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Slovak Republic

Participatory Analysis of Prosecutor's Affairs (SK0117)



Action Plan: Slovak Republic National Action Plan 2017-2019

Action Plan Cycle: 2017

Status: Inactive


Lead Institution: Deputy Prime Minister and the Minister of Justice in cooperation with the Attorney-General

Support Institution(s): NA

Policy Areas

E-Government, Justice, Legislation & Regulation, Open Justice, Public Participation, Regulatory Governance

IRM Review

IRM Report: Slovakia Implementation Report 2017-2019, Slovak Republic Design Report 2017–2019

Starred: No

Early Results: Did Not Change

Design i

Verifiable: Yes

Relevant to OGP Values: Civic Participation , Public Accountability

Potential Impact:

Implementation i



According to the current law, the Disciplinary Proceedings in Prosecutors' Matters are conducted by the Disciplinary Commission set up at the General Prosecutor's Office.44 Only Prosecutors can be members and chairs of Disciplinary Commissions. The term of office of Disciplinary Commissions is three years, and the same person may be appointed to the Disciplinary Commission repeatedly. The Attorney-General decides on all issues concerning the appointment of Disciplinary Commissions - including the appointment of mem-bers of Disciplinary Commissions, chairs and substitutes (both first and second instance), makes decisions about replacing chairs / substitutes, and about excluding an individual Disciplinary Commission member from a hearing and from ruling on the basis of bias. The Prosecutors' Council decides on the principles of filling disciplinary commissions and creating a list of alternates, proposes the chairs, members and alter-nates of disciplinary commissions. sions should ensure balanced influence of the bodies representing the prosecution authorities, representa-tives representing the protection of rights and the interests of prosecutors and entities representing the external or Public control".
Commitment No. 60: In a participatory manner, conduct an analysis of disciplinary proceedings in prose-cutors' affairs and create draft legislative changes in order to increase the transparency of these discipli-nary proceedings.
The motion to initiate disciplinary proceedings may be filed by the Attorney-General (against any prosecu-tor), the Public Defender of Rights, the Deputy Attorney-General and the respective Regional Prosecutor or District Prosecutor. The decision of the first-instance Disciplinary Commission may be appealed. The appeal is addressed by a five-member second-instance Disciplinary Commission. The final decision issued in disci-plinary proceedings is reviewable by a court.
There are several consequences of the existing legal framework:
 Attorney-General has a particularly strong position and has the power to decide about the ap-pointment, replacement, as well as bias of the members of the Disciplinary Commissions, and is al-so entitled to make a motion to initiate disciplinary proceedings. He is therefore both the proposer and the creator of the body that decides on the proposal.
 Although the Prosecutors' Council proposes the members of the disciplinary commissions, it de-cides only on the principles of filling the disciplinary commissions, the use of substitutes and filling in the database of candidates for the members of the disciplinary commissions and the procedure for the allocation of cases to individual commissions.
 Disciplinary proceedings are formally public, but since the members of the Disciplinary Commis-sions include only prosecutors, this is a closed system without real public control. Such a situation can not only be abused to harass prosecutors but also lead to insufficient (or nonobjective) ac-countability because the guilt is decided by colleagues.
 Laws on prosecution also do not explicitly address who can initiate disciplinary action against the Attorney-General.
It is clear from the Constitutional Court's finding45 that the Prosecutor's Office is a special constitutional body of legal protection for which there is a legitimate requirement for such a legal regulation that will allow public control over the activities of the Prosecutor's Office as well as "an adequate degree of influ-ence of individual constituents of the state authority in relation to the Prosecutor's Office whose purpose is to ensure the proper realization of its mission consisting of an active, fair and impartial procedure in the protection of the public interest, the protection of fundamental rights and freedoms, as well as other rights and legitimately protected interests." According to the Constitutional Court, the disciplinary liability (re-sponsibility) of prosecutors is an institute whose purpose is mainly to direct the work of the prosecution - which is the competence of the Attorney-General. At the same time, however, the Constitutional Court also found that legislation that allows the National Council or constitutional bodies representing the executive branch to nominate candidates to the Disciplinary Commission "has a rational basis, pursues legitimate aims, and therefore cannot be regarded as a manifestation of the legislator's willfulness." The Constitution-al Court stresses that "the legal standards governing the creation and composition of disciplinary commis

IRM Midterm Status Summary

THEME - Improve prosecutors  
Comm 58, 59, 60, 61

Language of the commitment as it appears in the action plan[Note : The Office of the Plenipotentiary, “Open Government Partnership National Action Plan of the Slovak Republic 2017 – 2019”, ]:

Commitment 58: “Prepare and submit to the Government a draft of the Act amending Act No. 154/2001 Coll. on prosecutors and Lawyers of the Public Prosecutor's, that will ensure the publication of the seat of office of individual prosecutors”.

Commitment 59: “Create draft legislation to extend the right to recommend candidates for the post of Attorney-General”.

Commitment 60: “In a participatory manner, conduct an analysis of disciplinary proceedings in prosecutors' affairs and create draft legislative changes in order to increase the transparency of these disciplinary proceedings.”

Commitment 61: “In a participatory manner, analyze the selection procedures for the prosecutor's office, including draft legislative changes, in order to increase their transparency.”

Start Date: Not specified                

End Date: 31 July 2018


Context and Objectives

According to the reports from the European Anti-Fraud Office (OLAF) the indictment rate was 18% in Slovakia 2017[Note : European Anti-Fraud Office, “The OLAF report 2017,” ]. The EU average indictment rate was 42% in 2017. The Transparency International Slovakia informed that although there have been some improvements in punishing corruption, and for instance, the number of solved cases of bribery above a thousand euro has increased, the number of cases of grand corruption linked to high-level public officials has been continuously very low and enjoyed impunity[Note : Transparency International Slovakia, „Napriek zlepšeniu „veľké ryby“ stále nechytáme“ (Despite improvements we still do not catch ‘big fish’) (in Slovak)]. Prosecutors, along with the police, play a crucial role in investigating and prosecuting cases of corruption, as they file indictments to courts. The Office of Special Prosecutor, which is responsible for ‘corruption agenda’, has accused the lowest number of people since 2009. As Transparency International concludes it might signalize that prosecutors overlook corruption cases[Note : Transparency International Slovakia, (in Slovak)]

The latest report by the Group of States Against Corruption (GRECO) and Council of Europe (CoE)[Note : Group of states against corruption and Council of Europe, “Second compliance report Slovak republic: Corruption prevention in respect of members of parliament, judges and prosecutors”,] concluded that as regards prosecutors, “several developments are to be welcomed”. In particular, they praised the adoption of the Code of Ethics, an introduction of the obligation to declare gifts and liabilities above a certain threshold. GRECO and CoE also welcomed the amendment of the Act on prosecutors and prosecutors’ candidates[Note : SLOV-LEX (Legal and information portal), The Ministry of Justice, “The Act on prosecutors and prosecutor candidates no. 154/2001 Coll.”, (in Slovak).], which included an obligation to disclose publicly and regularly update a list of all prosecutors’ names on the website of the Prosecutor General’s Office. Since then the Prosecutor General’s Office has updated this list regularly with the latest update being made on 19 November 2018[Note : The list of prosecutors published on the website of the Prosecutor General’s Office, (in Slovak).]. The experts interviewed for the previous IRM report agreed that this was an important first step towards greater transparency and an achievement that would not be possible without OGP action plan in place[Note : Mária Žuffová, Open Government Partnership, “Slovakia Special Accountability Report 2014 - 2015”,]. The public availability of prosecutors’ names also addressed the problem with access to affidavits and asset declarations. In addition to that, the Prosecutor General’s Office made available a tool for searching asset declarations by name on its website[Note : The tool for searching prosecutors’ asset declarations is available on the website of the Prosecutor General’s Office, (in Slovak). ].

New commitments aimed at greater transparency, such as Commitment 58 to disclose the seat of prosecutors is useful and specific enough to be verified. Currently, the appointment of the Attorney General is political, as MPs propose the nominees. Commitment 59 to extend the right to propose nominees for the post of the Attorney General to legal professionals is a positive measure, which makes the appointment of the Attorney General less political. However, this commitment is not relevant to any of the OGP values of access to information, civic participation or public accountability.

The interviewed experts stated in the previous IRM report that the executive powers of the Attorney General should be reduced, and both selection and disciplinary procedures should be made more transparent[Note : Mária Žuffová, Open Government Partnership, “Slovakia Special Accountability Report 2014 - 2015”,

]. Commitments 60 and 61 to analyze selection and disciplinary procedures for prosecutors could potentially address these issues and help to trigger changes.  However, commitments do not specify how the analysis could be used and what the consequences of it would be, therefore the potential impact of these commitments is minor.  

Next steps

The IRM researcher recommends that the Prosecutor General’s Office makes the analyses on selection and disciplinary procedures publicly available and clarify how it will further use the findings.

IRM End of Term Status Summary

For details on each commitment, see Slovakia Implementation Report 2017-2019.


  1. Publish Implementation Plans for Regulations

    SK0126, 2019, E-Government

  2. Regularly Publish Government Datasets

    SK0127, 2019, Access to Information

  3. Publish Data on Use of EU Grant Funding

    SK0128, 2019, Aid

  4. Publish Beneficial Ownership Data

    SK0129, 2019, Anti-Corruption

  5. Educational Resources Portal

    SK0130, 2019, Capacity Building

  6. National Open Science Strategy

    SK0131, 2019, Capacity Building

  7. Continuous Education for Participatory Policymaking

    SK0132, 2019, Capacity Building

  8. Report on Public Participation in Lawmaking

    SK0133, 2019, Public Participation

  9. Civil Society - Government Partnerships

    SK0134, 2019, Local Commitments

  10. Legislation Materials Portal

    SK0135, 2019, Access to Information

  11. Monitor Fulfillment of the Next Action Plan

    SK0136, 2019, Public Participation

  12. Open Data Portal

    SK0058, 2017, Access to Information

  13. Submit a Draft Law on Data to the Government.

    SK0059, 2017, Access to Information

  14. Public Administration Employee Training

    SK0060, 2017, Access to Information

  15. Data Publication Standards

    SK0061, 2017, Access to Information

  16. Update Open Data Portal

    SK0062, 2017, Access to Information

  17. Open Data Publication

    SK0063, 2017, Access to Information

  18. Open Data Awareness-Raising

    SK0064, 2017, Access to Information

  19. Survey About Open Data

    SK0065, 2017, Access to Information

  20. Publish Open Data

    SK0066, 2017, Access to Information

  21. Analysis of Open Data

    SK0067, 2017, Access to Information

  22. Open Data Strategy

    SK0068, 2017, Access to Information

  23. Develop Standards for Publicly Available Application Programming Interfaces and Submit Them to the Commission for the Standardization of Information Systems in Public Administration.

    SK0069, 2017, E-Government

  24. Ensure Open Data Publication

    SK0070, 2017, Access to Information

  25. Survey of Public Demand for Application Programming Interfaces

    SK0071, 2017, E-Government

  26. Publish Application Programming Interfaces

    SK0072, 2017, Access to Information

  27. Enable the Disclosure of Source Code and Development Using Open Methods for Newly Developed Plug-Ins and Extensions of Web Browsers and Client Applications.

    SK0073, 2017, Access to Information

  28. Custom-Made Information Systems

    SK0074, 2017, Access to Information

  29. Publish Open Source Software Data

    SK0075, 2017, Access to Information

  30. Study About Open Source Software

    SK0076, 2017, Access to Information

  31. Feasibility Study on NGO Satellite Account

    SK0077, 2017, Access to Information

  32. Define the Minimum Scope and Structure of the Disclosed Data on the Use of European Structural and Investment Funds, the EEA Financial Mechanism, Norwegian Financial Mechanism, the Swiss Financial Mechanism and Subsidy Schemes From the State Budget.

    SK0078, 2017, Aid

  33. Publish Financial Data

    SK0079, 2017, Access to Information

  34. Propose Changes to Central Register of Contracts Regulation

    SK0080, 2017, Anti-Corruption

  35. Create Space for the Publication of Local Self-Government (Municipality) Contracts in a Single Central Repository.

    SK0081, 2017, Anti-Corruption

  36. Establish and Operate a Repository of the Ministry of Education, Science, Research and Sport of the Slovak Republic for Storage, Long-Term Archiving and Access to Educational Resources.

    SK0082, 2017, Access to Information

  37. Open Education Resources

    SK0083, 2017, Access to Information

  38. Reach Out to Partners Who Have Provided Educational Resources After 2008 to the Ministry of Education, Science, Research and Sport of the Slovak Republic Or to Its Directly Managed OrGanizations, with a Suggestion to Make Educational Resources Available Under the Creative Commons Attribution (CC BY) Public License.

    SK0084, 2017, E-Government

  39. Enforce Public Licensing

    SK0085, 2017, Education

  40. Make Educational Resources Available in Local Langage

    SK0086, 2017, Education

  41. Ensure Availability of University Textbooks

    SK0087, 2017, Access to Information

  42. Introduce Specific Rules for Open Publication and the Obligation to Provide Free Access of Selected Publicly Funded Publica-Tions

    SK0088, 2017, Access to Information

  43. Analyze the Possibility of Applying Creative Commons Attribution (CC BY) Public License As Standard for Selected Works Mandatorily Published in the Central Registry of Theses and Dissertations.

    SK0089, 2017, E-Government

  44. Awareness-Raising About Open Education Resources

    SK0090, 2017, E-Government

  45. Publish the Outcomes of the Approval Process of Educational Resources on the Web-Site of the Ministry of Education, Science, Research and Sport of the Slovak Republic.

    SK0091, 2017, Access to Information

  46. To Introduce the Basic Principles of Open Access to Scientific Publications Under a Public License Under the Operational Program Research and Innovation.

    SK0092, 2017, Access to Information

  47. Ensure the Implementation of Public License Creative Commons Attribution (CC BY)

    SK0093, 2017, Access to Information

  48. Establish Contact Office for Open Access.

    SK0094, 2017, Access to Information

  49. Establish Conditions for Passportization of Open Research Data Under a Public License and Monitor Its Implementation in Practice.

    SK0095, 2017, Access to Information

  50. Establish and Operate a Repository to Provide Storage, Long-Term Archiving and Ac-Cess to Slovak Scientific and Academic Publications, Research Data and Gray Literature.

    SK0096, 2017, Access to Information

  51. Design Systematic Benchmarking Monitoring Mechanisms for the Measurement and Comparison and Propose Further Analyses Related to Acquiring, Processing and Re-Use of Research Data and Open Access Scientific Publications.

    SK0097, 2017, Access to Information

  52. Raise Awareness About Open Access in Academic Community

    SK0098, 2017, Access to Information

  53. Participate in International Coordination on Open Education Reforms

    SK0099, 2017, Access to Information

  54. Participatory Public Policy

    SK0100, 2017, E-Government

  55. Citizen-Traingin on Public Policy Making

    SK0101, 2017, Capacity Building

  56. Create Engaging Public Policies

    SK0102, 2017, Capacity Building

  57. Government Employee Peer-Exchange

    SK0103, 2017, Capacity Building

  58. Evaluate Identified Participatory Processes of Creation and Implementation of Pub-Lic Policies and Disseminate Examples of Good Practice Based on This Evaluation.

    SK0104, 2017, Capacity Building

  59. Promote Partnership and Dialogue Between Public Authorities, Citizens and NGOs at National, Regional and Local Level in the Area of Participatory Public Policy-Making.

    SK0105, 2017, Capacity Building

  60. Propose a Recommendation of Internal Guidelines on the Use of Free On-Line Tools in Participatory Creation of Public Policies.

    SK0106, 2017, Capacity Building

  61. Create Learning Tools in the Field of Participation.

    SK0107, 2017, Capacity Building

  62. Use Educational Tools About Participation in Formal Education Using Informal Learn-Ing Methods.

    SK0108, 2017, E-Government

  63. Develop Recommendations for Embedding Participatory Processes Into Organiza-Tional Processes, Internal Guidelines and Other Documents for the Needs of Central Government Bodies.

    SK0109, 2017, Capacity Building

  64. Reassess the Implementation of the Publication of Assessments of Judges in Terms of the Clarity and Making Further Analysis Easier

    SK0110, 2017, E-Government

  65. Specify Which Court Decisions Do Not Need to Be Published.

    SK0111, 2017, E-Government

  66. Standardize Submission Requirements for Slov-Lex Portal

    SK0112, 2017, Access to Information

  67. Draft Legislation About the Responsibility of Judges

    SK0113, 2017, E-Government

  68. Draft Legislation to Ensure Public Scrutiny of Judges

    SK0114, 2017, Judiciary

  69. Prepare Legislation That Will Ensure the Publication of the Seat of Office of Individual Prosecutors

    SK0115, 2017, E-Government

  70. Create Draft Legislation to Extend the Right to Recommend Candidates for the Post of Attorney-General.

    SK0116, 2017, Legislation & Regulation

  71. Participatory Analysis of Prosecutor's Affairs

    SK0117, 2017, E-Government

  72. In a Participatory Manner, Analyze the Selection Procedures

    SK0118, 2017, Justice

  73. Awareness-Raising About Anti-Social Activities

    SK0119, 2017, Anti-Corruption

  74. Analyze and Evaluate Preliminary Information and Reports on Public Participation in the Process of Drafting and Commenting on Draft Legislation.

    SK0120, 2017, E-Government

  75. Analyze and Evaluate the Effectiveness of the Electronic Collective Petition.

    SK0121, 2017, E-Government

  76. Identify the Person Responsible for Implementing the Tasks of the OGP National Action Plan 2017-2019 in the Organization.

    SK0122, 2017, E-Government

  77. Coordinate the Working Group on the Implementation of the OGP National Action Plan 2017-2019.

    SK0123, 2017,

  78. Develop the Final Evaluation of the OGP National Action Plan 2017-2019.

    SK0124, 2017, E-Government

  79. Prepare and Submit for the Government of the Slovak Republic the OGP National Action Plan for the Following Period.

    SK0125, 2017, E-Government

  80. List of Open Data Datasets

    SK0023, 2015, Access to Information

  81. Publish Open Data

    SK0024, 2015, Access to Information

  82. Survey of Open Data

    SK0025, 2015, Access to Information

  83. Publish Relevant Open Datasets

    SK0026, 2015, Access to Information

  84. Starred commitment Open Data Publication Strategy

    SK0027, 2015, Access to Information

  85. Grant Scheme Open Data Portal

    SK0028, 2015, Access to Information

  86. Web Portal Promotion Campaign

    SK0029, 2015, Access to Information

  87. Evaluate Grant Funding Open Data Application

    SK0030, 2015, Access to Information

  88. Digital Education Resources

    SK0031, 2015, Access to Information

  89. Map Existing Repositories

    SK0032, 2015, Access to Information

  90. Analyze Procurement Process for Education Resources

    SK0033, 2015, Access to Information

  91. Textbook Procurement Process

    SK0034, 2015, Access to Information

  92. Pilot Procurement Process

    SK0035, 2015, Access to Information

  93. Raise Awareness of Education Resources

    SK0036, 2015, Access to Information

  94. Join Multilateral Activities in Europe and Beyond That Support the Creation, Improvement, Sharing and Re-Use of Open Educational Resources.

    SK0037, 2015, Access to Information

  95. Map Existing Scientific Repositories

    SK0038, 2015, Access to Information

  96. Identify Barriers to Open Data Access

    SK0039, 2015, Access to Information

  97. Submit Analysis of Open Data Publication

    SK0040, 2015, Access to Information

  98. Data Publication Mechanism

    SK0041, 2015, Access to Information

  99. Raise Awareness About Open Access in Academic Community

    SK0042, 2015, Access to Information

  100. Assist Other Countries with Open Access Strategy

    SK0043, 2015, Access to Information

  101. Participatory Policy-Making

    SK0044, 2015, Public Participation

  102. Workshops on Public Involvement in Policymaking

    SK0045, 2015, Capacity Building

  103. Starred commitment Develop Public Policy with Civil Society

    SK0047, 2015, Civic Space

  104. Starred commitment Develop Criteria for Evaluating Participation in Policymaking

    SK0048, 2015, Public Participation

  105. Evaluate Policy Creation

    SK0049, 2015, Public Participation

  106. Map Legislative Environments

    SK0050, 2015, Open Parliaments

  107. Carry Out a Public Campaign to Promote the Collective Electronic Petitions.

    SK0051, 2015, Capacity Building

  108. Publish Evaluation of Justices

    SK0052, 2015, Judiciary

  109. Analyze Publication of Judicial Decisions

    SK0053, 2015, Judiciary

  110. Uniform Reporting of Judicial Decisions

    SK0054, 2015, Judiciary

  111. Publish List of Names of Prosecutors

    SK0055, 2015, Judiciary

  112. Final Evaluation of OGP Action Plan

    SK0056, 2015, Public Participation

  113. Develop Next Action Plan

    SK0057, 2015, Public Participation

  114. Starred commitment Open Data Portal Launch

    SK0001, 2012, Access to Information

  115. Publishing Datasets

    SK0002, 2012, Access to Information

  116. Datasets Mapping

    SK0003, 2012, Access to Information

  117. Data Standards

    SK0004, 2012, Access to Information

  118. Improved Register of Contracts

    SK0005, 2012, Fiscal Openness

  119. Starred commitment Continuous Dataset Publising

    SK0006, 2012, Access to Information

  120. Starred commitment ITMS Dataset

    SK0007, 2012, Access to Information

  121. EU Funds and Subsidies Monitoring

    SK0008, 2012, Fiscal Openness

  122. EU Funds and Subsidies Monitoring – Prepare Tender for Web Application

    SK0009, 2012, Anti-Corruption

  123. EU Funds and Subsidies Monitoring – Portal Launch

    SK0010, 2012, E-Government

  124. Participatory Policy Making

    SK0011, 2012, Capacity Building

  125. Starred commitment Apply Participatory Policy Making

    SK0012, 2012, Public Participation

  126. Lawmaking Public Participation Rules

    SK0013, 2012, Legislation & Regulation

  127. Participatory Policy Making

    SK0014, 2012, Public Participation

  128. Collective e-Petitions

    SK0015, 2012, E-petitions

  129. Collective e-Petitions – Draft Amendment

    SK0016, 2012, E-petitions

  130. OGP Steering Committee

    SK0017, 2012,

  131. Transparency Council and Openess Barometer

    SK0018, 2012, Access to Information

  132. Develop Criteria for Transparency Council and Openess Barometer

    SK0019, 2012, Access to Information

  133. Conduct First Evaluation Using Openess Barometer

    SK0020, 2012, Access to Information

  134. Whistleblowers Protection Act

    SK0021, 2012, Anti-Corruption

  135. 2014-2015 Action Plan Development

    SK0022, 2012,

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