup.Therewerealsomeetingswith
delegationsfromvariouscountries,mostlymotivatedbythedesireof
thesecountriestoorientthemselvestotheDutchsystemof‘checks
andbalances’forregulatoryburden.In2011,theseincluded
delegationsfromPoland,Malta,MalaysiaandFrance.
BesidesthecontinuationoftheEuropeanapproach,Actalisalso
aimingtofittheEuropeanandDutchregulatoryprocessestogether
better.InNovember2010,Actalissuedarecommendationto
strengthentheDutchEUpolicypreparations,withaviewtoreducing
theEuropeanregulatoryburden.In2011,Actalworkedonapaper
–togetherwithAdriaanSchoutoftheClingendaelInstitute–which
isabouttheconnectionbetweenEuropeanandDutchregulatory
processes.Theaimistopublishitin2012:Schout,A.andSleifer,J.
(2012)‘Apublicadministrationtakeonlegitimacy:BetterRegulation
asmultilevelgovernancechallenge’,inAmbrus,M.,Arts,K.,Hey,E,
andRaulus,H.(eds),TheRoleof‘Experts’inInternationalDecision-
Making:Advisors,Decision-MakersorIrrelevant,CambridgeUniversity
Press(underconsideration).2
Actal Annual Report 2011
A systems approach to reducing regulatory burden
Afteryearsofdevotiontoachievingacultureshiftamongstregulators,
sinceJune2011thequestionishowtheGovernmentachievesits
goalsinsuchawaythatpeoplearehamperedbyregulationsaslittle
aspossible.Thischangeisalogicalnextstepinapolicyrealitywhere
theawarenessofissuesofregulatoryburdenhasincreasedwhilethe
opportunitiestoreduceregulatoryburdenseemtobelessplentiful.
Againstthisbackground,Actallookedathowimportantorganisational
cultureandorganisationalstructureofministriesisineffectively
dealingwithregulatoryburden.Theresearchusestheinternalisation
studiesdonein2005,2007and2010andtheevaluationsofthe
covenantswhichActalimplementedin2010foranumberof
ministries.
Thefindingsofthisresearcharebeingpublishedasachapterin:
AlbertoAlemanno,FrankdenButter,AndréNijsen,JacopoTorriti,
‘BetterBusinessRegulationinaRiskSociety’(2012);J.A.vanBockel,
J.A.Sleifer,‘InternalPressures–ExternalSafeguards.Asystemic
approachforburdenreductionintheNetherlands’.
Actal Annual Report 2011
MARCH JUNE JULY OCTMAY
FIGURE 3
Developments 2011 DevelopmentsAdvice
Actal Annual Report 2011
The citizen
Actal Annual Report 2011
researchandconsultancyActalmakesan
explicitchoicetotakeapositionalongside
thecitizenandtolookatwaystoreduce
regulatoryburdenfromhisperspective.In
2011,Actaladoptedthestandpointofthe
chronicallyillseniorcitizentoarriveat
improvementsandsimplifications.
Recommendation Less Regulatory
Burden on Care
Actalhascarriedoutresearchintothe
regulatoryburdenforthehealthcareclient
andtheproviderofhealthcareondemand,
needsassessmentandtheprovisionofcare.
Theresearchmakesclearthattheregulatory
burdenforbothtargetgroupscanbestrongly
reduced,ifcurrentprocessesandpractices
weredesignedandorganised(more)from
thestandpointoftrust.
Acasestudy,specificallyfocussedona
COPDpatient,showsthattheopportunities
forreductionareverysubstantial.Inthis
The citizenThe Cabinet wants to reduce the regulatory burden for citizens after 2012 by 5% per annum. The Cabinet hopes to achieve that by abolishing regulations, simplifying procedures and improving electronic service provision.
Justasmanybeautifulwordsasgoodpolicy
intentions.Thatit’sgoingtoreduceby5%is
nice,butwhatdoesthatsaytothemanin
thestreet?Whenwillhestopfeelingconfined
andberidofhisirritationaboutbureaucracy
andbeingpatronised?Whenwillhefeelthe
spacetobecomeinvolvedinnew
developmentsandchallengesinthesociety
inwhichheresides,worksandlives,and
thusbereadyforthefuture?
ThatisnoeasytaskfortheGovernment.To
achieveresultsinthisarea,Actalislooking
evenmorethaninthepastatsignalsabout
feelingsamongstthepopulace.Inits
respect,itislikeadouble-edgedknife:
thehealthcareclientneednotfulfilany
unnecessaryadministrativeobligationsand
thehealthcareprofessionalcanfocusonhis
‘realwork’.
Theresearchmakesitclearthattheelderly
chronicallyillneedtocarryoutmany
administrativeobligationsinordertosecure
thenecessarycareforthemselves.Hehasto
dealwithcomplexregulationsthatemanate
fromvarious(executiveandsupervisory)
authorities.Careproviders,suchasnurses
andphysiciansmustalsomeetmany
obligations.Thattakesupalotoftheirtime,
whichtheythencannotactuallyspendon
care.Basedonthisresearch,Actalpointsout
that‘moretimeforcareandmorehandsat
thebedside’becomeavailableifregulations
andpracticesrelymoreontrust.
Actal Annual Report 2011
Conclusion
Theresearchclearlyindicatesthatwerethe
Governmenttotrustthecitizenmore,thiswould
yieldverysignificantopportunitiestoachieve
noticeablechangesforcitizens.Thecitizenis
givenspacebytheGovernmenttochoosethe
desiredcareandasaresulthasthefeelingof
beingtakenseriously.Henolongerneedsto
knockontheGovernment’sdoorforallhis
choicesandwritedowneverythinghedoes
blackandwhiteonpaperandjustifyit.Nomore
patronising,lesspaperandfewerexaminations.
Andalsolesstimewastedbythecitizenon
accountoftheGovernment.Forthechronically
illelderly,thissavingsintimecanamountto
morethan90%ofthetotal.
TheresearchindicatesthatVWSisalready
takingstepstoreduceadministrativeburdens
andbureaucracy.Inresponsetothe
recommendation,VWShasindicatedthatthe
recommendationsofActalfitinwiththe
developmentsthattheDepartmenthassetin
motion.However,thereisonecomponentof
therecommendationof26May2011which
VWSwillnotfollowforsubstantivepolicy
reasons.Thisconcernstheproposaltorestrict
orabolishaccountabilityforthePGB.VWS
haschoseninthefutureonlytoallowthePGB
foralimitedgroupofthoseneedingcare.
AlthoughithasbeendeterminedthatVWS3
hastakengreatstridestoaddress
bureaucracyinhealthcareandtoimprove
serviceprovision,theresearchshowsthat
muchismorepossible.
Actalrecommendsinteraliathatthe
accountabilityforthePGB4shouldbe
restrictedorevenabolished.Reductionor
eliminationdoesdependon‘earnedtrust’:
onlythoseclientswhohaveproven,inthe
past,thattheybehaveresponsiblywiththe
PGBfundshaveareducedrequirementto
justifythemselves.Actalalsorecommends
thatrecordingofthenumberofminutes
spentbyphysiciansandcaregiversbe
abolished.Thisalsoappliestoanumberof
diagnosticprocedures.Fromacertainage,
forexample75years,thesecouldbeomitted
forchronicandprogressiveconditions.
Furthermore,theperformanceindicators
needtobefocussedontheresultofthecare
andnotontheprocess.Actalconsidersita
matterfortheMinistertotakeona
coordinatingroleinthis.
PC
DS
RPC
GPC
UM
TC
SL
MV
UM
Respiratorynurse
Generalpractitioner
Pharmacist
Social InsuranceExecutive
Care AssessmentCentre
Care Office
Central AdministrationOffice AWBZ
Healthcare Insurer
Tax Authorities
Taxi card (TC)
Care surcharge (CS) CS
Use of medication (UM)
Use of medication (UM)
General Practitioner consultation (GPC)
Municipality
RPC
RPC
UM
UM
PC
PC
PC
GPC
TC
SL
MV
Ann
ette
Annette
DS
PCHome Care
RPC
RPC
RPC
GPC
PC
PC
PC
PC
DS
DS
DS
DS
DS
Respiratoryphysician
Mobility vehicle (MV)
Stairlift (SL)
Personal care (PC)
Domestic support (DS)
Respiratory physician consultation(RPC)
Use of medication (UM)
FIGURE 4
Application, indication and justification for Annette
Actal Annual Report 2011
externalassessmentofthefilesisnolongernecessary.Themain
questionofthesystemassessmentreads:Isthe(departmental)
assessmentofregulatoryburdenbeingproperlyandconsistently
implemented?
Assessmentofregulatoryburdencanberegardedas‘properand
consistent’iftheconsiderationofeachfilepriortodecision-makingis
ofsufficientqualityandiftheassessmentisaccompaniedbyeffective
safeguardsregardingorganisationalstructureandculture.
Preparation for First System Assessment
Thefirstsystemassessmentin2012relatestofilesintheperiodfrom
1June2011to31December2011.Thesubsequentsystem
assessmentshaveaperiodofinvestigationofonecalendaryear.In
theautumnof2011,anorganisationalanalysiswascarriedoutto
understandhoweachdepartmentseparatelyorganised(attentionto)
weighinguptheregulatoryburdenassociatedwithproposed
regulations.Thismeansthatthewayinwhich(legislative)proposals
comeaboutwithinadepartmentisvisualised.
Actal advises the Government and Parliament about the system of assessing the effects of proposed regulation for the regulatory burden for businesses, citizens and professionals in the healthcare, education, security and social security sectors. This advisory task is called the system assessment.
Notonlyistheexanteassessmentbyministriesonthevariousformsof
regulatoryburdeninproposedregulationsexaminedunderthe
microscope,butalsothewaythedepartmenthasorganiseditsattention
totheseconsiderations.Otherpartsofthesystemsuchastheofficial
ImpactAssessmentBoard(CET)5andtheBusinessImpactAssessment
(BET)6areinvolvedintheopinion.
The Purpose of the System Assessment
Thepurposeofthisannualassessmentistodetermineretrospectively
whetherthesystemadequatelyensuresthattheministriesare
mappingtheimplicationsforregulatoryburdenproperlyand
consistentlyandthatthoseimplicationsonregulatoryburdenare
takenintoaccountinthedecision-makingtosuchanextentthat
3. System assessment
Actal Annual Report 2011
3.Reportingphase:Actaldrawsupa(comprehensive)finalreport
containingthefindingsofallministries.Thesefindingsare
presentedasmuchaspossibleinsuchawaythatitiseasyto
compareministrieswitheachother(benchmarking).Actalwill
presentthereportandrecommendationstotheMinisterofELIand
theMinisterofBZK,theotherministersconcerned,and(for
information)senttobothHousesoftheDutchParliament.Atthat
stage,theresultsofthesystemassessmentaremadepublic.Actal
willactivelycommunicateaboutthis.
Aftercompletingtheanalysisoftheorganisation,thesystem
assessmenthasthreephases:
FIGURE 5
Phases System Assessment
Analysis of organisation
Verificationphase
Reportingphase
January – February March – April May - June
Assessmentphase
Autumn 2011
1.Assessmentphase:Thisphasefocussesinitiallyonanumberof
fileswithregulatoryburdeneffects.Inaddition,severalmore
generalaspectsareinvolvedinthesystemassessment,whichcan
beaboutindividualministries,butalsoabouttheCabinet’s
approachtoregulatoryburden.
2.Verificationphase:Thefindingsfromtheassessmentstageresultin
confidentialdepartmentnotesthatarediscussedwitheach
department.Thediscussionsareusedtoassessthefindingsandto
determinehowthefindingscanbeexplainedinthecomprehensive
report.
Actal Annual Report 2011
The business
Actal Annual Report 2011
Recommendation on Building Blocks
for Fewer Regulations
TherequestbytheMinisterofBZKfora
recommendationdidnotrelatetoadetailed
bill,butfocussedontheregulatoryburden
andlessburdensomealternativestothe
currentbuildingregulationsand(withaview
tothefuture)lessburdensomealternatives
fortheconstructionindustry.
Actaladvisedthefollowing:
- Researchforeachpolicyobjectivewhether
andtowhatextentprivatesolutionsare
possible(anddesirable)andwhether
regulationsarethemostappropriate
instrument.
−Researchalternativepossibilities(outside
thebuildingregulations)toachievea
reductionofgreenhousegasemissions,
sothatthebuildingregulationscan
be(partly)relievedoftherelated
requirements.
− Inthecaseofsimpleconstructions(such
On 15 September 2011, at the request of the Minister of BZK, Actal issued a recommendation in the context of the ‘fundamental revision of the building regulations’ being proposed by BZK. The Minister of BZK sent this recommendation to the Lower House on 15 December 2011.
Forthepurposesoftherecommendation,
Actalcarriedoutresearchandspoketoa
largenumberofpartiesinvolvedinthe
buildingregulations.Itemergedfromthisthat
mostpartiesunderstandthe‘spiritofthe
regulations’,butthattheyexperiencetheir
applicationinpracticeasa‘straitjacket’.The
buildingregulationsareassociatedwitha
greatdealofregulatoryburden.Earlier
researchshowed,forexample,thatthe
substantivecoststobusinessofcompliance
withtheBuildingDecreeamountto€600
millionperannum.
The businessasadormer,conservatory,carport),optfor
simpleregulations.
−Makebuildingcodesmoreaccessible
andcomprehensibleforusers.
−Shortentimelimitsandleadtimes.
−Optforcustomisedwork–combat
riskswheretheyoccur.
−Maintaintheprinciple‘noexternal
appearancerequirements,unless’and
consideradministrativeassessment
ofexternalappearanceasaless
burdensomealternativethanreviewby
buildinginspectorsemployedtoenforce
theregulationsontheexternalappearance
ofbuildings.7
−Ensureaproactiveandservice-orientated
attitude.Specificallythismeansthatin
complexapplications,anaccountmanager
mustbeavailableandthattheGovernment
activelyinformstheenvironmentinmajor
constructioninitiativesandzoning
changes.
Actal Annual Report 2011
policyresponse,however,noconcrete
proposalsarebeingmadeasyettoresolve
thisproblem.Asregardsthepolicyonthe
externalappearanceofbuildings,BZKhas
alreadytakenmeasures.Recommendations
onexternalappearancefromaninspectorate
ofexternalappearancearenolonger
compulsoryformunicipalities.BZKsees
opportunitiestofittheadministrative
assessmentofexternalappearance
recommendedbyActalintothispolicy.
Inordertoovercometheproblemof
equivalentmeasuresintechnical(safety)
regulations,whichinpracticearealways
beingreviewed,Actaladvisedacentral
register,towhichtheMinisterofBZKgrants
authorisation.TheMinisterannouncedinher
responsetotherecommendation,thatshe
willincludethispointintherevisionofthe
buildingregulations.
Policy Response
Inherresponseof27January2012tothe
Actalrecommendation,theMinisterofBZK
indicatedthatsheisadoptingmanyofthe
pointsonwhichActaladvised.Thus,BZKwill
adoptalightregulatoryregimeinthe
regulationsforsimpleconstructionprojects
anddesignsthataremorefrequentlyused,
suchasindustrialbuildingsandstandard
housing.Atthesametime,BZKalsosees
theneedformorepossibilitiesfor
customisationinthecaseofspecific
constructionprojects.Inparticular,private
commissioningisanexamplewhere,in
practice,theregulationsoftensqueeze
unnecessarily.
Atthesametime,inrevisingthebuilding
regulationsforeachpolicyobjective,BZKwill
investigatewhetherthereisaroleforthe
Governmentorwhetheraprivatesolutionis
moresuitable.ActalalsoadvisedtheMinister
totakemeasureswithrespecttoservice
provision.BZKrecognisestheproblemthat,
inpractice,leadtimesareoftenlongandthe
requirementsintheregulationsare
insufficientlyaccessibletotheuser.Inthe
Conclusion
Alsofromthepointofviewofreducing
regulatoryburden,itisimportantthatthe
buildingregulationsbefundamentally
revised.Thepolicyobjectivesandthe
implementation,serviceprovisionand
supervisionmustbereconsidered.Inthis,it
iscrucialtofocusontheusersofthe
regulations.
Actal Annual Report 2011
4.1
Advisory Period January-May 2011
Recommendation on the Implementation of a Third Directive
on Driving Licences
InMarch2011,ActalissuedarecommendationontheImplementation
oftheThirdDrivingLicenceDirective.Theobjectiveofthisisto
harmonisetheregulationsondrivinglicencesintheEuropeanUnion.
Thus,throughouttheEuropeanUnion,therewillbeasingledriving
licenceincreditcardformat.Throughnewlicencecategories,by
halvingofthevalidityperiodforthelicenceofalorryandabus(from
10yearsto5years),theregulatoryburdenforcitizensisstructurally
increased.Anotablefeatureistheincreaseinsubstantivecompliance
costsforcitizensby2.6millionEurosperannum.Asaresultofthese
regulations,drivingschooloperatorsmustalsoincurcostsin
connectionwiththepurchaseofnewteachingandtestingvehicles.
TheActalrecommendationcallsforminimisingasmuchaspossible
andcompensatingforthisincreaseinregulatoryburden.Inthe
technicalimplementationdomain,apossiblepointthatmaybe
graspedisthatCandDlicenceholders(forlorriesandbuses)can
filloutandsendtheself-declarationformdigitally.
As from 1 June 2011, advising on (legislative) proposals affecting regulatory burden is changed. Initially, Actal issued an opinion on every proposal affecting administrative burdens of every department.
From2008,Actalhasstriventomakedepartmentsresponsibleforthis
assessmentinadvance.Tothisend,in2008and2009,Actal
concludedcovenantswithsixdepartments.Specifically,in(2010and)
2011,ActalprospectivelyassessedtheregulationsoftheMinistryof
Finance,SZW8andI&M9.
UndertheDecreethatcameintoeffectasfrom1June2011,theex
antescruntinyhasbeenfocussedonproposalswithmajorimplications
fortheregulatoryburdenonbusinesses,citizensandprofessionals.
Thenewinterpretationoftheexantescrutinyalsorequiredan
adjustmentoftheassessmentframework.
Inaddition,TheLowerHousecanaskActalforadviceaboutproposed
regulationsoftheCabinetandaboutproposalsbytheLowerHouse
itself(privatemember’sbillsandamendments).Theendofthischapter
focussesonadvisingtheLowerHouseaboutproposedregulations.
4. Ex ante scrutiny
Actal Annual Report 2011
Recommendation on the Fiscal Agenda and Regulatory Burden
WiththeFiscalagenda,theStateSecretaryforFinanceaimsfor‘less
hassle’bylimitingtheopportunitiesfortaxpayerstoreducethe
amountoftax.On30May2011,Actalissueditsrecommendationon
theFiscalagendaandregulatoryburden.Effortsbytaxpayers(by
reducingtaxpayable)toonlyjustorjustnotfallintoaparticular
regulatoryschememayleadtoatighteningofmonitoringand
enforcement.Regulatoryburdenandirritationtotaxpayersdecrease,
accordingtoActal,iftherearefewersuchopportunities.
Thus,intheFiscalagenda,itwasproposedtoabolishsixminor
taxes,suchasthepackagingtaxandtaxontapwater.Thefirstoption
forreducingregulatoryburdenistoseetowhatextenteliminating
theregulationispossible.Actalconsiderstheeliminationasof
1January2012ofthesixsmalltaxesagoodexample.
ThescrappingofoneVATratecouldreducetheadministrativeburden
ofthesalestaxsignificantlyovertime.ActalhasadvisedtheState
SecretaryforFinancetoinvestigatehow,byimplementingICT
facilities,theburdenofthislevycanbereduced.
Afourthboxor‘profitbox’,whichbringstogethervariousbusiness
facilities,canreducetheburdenofthearrangementstobeincluded
withinit.Actalhasalsoadvisedonthispointthatthepossibilitiesfor
thisbetakenunderreview.
Recommendation for Temporary Decision on Supervised Driving
FollowingGermany,amongstothers,in2011theCabinetpreparedan
experimenttoimprovethesafetyofyoungdrivers.Thisexperiment
meansthatyoungpeoplecangettheirdrivinglicence(categoryB)at
theageof17.Afterobtainingthelicence,theymaydriveacarunder
supervisionintheNetherlandsuntiltheyare18yearsold.
Thistemporaryexperimentiscalled2toDrive.On1November2011,
theexperimentwasstartedforamaximumperiodof6years.
Thisnationalregulationhasresultedinanincreaseinregulatory
burdenwhich,accordingtoActal,needstobecompensated.Actal
alsofindsitimportantthattheCabinetkeepsitsfingeronthepulseby
alsotakingtheconsequencesforregulatoryburdenintoaccountat
thetimeofthe(interim)evaluationoftheexperiment.TheMinisterof
I&Mhaspromisedthattheseconsequenceswillbetakeninto
considerationinthefinalevaluation.
Intherecommendation,Actalhasindicatedthatsufficientparticipation
andapproachabilityisimportantiftheexperimentistohave(achance
of)success.AccordingtoActal,withthisproposal,acomprehensive
administrativesystemwassetupthatisnoteasilyaccessible.Unlike
theproposedsystemwhichusesasupervisor’spassandbackground
investigation,Actalhassuggestedthat(tobeabletoactasa
supervisor)asufficientrequirementshouldbetobeabletoshowa
validdrivinglicenceandhaveatleast10years’drivingexperience.
Actal Annual Report 2011
Initsrecommendationonthe2012taxplan,Actalhasmoreover
addressedanumberofmeasures,suchasthemeasureofceasingto
calculateinterestoverthefirsthalfyear.About8milliontaxpayerswill
thereforenolongerpayorreceiveinterest.Becauseitisstillunclear
whetherinterestcalculationsproduceagreatdealofinformation
trafficbetweenthetaxpayerandtheTaxauthorities,Actal
recommendsthattheeffectsofthissimplificationbetakenunder
review.
Furthermore,from2012,theTaxauthoritieswillonlytransfer
surchargesandtaxrefundstoasinglebankaccount.Theleast
burdensomealternativewouldbefortheTaxauthoritiestousethe
lastusedaccountnumber.Fromthestandpointofgoodservice
provision,Actalisabletoagreetooptforthe(one-time)administrative
burdenofspecifyingthecorrectbankaccountnumber.
Vandriversnolongerhavetokeepalogbookofjourneys,butcan
sufficewitha‘declarationofnoprivateuse’.Withautomaticnumber
platerecognition,therearenowsufficientcheckingcapabilitiesin
existence.Actalbelievesthatthispossibilitycouldalsobeofferedto
driversofleasedcarsandemployeeswithacompanycar.
Recommendation on the Working to Capacity Bill
Toencourageasmanypeopleaspossibletoprovidefortheirown
maintenancebyworking,theWorkingtoCapacityBillwassubmitted
on1February2012.On7October2011,Actalissueda
recommendationaboutthisbill.
CommunicationbetweenthetaxpayerandtheTaxauthoritieshasa
formalcharacterandiscarriedonlargelyinwritingatpresent.Actal
welcomestheintentiontocontinuedigitisingthiscommunicationand
theplantogiveeveryoneapersonaltaxpage.Theseinitiativesmake
itpossibletomaketheflowofinformationlessformal,toshortenthe
waitingtimes,tomakethechargesmoretransparentandtoreduce
objectionsandappeals.
4.2
Advisory Period June–December 2011
Recommendation on the Fiscal Agenda: Elaboration in the Tax
Plan for 2012
TheDutchtaxsystemhasmanydeductions,exemptions,rebatesand
othermechanismstoreducetaxesforcertaingroups.Anintentto
reducetaxforcertaingroupsincertaincircumstancesoftencausesa
rigmarole,bothforthetaxpayerswhoqualifyforitandforthosewho
tryforitinvain.Also,thosefactors‘narrowingthebaseof
assessment’complicateimplementation,leadingtohigher
implementationcosts.
Becauseitisnotyetknownwhichoftheseschemesimposethe
mostregulatoryburden,Actaladvisesinitsrecommendationof
2September2011totaketheregulatoryburdenasaresultof‘factors
thatnarrowthebaseofassessment’underreviewandtofirstabolish
thoseschemesthatproduceagreatdealofregulatoryburden
andirritation.
Actal Annual Report 2011
Thenewbillgivesmunicipalitiestheopportunitytograntwage
dispensationtoemployersiftheyemployadisabledyoungperson.
Municipalitiesmaychooseforthemselvesthemethodfordetermining
thelevelofwages.Thisleadstoadditionalregulatoryburdenfor
companies,becausetheyoungdisabledpeoplebeingemployedare
notalwaysresidentinthesamemunicipality.Fromthepointofviewof
reducingregulatoryburden,theCabinetwouldhavebeenbetteroffto
chooseasingleuniformmethodtobeappliedbyallmunicipalities.
4.3
Advising the Lower House of Parliament13
Actalwishestocontinueinvestingininvolvementofthemembersof
theLowerHouseinreducingregulatoryburden.Afterall,theycan
addressthe(coordinating)Governmentministersbymeansofa
motionorparliamentaryquestionsonprogressinreducingregulatory
burden.ItisalsoimportantthatMPsputforwardamendmentsand
privatemember’sbillswiththeleastpossibleregulatoryburden.
FromtheresearchthatActalhadcarriedoutin2011,itappearsthat
in2010,347amendmentsweresubmitted.Ultimately,13adopted
amendmentswerefoundtohaveimplicationsforregulatoryburden.
Onbalance,theincreasesanddecreasesinregulatoryburden
approximatelycanceleachotherout.Inthecaseoffouramendments,
theconsequencesforregulatoryburdenwerediscussedduring
thedebate.
TheCabinetisoptingforjointimplementationbymunicipalitiesand
theUWV10.Youngdisabledpeoplewhoarecapableofworkingwillbe
dealingwiththemunicipalityfrom2013.Youngdisabledpeoplewho
areincapableofworkingmustapplytotheUWVforabenefit.
AccordingtoActal,theCabinet’schoiceofjointimplementationwill
havemajorconsequencesforregulatoryburden.Itwillnotbepossible
toavoidthenecessityforfilestobetransferredbetweenUWVand
municipalities.Referralsbackwardsandforwardsbetweenthese
agenciescanequallynotbeexcluded.Thebillalsocreatestheriskof
havingtoundergoadoublemedicalexamination.
AccordingtoActal,theCabinetcouldhaveavoidedthisbyallocating
theimplementationofWajongandtheWorkingtoCapacityActtoa
singleagencyandassigningittothemunicipalities.Actalregardsthe
billasamissedopportunitytoreducetheregulatoryburden.Thereare
manyopportunitiesforreducingregulatoryburdenthroughdevolution
ofresponsibilitiestomunicipalitiesif,atthesametime,theintentionof
theCabinettoalsoassignYouthCare11andthemanagementofthe
AWBZ12forthistargetgrouptothemunicipalityisincluded.
Actaloutlinesinitsrecommendationthatfortheyoungdisabled,four
medicalexpertreviewsonemployabilitymayarise.Accordingtothe
bill,theseexaminationsarecarriedoutbydifferentagenciesatdifferent
times.ThecertificationbodiesincludetheUWV,themunicipalitiesand
reintegrationcompanies.AccordingtotherecommendationofActal,
examinationbyasingleindependentbody,andallatonce,would
greatlyreduceregulatoryburdenandbureaucracy.
Actal Annual Report 2011
Inthenotestotheamendmentssubmitted,littleattentionwaspaidto
theimpactonadministrativeburdensandregulatoryburden.Fromthe
caseswherethishasbeendone,itisapparentthatawarenessofthe
reductionofregulatoryburdenwithinParliamentcanbeimproved.
Actalwishestoinvestinmoreawarenessaboutreducingregulatory
burdenamongstthemembersoftheLowerHouseandtheirofficial
supportstaff.ThenewAdvisoryBoardhasheldintroductorytalkswith
membersofthestandingcommitteesforELIandBZKandwill
continuetostrengthentieswithParliament.
Actal Annual Report 2011
The professional
Actal Annual Report 2011
Professionalsinthepoliceforceare
threatenedwithentanglementinanetworkof
enquirers.Thefollowingdiagramillustrates
thisnetworkofenquirers,where,clockwise,
(startingwiththepoliceforce)itconcerns
enquirerswithinthepoliceorganisationitself,
immediatepartners,authorities,citizensand
enquirersforsecondaryprocesses(staff).
FIGURE 6
The police professional and his enquirers
Social security agency
Labour Inspectorate
CitizensLocal
police constable
Detective
Operational police manager
Municipality (sections)
Government departments
Tax authorities
Social work
Housing association
Police force
Police district
Immediate colleagues
Public Prosecutor
Youth care
Probation Service
City surveillance
Local police constables, detectives and operational police managers set things down. A large part of what they do is informationintensive.
Policeprofessionalsworkinapublicspace
thatcallsforaccountabilityandtransparency.
Itisobviousthatpolicedrawupofficial
reports,maintainrecordsaboutuseof
weaponsandthattheyprepareandcomplete
interventions,inspectionsorMobileUnit
operations.Inaddition,disclosure
requirementshavebeenadded,forexample
becausethepolicehasbegunworkingmore
inlinksandnetworks,e.g.incommunity
regeneration.Thepoliceorganisationisalso
burdenedwithinformationobligationsin
connectionwithmeasuringemployee
satisfactionorworkingconditionsburden,the
supportoftheannualreporting.
The professional TheMinisterofV&J14hassetthetargetof
reducingtheregulatoryburdenonthepolice
professional.Thishasledtothe‘Fewerrules,
morecopsonthebeat’Campaign.Inthat
context,hehasaskedActalfor
recommendations.
Regulatory Burden on the Police Constable,
the Detective and the Operational Manager
Inpreparationfortherecommendation,Actal
heldconsultationswithvariousstakeholders.
CommissionedbyActal,USBOAdvies
(UniversityofUtrecht)15carriedoutthe
researchstudy‘ResponsibleEnquiries’.This
isapracticalstudyinfivepoliceforcesinto
theregulatoryburdenonthreepolice
professionals:thepoliceconstable,the
detectiveandtheoperationalmanager.
Thestudyhasclearlyshownthatowingtoa
lackofsimpleprocedures,fine-tuningand
poorlyfunctioningsystems,thereislossof
capacityinthepoliceorganisation.
Actal Annual Report 2011
Leeway for the Police Professional
JantenHoopen,ChairmanoftheBoard
handedovertherecommendationLeewayfor
thepoliceprofessionalon31October2011
totheMinisterofV&J.Thistookplaceatthe
officeandinthepresenceofthestaffofthe
OverboschpolicestationinTheHague.Actal
believesthatamoreefficientpolice
organisationwouldbenefitfrommore
flexibilityfortheprofessional.
Therecommendationsfallintothree
categories:
1.Reductionofregulatoryburdenin
theworkplace.
2.Strengtheningmanagementandcontrol
inthesystem.
3.Considerationofregulatoryburdenin
newpolicy.
Workplace
Therecommendationsaretargetedprimarily
atthedailyworkofthepolice,suchas
simplifyingproceduresandreducing
informationrequeststoandwithinthepolice.
Whatneedstobeavoidedisthatan
incidentalrequestforinformationleadsto
structuralprovisionofdataforthestage.
System
Actalrecommendsbringingtheexchangeof
informationwithlinkedpartners,suchasthe
OM16inlinewiththecontemporarytechnical
opportunitiesofferedbyelectronic
communication.Inthecourseoftheirservice,
itisoftennecessaryforpoliceprofessionals
tocopyrecordsfortheOM,becausethese
mustbeprintedwithmultiplecopiesand
delivered.Thiswastesexpensivepolicetime.
Thesameholdstrueforcomplicated
approvalproceduresindetection,where
multipleformsarefaxedbackandforth
betweenOMandthepolice,whichistime-
wasting.Thisisawasteofvaluabletimefor
actualpoliceworkandmeansthatpoliceend
upworkinglessdirectlyandlesseffectively.
Don’t mop up while the tap is still running
Thirdly,itisnotonlyveryimportantto
streamlineandreviseexistingrulesand
procedures.
Quotes from the practical study
‘ When a report is made of alcohol abuse, the person arrested is sober when he can go home. The system is very labour-intensive.’
‘ If I recorded everything I am supposed to record, I would never get back into the neighbourhood. I write everything down in my notebook, my own system.’
Actal Annual Report 2011
Toactuallygetmorepoliceonthestreetin
thelongterm,itisalsonecessarytoassess
newruleswithrespecttohowmuch
commitmentofcapacitytheyaredemanding
fromthecorps.Actalrecommendsexpressly
involvingtheworkplaceinthis.Onlythencan
thereductionofbureaucracywithinthepolice
organisationstructurallydecline.
Progress Report on the ‘Fewer Rules,
More Cops on the Beat’ Campaign
On19December2011,theMinisterofV&J
presentedtheprogressreportonhis‘Fewer
rules,morecopsonthebeat’Campaignto
theLowerHouse.Actalvaluestheapproach
oftheMinisterandthewayhegiveshis
reactioninthisreportontheActal
RecommendationLeewayforthepolice
professional.
TheMinisterembracesmostofActal’s
recommendations.Actalremainsconcerned
aboutwhethertherearesufficientsafeguards
topreventnewregulatoryburdeninthe
future.TherecommendationtotheMinister
(andallfutureministers)istotaketheeffects
ofnewpoliciesunderreviewproperly(and
quantitatively)andtoindicatehowany
increasesinregulatoryburdenaretobe
compensated.Onlyinthiswaycanthe
regulatoryburdenforthepolicebelimitedin
thefuture.
Actal Annual Report 2011
authoritiesarejointlyresponsibleforthisyearlyreductionof
administrativeburdens.TheCabinetalsostronglysupportsa
reductionofregulatoryburdenforprofessionals.
AtthestartoftheRutte-VerhagenCabinet,thetotaladministrative
burdenamountedtoabout7.5billionEuros.TheCabinethasset
atargetthatby2015onequarterofthiswillberemoved.
Attheendof2011,theCabinethasanetdecreaseinadministrative
burdenofalmost22%initssights.
AtthestartoftheCabinet,thetotaladministrativeburdenforcitizens
amountedtoover78millionhoursand755millionEuros.Upuntil
2012,therehasbeenabottomlinewherebyanyincreaseswillbe
compensatedforbydecreases.Itistheintentionthatafter2012,the
administrativeburdenwillbereducedby5%perannum.
Fromthedatamadeavailableattheendof2011,itappearsthatthe
administrativeburdenforcitizensin2015willhavefallenby17%in
timeand3%incosts.
In selecting topics for strategic recommendations, the challenge is to come up with practical ways to relieve the regulatory burden.
Forstrategicadvice,Actalusesthreeperspectives:the(Cabinet)
approach,specifictargetgroupsandspecificaspectssuchastheuse
ofICTtoreduceregulatoryburden.Inthischapter,anumberof
recommendationsareexplained.Ineachofthesectionsentitled
citizen,businessandprofessionaltherearealsostrategic
recommendationsrelatingtothatspecifictargetgroup.
5.1
Strategic recommendation on the approach
Thestartingpointforthereductionofregulatoryburdenispolitical
ambitions.IntheFreedomandResponsibilitycoalitionagreementof
2010,theRutte-VerhagenCabinetdeterminedthattheadministrative
burdenandregulatoryburdenforbusinessesin2012comparedto
2010weretodecreaseby10%.After2012,theadministrativeburden
onbusinessesandcitizenshastodecreaseannuallyby5%.Inthe
covenantbetweennational,provincial,localandregionalwater
authoritiesithasbeenfurtherspecifiedthattheGovernmentandlocal
5. Strategic recommendation
Actal Annual Report 2011
AkeypointintheActalrecommendationwastolimitsubstantivecom-
pliancecosts.TheCabinetwishestoreduceextraneouscompliance
costsseenbybusinessasanuisanceandtoavoidnewcompliance
costs.Thereisnobaselineavailableforthesecosts.Thatmeans
thatitisnotknownhowhighthesubstantivecompliancecostsare
atthestartoftheRutte-VerhagenCabinet.TheCabinethassetno
percentagereductiontarget,buthasresolvedtoreducecompliance
costsarisingfromnationalregulationbyaminimumof200million
Euros.
Inaddition,theCabinethasnoambitiontoactinthereductionof
compliancecostsarisingfromEuropeanlegislation,whiletheCabinet
isawarethatthecompliancecostsarisingfromEUlegislationcould
increaseby1.2billionEuros.Inthis,theCabinetseemstobeignoring
sofartheimportanceofensuringasubstantialdecreaseofcompliance
costsnationallyandworkingfirmlyatreducingcompliancecosts
arisingfromEuropeanregulations.
Businesseshavecompliancecostsanditmakesnodifferencefor
businesseswhetherthesecostsarisefromregulationsemanating
fromTheHagueorBrussels.Actalthereforeadvocatesanincreasein
theambitiontoreducenetcompliancecostsby200millionEurosand
toimplementEuropeanlegislationwithmoreprotectionfromburdens.
Itisfurthermoreofgreatimportancethatgold-platingofEuropean
regulationsbeavoided.Thatrelatestoallaspectsofregulatory
burden,bothsubstantivecompliancecostsandadministrative
burdens.
Recommendation on Tougher Approach to Reducing
Regulatory Burden
WithintheRutte-VerhagenCabinet,theMinistersofELIandBZKare
taskedwithcoordinatingthereductionofregulatoryburden.In
September2011,theypresentedtwoprogressreportstotheLower
House.ThesearethereportentitledProgressontheregulatory
burdenProgrammeforBusinesses2011–2015anditsappendices
showingtheincreasesanddecreasesinadministrativeburdensand
substantivecompliancecosts.Thiswasthesecondreportofthe
MinisterofELI.On7February2011,theregulatoryburden
ProgrammeforBusinesseswaspresentedtotheLowerHouse.
TheprogressreportofSeptember2011onregulatoryburdenfor
citizens,professionalsandamongstGovernmentdepartmentsisthe
firstmemorandumonreducingregulatoryburdenfromtheMinister
ofBZK.
TheActalrecommendationentitledTougherapproachtoreducing
regulatoryburdenof27October2011wasfocussedontheattainment
ofthegoalsthattheCabinethassetitself.Actalhasurgedthe
Cabinettobemoreambitiousinthereductionofregulatoryburden.
Bythetimethenextprogressreportsarepublished,theCabinetwill
behalf-waythroughitsterm.AccordingtoActal,atthatpointintimeit
needstobeunambiguouslyclearhowareductionof25%in
administrativeburdensforbusinessesandcitizensisgoingtobe
achieved.
Actal Annual Report 2011
reductionofregulatoryburdenforprofessionalsandrecommendsthat
suchatargetbeset.
TheCabinetintendstocarryoutfivemajordecentralisationsandaims
tohavethedecentralisationstakeplacewithlittleregulatoryburden.
AccordingtoActal,thefirststepinthatdirectionwouldbeforthefive
areasfordecentralisation(TheWorkingtoCapacityAct,The
ExceptionalMedicalExpensesActGuidance,YouthCare,‘Space,
NatureandEconomy’andWater)toprovideinsightinto:
- Whatthestructuralandone-offconsequencesareforregulatory
burdenforbusinesses,citizens,professionalsaswellaslocal
authoritiesandimplementationagencies.
- Whatistheleastburdensomealternativeis.
Provincial Reduction of Regulatory Burden
AftertheelectionsfortheStates-Provincial,Actalbeganasking
provincesinearly2011forrenewedfocusonthereductionof
administrativeburdensandregulatoryburden.AccordingtoActal,itis
alsowithinthepowerofprovincialexecutiveswhendraftingprovincial
coalitionagreementstoagreeonthereductionofregulatoryburden.
ToallthosechargedwithformingthesecoalitionsActalmadethe
suggestionthatnewregulatoryburdenbeavoidedbyagreeinga
‘baselineforregulatoryburden’.Itisimportantthatprovincial
executivestakeunderreviewtheconsequencesofnewpoliciesand
policyalternativesanddedicatethemselvestoanoticeable
improvementinserviceprovision.Thelimitationofregulatoryburden
isanongoingjointresponsibilityofallauthorities.Initslettertothose
ActalanticipatesthatregulatoryburdenintheNetherlandscould
decreaseiftheCabinetdoesnotimplement‘optionalprovisions’,but
onlythemandatorypartsofexistingorfutureEuropeanregulation,
unlesstherearecompellingreasonsforimplementation.Regulatory
burdenresultingfromimplementationof‘optionalprovisions’on
compellinggroundsshould,accordingtoActal,betakenbelowthe
baselineandthusbecompensatedfor.
TheCabinethasembracedthisActalrecommendationandbelieves
that‘optionalprovisions’mayonlybeimplementediftherearetruly
compellingconsiderations.Inmid-2012,aCabinetinvestigationon
thisshouldbecompleted.Theresultsoftheresearchwillbe
publishedinthenextprogressreporttotheLowerHouse.
TheCabinethasindicatedthatthesuccessoftheambitionsdepends
ontheactualimplementationofmeasuresandtheusebycitizensof
thepossibilitiesthate-governmentoffers.TheCabinetexpectsthat
duringthetermofthecurrentCabinet,thee-governmentwillensurea
reductionoftimeexpenditurebyapproximately7%.Actaladvocates
preventingthedisappearanceofICTusersfromsight,andinvolving
usersnotonlythroughthedevelopmentofICT,butalsobydrawingup
aseparatebusinesscaserelevanttoeachusersegment.
Actalalsoconsidersitimportanttoinvolveprofessionalsinthe
creationofnewregulations,sotheimplicationsforregulatoryburden
canalreadybetriedoutatthedesignphase.WithintheCabinet’s
approach,ActalmissesaCabinet-widenetreductiontargetforthe
Actal Annual Report 2011
On23June2011,ActalreceivedaresponsefromtheSecretaryof
StateforForeignAffairstotherecommendation.Manyofthepointsof
recommendationwereendorsedbytheDepartmentandadopted.
Thus,theSecretaryofStateforForeignAffairsacknowledgesthe
needtoredesigntheapplicationprocess,becausetheregulatory
burdenofthecurrentapplicationprocedureistoohigh.Fromthe
responseoftheSecretaryofStateforForeignAffairs,itwouldappear
thathehastakenActal’sconclusionabouttheaccountabilitysystem
ofMFSIItoheart.Hepromisesinhislettertoconsultwiththe
organisationsonthebestwayofaccountingfortheexpenditureof
grantmoney.
5.3
Strategic recommendation on a specific angle
Recommendation on Regulatory Burden of the Programme for
Sustainable Procurement
On6January2011,attherequestoftheformerMinistryofVROM,18
ActalissuedarecommendationaboutpolicyrelatingtoSustainable
Procurement.Therecommendationgaverisetoanintensedebatein
theLowerHouseandtheSecretaryofStaterequestedanumberof
organisationswithinthesociety(includingVNO-NCWandMVO)19to
jointlyholdtheSustainableProcurementpolicyuptothelight.The
conclusionswhichtheseorganisationscameoutwithinmid-2011
havebeenadoptedbytheSecretaryofStateandarebroadly
consistentwiththeActalrecommendation.
chargedwithformingthecoalitions,Actalpushesforthetransitionof
YouthCaretomunicipalitiestobeeffectedwiththegreatestpossible
protectionagainstburdens.
5.2
Strategic recommendation on a specific target group
Recommendation on Regulations in Foreign Aid
In2011,Actalreceivedsignalsontheregulatoryburdenfororganisa-
tionsinvolvedwiththedevelopingworldandhassubsequentlyheld
talkswithvariousdevelopmentorganisations,thetradeassociation,
academicsandtheMinistryofForeignAffairs.Thisrevealedthatthe
Co-financingsystem(MFSII)17–themaingrantarrangementofthe
MinistryofForeignAffairsfordevelopmentcooperation–wasthe
mainsourceofregulatoryburdenfordevelopmentorganisations.
Actalorganisedtwomeetingsofexpertsonthesesubsidyregulations.
Theregulatoryburdenfororganisationsinvolvedindevelopment
cooperationcanbesignificantlyreduced.Bothinapplyingforand
justifyingthegrant,thereisalargeregulatoryburdeninvolved.Alarge
grantapplicationwasseentobeaccompaniedby€1,600,000in
regulatoryburden.IntheRecommendationonRegulationsinforeign
aidof30May2011,Actalmadesevenrecommendationstothe
SecretaryofStateforForeignAffairsforreducingtheregulatory
burdenoftheMFSII.
Actal Annual Report 2011
Themostimportantmarginalnoteinthatrespectisthattheproblem
raisedbyActalabouttheimplementationofthepolicy,asaresultof
theavailableexpertiseofbuyersinthemunicipalities,isbeing
insufficientlyaddressed.
The(former)Cabinetoptedforaroleas‘launchingcustomer’inthe
SustainableProcurementtowhichtheActalrecommendationrelates.
Insodoing,usewasmadeoftheinstrumentofSustainable
Procurementbasedonenvironmentalandsocialcriteria.Thischoice
ofinstrumentshasmajorimplicationsfortheregulatoryburdenon
businesses,whilethereisconsiderableuncertaintyabouttheextent
towhichthepolicyinstrumentcontributestotheultimatepolicygoal
ofsustainability.TheActalrecommendationthereforereads:
- Eliminateproductcriteriathatcorrespondtocurrentlegislation
andregulations.
- Makeambitionsforsustainabilityclearandindicatewhichsustain-
abilitygoalsentrepreneursmustmeetandbywhen.
- Discontinuetheprocurementbasedonsustainabilitycriteria,since
itisuncertainthatitcontributestorealsustainabilityforthesector
involved.
Actal Annual Report 2011
Inordertoobtainsignals,Actalalsoconductsinterviewswithand
visitssectors,umbrellaorganisations,socialinstitutionsandindividual
businessesandcivicorganisations,departments,executive
organisationsandHighCouncilsofState.
Manner of Working
Actalreceivesperiodicsummariesofsignals.Thesignalsare
assessedontheamountofregulatoryburdenandthesocialimpact.
Politicalfeasibilityisalsoanimportantcriterion:isitcurrentlyrealistic
torecommendadjustmenttopoliciesorregulations?Orwouldalater
time(e.g.duringevaluationoflegislation)bemoresuitable?
Actalendeavourstobundlesignalsasmuchaspossibleintoasolidly
basedrecommendation.Thesignalsarethereforeclassifiedby
subject,e.g.buildingregulations.
Therearemanywaystodevelopasubjectintoarecommendation.
Often,moreinformationisneeded.Actalsolicitsinformationfrom
therelevantministries,butalsofromcitizens,businessesor
professionalswhohavetodealwiththeregulations.Actalhas
extensiveexperienceinorganising‘expertpanels’:round-table
discussionswithbusinesses,citizensandprofessionals.ThenActal
draftsarecommendationthatissenttotheMinister.Thismethod
showsgreatsimilarity,forexample,tothatoftheCourtofAudit.
As from 1 June 2011, Actal’s mandate is to include actual signals from society in the basis for strategic recommendations. To this end, the Cabinet expects Actal to also employ ‘naming and shaming’: who does well and who misses the mark.
Thisnewroledemandsadifferent,newmethodofworkingfromActal.
Thecollectionanduseofsignalsmustbecomeapermanent
componentofActal’swork.Thischapteroutlinesthedevelopments.
Approach
Therearealreadymanycentresforbusinesses,citizensand
professionalstoreportsignalsonregulatoryburdenandpoorservice
provisionbytheGovernment.Actalisthereforemakingmaximumuse
ofthefacilitiesalreadyinexistence.Incooperationagreementswith
thedigitaloffice‘AnswersforBusiness’andwiththeChambersof
Commerce,itwasagreedthattheywouldcollectsignalsabout
regulatoryburdenandforwardthemtoActal.Inaddition,there
areagreementsontheexchangeofsignalswithVNO-NCW,the
DirectorateofregulatoryburdenandICTpolicy(MinistryofELI)and
theManagementoftheProgrammeforregulatoryburdenandservice
provision(MinistryofBZK)abouttheexchangeofsignals.
6. Signals from society
Actal Annual Report 2011
theadministrativeburdenonbusinesseswithoutsacrificingthesafety
ofplaygroundequipment.
Preventing New Regulatory Burden
Actalwishesnotonlytoremoveexistingregulatoryburden,butalso
seeksopportunitiestopreventregulatoryburden.Regulatoryburden
arises,forexample,whenregulationsarenolongerinkeepingwith
practice,asinthecaseofself-employedpersons.22Regulatory
burdenarisesbecauselegislatorsdonotrespondtodevelopmentsin
societyorrespondtoolate.Initsrecommendations,Actalwouldlike
totieinmorecloselywithsocialdevelopments.Thechallengeinthis
ishowthesesocialdevelopmentscanbeidentifiedintimeandwhich
socialdevelopmentsshouldgiverisetoarecommendationfromActal.
Recommendation on Logbooks for Playground Equipment
Inresponsetoasignalfrombusinessonthemandatorymaintenance
oflogbooksforplaygroundequipment(suchasaswing),attheend
of2011,ActalissuedarecommendationtotheMinistersofVWS
andELI.
Alogbookisadocumentinwhichdataaboutinspections,accidents,
replacementofpartsandthelikearekept.Foreveryitemof
playgroundequipment,theuseofalogbookisrequiredunderthe
WarenwetbesluitAttractie-enSpeeltoestellen(WAS).20ThisDutch
requirement,whichisnotbasedonEuropeanlegislationaimsto
increasethesafetyofplaygroundequipment.
Actalascertainedthatthereisnodemonstrableevidencethatthe
objectiveisachievedbykeepingtherequiredlogs.Specifically,the
logbookdoesnotnecessarilyreflectthereality.Thequality
requirementsformanufacture,inspection,managementanduseof
playgroundequipmentandthesupervisioncarriedoutbythenVWA21
meansthatthekeepingofalogisaminimallyeffectivetooltoensure
thesafetyoftheplaygroundequipment.Furthermore,thereareless
burdensomealternativesforincreasingsafetyawarenessamongst
managersofplaygroundequipmentandforthemanagertoshowthat
hehastakenresponsibility.
WiththeabolitionfromDutchlegislationofthisrequirement,as
recommendedbyActal,themanagercandecidehowtofulfilhis
responsibility.Thisreducesirritationamongstmanagersandreduces
Actal Annual Report 2011
- RegulatoryburdenoftheProgramme
forSustainableProcurement January2011
- LessregulatoryburdenonCare May2011
- RegulationsinForeignAid May2011
- BuildingBlocksforFewerRegulations September2011
- LeewayforthePoliceProfessional October2011
- TougherApproachtoReducingregulatoryburden October2011
Appendix 1 Strategic recommendations
Actal Annual Report 2011
- SubstantiveComplianceBurdensoftheGovernmentSustainable
ProcurementProgramme;researchintofoursectors
- Effectsofamendmentsonadministrativeburdensandregulatory
burden;Researchintotheeffectsofamendmentson
administrativeburdensandregulatoryburden
- ChronicallyRegulated,TrustasaStartingPointforLessregulatory
burdenforOlderChronicallyIllPatientsandtheirHealthcare
Professionals
- ChronicallyRegulated,Casestudy:RegulatoryburdenofCOPD
patientAnnetteandherhealthcareprofessionals
- ResponsibleEnquiries,Backgroundandapproachtodisclosure
requirementsforpoliceprofessionals
Appendix 2 Investigations
Actal Annual Report 2011
ActalhasthreeBoardmembers:MrJ.(Jan)tenHoopen(Chair),
MrsL.L.(Lili)DoudevanTroostwijkandMr.E.(Eric)Helder,Attorney.
TheBoardissupportedbyasecretary,Mr.R.W.(Rudy)vanZijp,
andthefollowingstaffmembers.
Appendix 3 Organisation
Staff member Department
Mr.J.A.(Jeroen)vanBockel BZK
Mrs.R.P.M.(Renate)Ham ELI
Mr.P.T.(Tim)vanderHofstede I&M
Mr.M.J.P.M.(Marcel)Kieviet SZW,VWS
Mrs.F.J.G.(Saskia)vanKlink V&J
Mr.P.B.(Patrick)Lut I&M
Mrs.C.(Claire)Mesman VWS
Mrs.P.(Paulien)Officier ELI
Mr.H.(Herman)Schippers Finance,BZ
Mr.J.A.(Jaap)Sleifer OCW23
Mr.A.A.(Ahmed)Moaty Policysupportofficer
Mrs.P.C.(Paulina)Sterling Secretary
Mrs.R.A.(Ria)Huisman Secretary
Actal Annual Report 2011
Colophon
Text and editing Actal,TheHague
Concept and realisationVormVijf,TheHague
PhotographyIngevanMill,TheHague
Translation Vertaalbureau.nl,Amsterdam
ActalLangeVoorhout58
P.O.B.16228
2500BETheHague
T +31703108666
F +31703108679
I www.actal.nl
©2012Actal,TheHague
Figures
Parliament
Inspecting & implementing
bodies
Local authorities
(Sector organisations of)
businesses, citizens and professionals
Request for recommendations
and signals
Request for recommendations
and signals
Assessment and recommendation
Assessment and recommendation
Work visits
Signals
Signals
Recommendation
Assessment and recommendation
Signals
Cabinet and Ministries
FIGURE 1
Actal’s national playing field
January 2007Commission proposesto launch an Action Programme
Summer 2007Launch of the Action Programme
Spring 2008Finalisation of the mapping of IOs
January 2009First results of AB measurement
Summer 2009Finalisation of the EU baseline measurement
2010-2011Implementation of the Sectoral Reduction Plans (possible extension)
Continuous: gathering ideas, developing proposals and adopting measures for reducing Administrative Burdens on Business
March 2007European Council agrees with the target for EU legislation and invites Member States to set ambitious national targets
January 2009Commission decides to extend the scope of the Action Programme to 30 EU acts
October 2009Commission presents Sectoral Reduction Plans
2012End of the Action Programme
2012Reduction potential of measures adopted: -25%
2007 2008 2009 2010 2011 2012
FIGURE 2
Timeline of Action Programme
Source:EuropeanCommission
PC
DS
RPC
GPC
UM
TC
SL
MV
UM
Respiratorynurse
Generalpractitioner
Pharmacist
Social InsuranceExecutive
Care AssessmentCentre
Care Office
Central AdministrationOffice AWBZ
Healthcare Insurer
Tax Authorities
Taxi card (TC)
Care surcharge (CS) CS
Use of medication (UM)
Use of medication (UM)
General Practitioner consultation (GPC)
Municipality
RPC
RPC
UM
UM
PC
PC
PC
GPC
TC
SL
MV
Ann
ette
Annette
DS
PCHome Care
RPC
RPC
RPC
GPC
PC
PC
PC
PC
DS
DS
DS
DS
DS
Respiratoryphysician
Mobility vehicle (MV)
Stairlift (SL)
Personal care (PC)
Domestic support (DS)
Respiratory physician consultation(RPC)
Use of medication (UM)
FIGURE 4
Application, indication and justification for Annette
Source:Ecorys2011
Analysis of organisation
Verificationphase
Reportingphase
January – February March – April May - June
Assessmentphase
Autumn 2011
FIGURE 5
Phases System Assessment
Social security agency
Labour Inspectorate
CitizensLocal
police constable
Detective
Operational police manager
Municipality (sections)
Government departments
Tax authorities
Social work
Housing association
Police force
Police district
Immediate colleagues
Public Prosecutor
Youth care
Probation Service
City surveillance
FIGURE 6
The police professional and his enquirers
Source:ResponsibleEnquiriesUSBOAdvies