Executive Capacity
#16Key Findings
With its comparatively small administration, Luxembourg falls into the upper-middle ranks internationally (rank 16) with respect to executive capacity. Its score on this measure is unchanged relative to its 2014 level.
The country’s small executive has limited resources for strategic planning. While the Prime Minister’s Office is not legally allowed to work with line ministries in policy preparation, no sensitive proposal is presented to the Council of Ministers without the prime minister’s informal approval. In general, informal coordination is very important.
Implementation is generally effective if somewhat slow, particularly when powerful lobbies are involved. A recent municipal-finance reform aims to provide municipalities with greater financial security. A major administrative reform has been underway, with digitalization of government services a key focus of the effort.
RIAs for draft bills are required, but this is not an open and consultative process. Ex post evaluations of legislation are rare. Consultation with unions and other civil society organizations has diminished in recent years. Powerful interest groups such as civil servants can disproportionately affect policy.
The country’s small executive has limited resources for strategic planning. While the Prime Minister’s Office is not legally allowed to work with line ministries in policy preparation, no sensitive proposal is presented to the Council of Ministers without the prime minister’s informal approval. In general, informal coordination is very important.
Implementation is generally effective if somewhat slow, particularly when powerful lobbies are involved. A recent municipal-finance reform aims to provide municipalities with greater financial security. A major administrative reform has been underway, with digitalization of government services a key focus of the effort.
RIAs for draft bills are required, but this is not an open and consultative process. Ex post evaluations of legislation are rare. Consultation with unions and other civil society organizations has diminished in recent years. Powerful interest groups such as civil servants can disproportionately affect policy.
Graph View
Graph View
How much influence do strategic planning units and bodies have on government decision-making?
10
9
9
Strategic planning units and bodies take a long-term view of policy challenges and viable solutions, and they exercise strong influence on government decision-making.
8
7
6
7
6
Strategic planning units and bodies take a long-term view of policy challenges and viable solutions. Their influence on government decision-making is systematic but limited in issue scope or depth of impact.
5
4
3
4
3
Strategic planning units and bodies take a long-term view of policy challenges and viable solutions. Occasionally, they exert some influence on government decision-making.
2
1
1
In practice, there are no units and bodies taking a long-term view of policy challenges and viable solutions.
The country’s small size and the consequently small size of its administration do not allow for sufficient strategic planning. Only a few public bodies offer simulations, such as the National Institute of Statistics and Economic Studies Luxembourg (STATEC) and the General Inspectorate of Social Security (Inspection Générale de la Sécurité Sociale, IGSS). The Economic and Social Council (Conseil économique et social), the University of Luxembourg and the public research institute, Luxembourg Institute of Socioeconomic Research (LISER) offer also analyses. The research department of the central bank (Banque Centrale du Luxembourg), the Conseil national des Finances publiques, the general inspectorate of the financial sector (Commission de surveillance du secteur financier, CSSF) focus on economics and finance planning.
The Ministry of State (led by the prime minister, who is also state minister) is tasked with overseeing institutional relations with the Grand Ducal Court, the Chamber of Deputies and the Council of State.
In January 2020, the government created the Luxembourg Sustainable Finance Initiative in conjunction with several partners including Luxembourg for Finance (the agency for the development of the financial center) and the High Council for Sustainable Development (Conseil Supérieur du Développement Durable), an independent civil society body that advises the Luxembourg government about sustainable development matters. The goal is to raise awareness about, promote and help develop sustainable finance initiatives in the Grand Duchy.
In February 2021, the government adopted the Electronic Governance 2021-2025 strategy, jointly developed by the Ministry of Digitalization and the Government IT Centre. This reflection aims to strengthen e-government and enable the transition to digital government within the framework of state modernization strategies.
The COVID-19 crisis created particular challenges for the Scientific Council for Health (Conseil scientifique dans la domaine de la Santé) (founded in 2005).
Citations:
“Luxembourg Adopts Electronic Governance 2021-25 Strategy.” Chronicle.lu (23 February 2021). https://chronicle.lu/category/politics/35684-luxembourg-adopts-electronic-governance-2021-25-strategy. Accessed 14 January 2022.
European Commission, Directorate-General for Structural Reform Support, Moretti, C., Mackie, I., Stimpson, A., Public administrations in the EU Member States : 2020 overview, Publications Office, 2021.
“Autres acteurs.” Le portail des statistiques du Luxembourg. www.statistiques.public.lu/fr/acteurs/autres/index.html. Accessed 14 January 2022.
Banque centrale du Luxembourg. http://www.bcl.lu/fr/statistiques/index.html. Accessed 14 January 2022.
Commission de Surveillance du Secteur Financier. www.cssf.lu/en/. Accessed 14 January 2022.
Conseil économique et social. www.ces.public.lu/fr.html. Accessed 14 January 2022.
Conseil national des Finances publiques. https://cnfp.public.lu/fr.html. Accessed 14 January 2022.
Conseil scientifique dans le domaine de la Santé. https://conseil-scientifique.public.lu/fr/groupes-travail.html. Accessed 14 january 2022.
High Council for Sustainable Development/Nohaltegkeetsrot. https://gouvernement.lu/en/systeme-politique/conseil-superieur-developpement-durable.html. Accessed January 2022.
Luxembourg Institute of Socioeconomic Research. www.liser.lu. Accessed 14 January 2022
Luxembourg Sustainable Finance Initiative. https://lsfi.lu/who-we-are/. Accessed 14 January 2022.
The Ministry of State (led by the prime minister, who is also state minister) is tasked with overseeing institutional relations with the Grand Ducal Court, the Chamber of Deputies and the Council of State.
In January 2020, the government created the Luxembourg Sustainable Finance Initiative in conjunction with several partners including Luxembourg for Finance (the agency for the development of the financial center) and the High Council for Sustainable Development (Conseil Supérieur du Développement Durable), an independent civil society body that advises the Luxembourg government about sustainable development matters. The goal is to raise awareness about, promote and help develop sustainable finance initiatives in the Grand Duchy.
In February 2021, the government adopted the Electronic Governance 2021-2025 strategy, jointly developed by the Ministry of Digitalization and the Government IT Centre. This reflection aims to strengthen e-government and enable the transition to digital government within the framework of state modernization strategies.
The COVID-19 crisis created particular challenges for the Scientific Council for Health (Conseil scientifique dans la domaine de la Santé) (founded in 2005).
Citations:
“Luxembourg Adopts Electronic Governance 2021-25 Strategy.” Chronicle.lu (23 February 2021). https://chronicle.lu/category/politics/35684-luxembourg-adopts-electronic-governance-2021-25-strategy. Accessed 14 January 2022.
European Commission, Directorate-General for Structural Reform Support, Moretti, C., Mackie, I., Stimpson, A., Public administrations in the EU Member States : 2020 overview, Publications Office, 2021.
“Autres acteurs.” Le portail des statistiques du Luxembourg. www.statistiques.public.lu/fr/acteurs/autres/index.html. Accessed 14 January 2022.
Banque centrale du Luxembourg. http://www.bcl.lu/fr/statistiques/index.html. Accessed 14 January 2022.
Commission de Surveillance du Secteur Financier. www.cssf.lu/en/. Accessed 14 January 2022.
Conseil économique et social. www.ces.public.lu/fr.html. Accessed 14 January 2022.
Conseil national des Finances publiques. https://cnfp.public.lu/fr.html. Accessed 14 January 2022.
Conseil scientifique dans le domaine de la Santé. https://conseil-scientifique.public.lu/fr/groupes-travail.html. Accessed 14 january 2022.
High Council for Sustainable Development/Nohaltegkeetsrot. https://gouvernement.lu/en/systeme-politique/conseil-superieur-developpement-durable.html. Accessed January 2022.
Luxembourg Institute of Socioeconomic Research. www.liser.lu. Accessed 14 January 2022
Luxembourg Sustainable Finance Initiative. https://lsfi.lu/who-we-are/. Accessed 14 January 2022.
Does the government regularly take into account advice from non-governmental experts during decision-making?
10
9
9
In almost all cases, the government transparently consults with non-governmental experts in the early stages of government decision-making.
8
7
6
7
6
For major political projects, the government transparently consults with non-governmental experts in the early stages of government decision-making.
5
4
3
4
3
In some cases, the government transparently consults with non-governmental experts in the early stages of government decision-making.
2
1
1
The government does not consult with non-governmental experts, or existing consultations lack transparency entirely and/or are exclusively pro forma.
Publicly funded research in Luxembourg has developed considerably in recent years. Nowadays, the public research environment is concentrated in Belval, where the University of Luxembourg (founded in 2003), with its three interdisciplinary centers – the Interdisciplinary Centre for Security, Reliability and Trust (SnT), the Luxembourg Center for Systems Biomedicine (LCSB), and the Luxembourg Center for Contemporary and Digital History (C²DH), is based. Several other specialized research centers also exist, including the Luxembourg Institute of Science and Technology (LIST), the Luxembourg Institute of Health (LIH), the Luxembourg Institute of Socioeconomic Research (LISER), the Integrated Biobank of Luxembourg (IBBL) and the Max Planck Institute Luxembourg for International, European and Regulatory Procedural Law. The Luxinnovation and the National Research Fund (FNR) are located on the site.
For major policy reform projects, the government mostly consults highly reputable institutions abroad. This has the advantage that scholarly advice from institutions abroad allows for independent analysis.
Considering the country’s small size, links between government and national research facilities are strong. The University of Luxembourg took part in designing and operating the Luxembourg’s brand-new supercomputer, MeluXina (inaugurated in June 2021). To contribute to the fight against COVID-19, Research Luxembourg (a consortium consisting of the University of Luxembourg, LIH, LISER, LIST, FNR and the Ministry of Higher Education and Research) launched a national COVID-19 platform to coordinate research projects and collaborations.
Citations:
“COVID-19 taskforce: New national platform, FNR Call in the making.” University of Luxembourg. (2020).https://wwwen.uni.lu/university/news/slideshow/covid_19_taskforce_new_national_platform_fnr_call_in_the_making. Accessed 14 January 2022.
“Third Industrial Revolution Strategy Study for the Grand Duchy of Luxembourg.” https://www.troisiemerevolutionindustrielle.lu/wp-content/uploads/2016/11/TIR-Strategy-Study_Short.pdf. Accessed 14 January 2022.
For major policy reform projects, the government mostly consults highly reputable institutions abroad. This has the advantage that scholarly advice from institutions abroad allows for independent analysis.
Considering the country’s small size, links between government and national research facilities are strong. The University of Luxembourg took part in designing and operating the Luxembourg’s brand-new supercomputer, MeluXina (inaugurated in June 2021). To contribute to the fight against COVID-19, Research Luxembourg (a consortium consisting of the University of Luxembourg, LIH, LISER, LIST, FNR and the Ministry of Higher Education and Research) launched a national COVID-19 platform to coordinate research projects and collaborations.
Citations:
“COVID-19 taskforce: New national platform, FNR Call in the making.” University of Luxembourg. (2020).https://wwwen.uni.lu/university/news/slideshow/covid_19_taskforce_new_national_platform_fnr_call_in_the_making. Accessed 14 January 2022.
“Third Industrial Revolution Strategy Study for the Grand Duchy of Luxembourg.” https://www.troisiemerevolutionindustrielle.lu/wp-content/uploads/2016/11/TIR-Strategy-Study_Short.pdf. Accessed 14 January 2022.
Graph View
Does the government office / prime minister’s office (GO / PMO) have the expertise to evaluate ministerial draft bills according to the government’s priorities?
10
9
9
The GO / PMO provides regular, independent evaluations of draft bills for the cabinet / prime minister. These assessments are guided exclusively by the government’s priorities.
8
7
6
7
6
The GO / PMO evaluates most draft bills according to the government’s priorities.
5
4
3
4
3
The GO / PMO can rely on some sectoral policy expertise but does not evaluate draft bills.
2
1
1
The GO / PMO does not have any sectoral policy expertise. Its role is limited to collecting, registering and circulating documents submitted for cabinet meetings.
The Prime Minister’s Office (PMO) employs around 40 civil servants, mostly trained in law, economics and political science. As a result, the PMO does not have sufficient resources to assess all the activities of government ministries. Due to the limited capacities of all ministries, including the PMO, there is no management body or special committee designated to manage interministerial coordination.
Thus, senior civil servants in the ministries prepare a “pré-conseil” or pre-briefing for the weekly meeting of ministers (conseil de gouvernement). All draft bills must be adopted at both stages before being introduced to parliament, as well as revised within these two interministerial meetings. In addition, the Inspectorate General of Finance (Inspection générale des finances, IGF) evaluates draft bills and participates in numerous committees.
Under the aegis of the Ministry of Family Affairs, Integration and the Greater Region, the interministerial committee on integration draws up and monitors the implementation of the National Integration Action Plan concerning the integration of foreigners in the Grand Duchy.
Citations:
“Conseil de gouvernement.” Le portal de l’actualité gouvermentale. https://gouvernement.lu/fr/actualites/conseils_de_gouvernement.html. Accessed 14 January 2022.
“Gouvernement.” Le portal de l’actualité gouvermentale. https://gouvernement.lu/fr/gouvernement.html. Accessed 14 January 2020.
“Ministry of Family Affairs, Integration and the Greater Region. The interministerial committee on integration (CII).” Accessed 14 January 2022.
Thus, senior civil servants in the ministries prepare a “pré-conseil” or pre-briefing for the weekly meeting of ministers (conseil de gouvernement). All draft bills must be adopted at both stages before being introduced to parliament, as well as revised within these two interministerial meetings. In addition, the Inspectorate General of Finance (Inspection générale des finances, IGF) evaluates draft bills and participates in numerous committees.
Under the aegis of the Ministry of Family Affairs, Integration and the Greater Region, the interministerial committee on integration draws up and monitors the implementation of the National Integration Action Plan concerning the integration of foreigners in the Grand Duchy.
Citations:
“Conseil de gouvernement.” Le portal de l’actualité gouvermentale. https://gouvernement.lu/fr/actualites/conseils_de_gouvernement.html. Accessed 14 January 2022.
“Gouvernement.” Le portal de l’actualité gouvermentale. https://gouvernement.lu/fr/gouvernement.html. Accessed 14 January 2020.
“Ministry of Family Affairs, Integration and the Greater Region. The interministerial committee on integration (CII).” Accessed 14 January 2022.
To what extent do line ministries involve the government office/prime minister’s office in the preparation of policy proposals?
10
9
9
There are inter-related capacities for coordination between GO/PMO and line ministries.
8
7
6
7
6
The GO/PMO is regularly briefed on new developments affecting the preparation of policy proposals.
5
4
3
4
3
Consultation is rather formal and focuses on technical and drafting issues.
2
1
1
Consultation occurs only after proposals are fully drafted as laws.
The Prime Minister’s Office is not legally allowed to be involved in the preparation of bills or proposals by line ministries. Sensitive political proposals are often included in the coalition program. There are no institutionalized mechanisms of coordination between line ministries and there is no unit dealing with policy assessment and evaluation. Informally, however, no sensitive proposal is presented to the Council of Ministers without being approved beforehand by the prime minister. An informal body of ministerial civil servants meets ahead of the Council of Ministers, to prepare the agenda and make adjustments if needed.
In Luxembourg, the prime minister is also usually the minister of state, who “shall supervise the general course of affairs and shall ensure the uphold of the unity of principles which is to be applied in the various parts of the state.” This figure serves as coordinator of the government’s actions and bears significant responsibility for its cohesion.
Citations:
“Ministry of State.” The Luxembourg Government (2021). https://me.gouvernement.lu/en/le-ministere.html. Accessed 14 January 2022.
“Arrêté grand-ducal du 5 décembre 2018 portant énumération des Ministères.” https://legilux.public.lu/eli/etat/leg/agd/2018/12/05/a1097/jo. Accessed 14 January 2022.
In Luxembourg, the prime minister is also usually the minister of state, who “shall supervise the general course of affairs and shall ensure the uphold of the unity of principles which is to be applied in the various parts of the state.” This figure serves as coordinator of the government’s actions and bears significant responsibility for its cohesion.
Citations:
“Ministry of State.” The Luxembourg Government (2021). https://me.gouvernement.lu/en/le-ministere.html. Accessed 14 January 2022.
“Arrêté grand-ducal du 5 décembre 2018 portant énumération des Ministères.” https://legilux.public.lu/eli/etat/leg/agd/2018/12/05/a1097/jo. Accessed 14 January 2022.
How effectively do ministerial or cabinet committees coordinate cabinet proposals?
10
9
9
The vast majority of cabinet proposals are reviewed and coordinated first by committees.
8
7
6
7
6
Most cabinet proposals are reviewed and coordinated by committees, in particular proposals of political or strategic importance.
5
4
3
4
3
There is little review or coordination of cabinet proposals by committees.
2
1
1
There is no review or coordination of cabinet proposals by committees. Or: There is no ministerial or cabinet committee.
There are no cabinet committees in the strict sense. The Council of Ministers (Luxembourg’s cabinet) has to rely entirely on the work of line ministries or interministerial groups, if more than one department is concerned. Generally, the Council of Ministers is well prepared, as only bills that have been accepted informally are presented. Moreover, bills must be scrutinized by experts at the Ministry of Finance and the inspector general of finance (Inspection générale des finances. This informal body ensures that coherence prevails. The Prime Minister’s Office has assumed some horizontal competences on issues that concern more than one ministry, notably in the field of administrative simplification, ethical and deontological questions.
There are regular sessions of the government council. The government council includes ministers and sometimes state secretaries, although there are currently no state secretaries. There are no other cabinet committees outside the government council. Additional cabinet committees do not seem necessary as there are ad hoc meetings between relevant ministers on specific issues. The system is not rigid or predetermined, but works well.
Citations:
“Government.” The Luxembourg Government. (2021). https://gouvernement.lu/en/systeme-politique/gouvernement.html. Accessed 14 January 2022.
“Arrêté grand-ducal du 14 novembre 2014 fixant les règles déontologiques des membres du Gouvernement et leurs devoirs et droits dans l’exercice de la fonction” (Mém. A - 212 du 25 novembre 2014, p. 4161). https://gouvernement.lu/dam-assets/fr/systeme-politique/gouvernement/rb-code-deontologie/Arrete-grand-ducal-du-14-novembre-2014-fixant-les-regles-deontologiques-des-membres-du-Gouvernement-et-leurs-devoirs-et-droits-dans-lexercice-de-la-fo.pdf. Accessed 14 January 2022.
There are regular sessions of the government council. The government council includes ministers and sometimes state secretaries, although there are currently no state secretaries. There are no other cabinet committees outside the government council. Additional cabinet committees do not seem necessary as there are ad hoc meetings between relevant ministers on specific issues. The system is not rigid or predetermined, but works well.
Citations:
“Government.” The Luxembourg Government. (2021). https://gouvernement.lu/en/systeme-politique/gouvernement.html. Accessed 14 January 2022.
“Arrêté grand-ducal du 14 novembre 2014 fixant les règles déontologiques des membres du Gouvernement et leurs devoirs et droits dans l’exercice de la fonction” (Mém. A - 212 du 25 novembre 2014, p. 4161). https://gouvernement.lu/dam-assets/fr/systeme-politique/gouvernement/rb-code-deontologie/Arrete-grand-ducal-du-14-novembre-2014-fixant-les-regles-deontologiques-des-membres-du-Gouvernement-et-leurs-devoirs-et-droits-dans-lexercice-de-la-fo.pdf. Accessed 14 January 2022.
How effectively do ministry officials/civil servants coordinate policy proposals?
10
9
9
Most policy proposals are effectively coordinated by ministry officials/civil servants.
8
7
6
7
6
Many policy proposals are effectively coordinated by ministry officials/civil servants.
5
4
3
4
3
There is some coordination of policy proposals by ministry officials/civil servants.
2
1
1
There is no or hardly any coordination of policy proposals by ministry officials/civil servants.
Senior ministry officials and interministerial meetings are important for the preparation of draft bills and for cabinet meetings. There is both formal and informal coordination in the conception of new policy, in policy modification or in the conception of a pre-draft bill. As part of the process, interministerial ad hoc groups are formed. Normally, a pre-draft bill is already the result of consultation with social partners and civil society groups. Once the pre-draft bill is published, official consultation rounds start again.
Citations:
“Le cabinet ministériel.” Le gouvernement luxembourgeois. Ministère de la Fonction publiques (2021). https://mfp.gouvernement.lu/fr/le-ministere/organisation/departements-ministeriels/cabinet-ministeriel.html. Accessed 14 January 2022.
Bossaert, Danielle (2019): How size matters. In: forum, 2019, no. 394, pp. 32-34.
Citations:
“Le cabinet ministériel.” Le gouvernement luxembourgeois. Ministère de la Fonction publiques (2021). https://mfp.gouvernement.lu/fr/le-ministere/organisation/departements-ministeriels/cabinet-ministeriel.html. Accessed 14 January 2022.
Bossaert, Danielle (2019): How size matters. In: forum, 2019, no. 394, pp. 32-34.
How effectively do informal coordination mechanisms complement formal mechanisms of interministerial coordination?
10
9
9
Informal coordination mechanisms generally support formal mechanisms of interministerial coordination.
8
7
6
7
6
In most cases, informal coordination mechanisms support formal mechanisms of interministerial coordination.
5
4
3
4
3
In some cases, informal coordination mechanisms support formal mechanisms of interministerial coordination.
2
1
1
Informal coordination mechanisms tend to undermine rather than complement formal mechanisms of interministerial coordination.
There are many opportunities for informal coordination given Luxembourg’s small size, close-knit society and interconnected government administration. Public administration staffers responsible for early policy research and formulation are typically well familiar with representatives of social organizations and members of civil society research institutions. In such a small state, there are many opportunities for informal contact between public servants and experts from research institutions, business and civil society. Senior civil servants are simultaneously responsible for multiple projects, have an enormous workload, and represent the government within a number of different bodies, boards and committees.
Citations:
Bossaert, Danielle (2008): Die Modernisierung der öffentlichen Verwaltung und des öffentlichen Dienstes im Großherzogtum Luxemburg in: Wolfgang H. Lorig (ed.): Moderne Verwaltung in der Bürgergesellschaft, Nomos Verlag, Baden-Baden, pp. 298 – 312.
Citations:
Bossaert, Danielle (2008): Die Modernisierung der öffentlichen Verwaltung und des öffentlichen Dienstes im Großherzogtum Luxemburg in: Wolfgang H. Lorig (ed.): Moderne Verwaltung in der Bürgergesellschaft, Nomos Verlag, Baden-Baden, pp. 298 – 312.
How extensively and effectively are digital technologies used to support interministerial coordination (in policy development and monitoring)?
10
9
9
The government uses digital technologies extensively and effectively to support interministerial coordination.
8
7
6
7
6
The government uses digital technologies in most cases and somewhat effectively to support interministerial coordination.
5
4
3
4
3
The government uses digital technologies to a lesser degree and with limited effects to support interministerial coordination.
2
1
1
The government makes no substantial use of digital technologies to support interministerial coordination.
Early in 2021, the government adopted the Electronic Governance 2021-2025 strategy, drawn up jointly by the Ministry for Digitalization and the Government IT Center (CTIE), with the aim of advancing e-government measures and enabling the transition to digital government.
The fundamental goals of digitalization are to facilitate the transition to an efficient paperless administration and to provide an IT environment that is conducive to new working methods reinforcing public confidence in online services operated by the state. Interoperability and standardization are among the key goals.
In the European Commission’s 2021 Digital Economy & Society Index (DESI), Luxembourg was ranked eighth out of 27 EU member states, with a score of 59.0.
The Luxembourg government has implemented the GouvCheck system, which ensures the verification of the authenticity of any official document issued in Luxembourg by using a QR code printed on the document, in real time and for free. Thus, it is extremely difficult to commit fraud by printing a fake QR code. To interpret the GouvCheck QR code, users need a smartphone or tablet with a camera, as well as the GouvCheck app, which can be downloaded from the Google Play Store or the Apple App Store. A wide range of documents are provided with a GouvCheck logo including: building permits, residence certificates, certificates of voter registration, criminal record certificates, welcome and integration contracts, certificates of life, hunting permits, fishing licenses, and the proof of payment for passports or identity cards.
Citations:
Digital Economy & Society Index (2021). https://luxembourg.public.lu/en/invest/competitiveness/desi.html. Accessed 14 January 2022.
“Electronic Governance 2021-2025’ strategy.” The Luxembourg Government (2021). https://gouvernement.lu/en/dossiers.gouv_ctie%2Ben%2Bdossiers%2Bstrategie_gouvernance_electronique_2021_2025%2Bstrategie_gouvernance_electronique_2021_2025.html#bloub-1. Accessed 14 January 2022.
The fundamental goals of digitalization are to facilitate the transition to an efficient paperless administration and to provide an IT environment that is conducive to new working methods reinforcing public confidence in online services operated by the state. Interoperability and standardization are among the key goals.
In the European Commission’s 2021 Digital Economy & Society Index (DESI), Luxembourg was ranked eighth out of 27 EU member states, with a score of 59.0.
The Luxembourg government has implemented the GouvCheck system, which ensures the verification of the authenticity of any official document issued in Luxembourg by using a QR code printed on the document, in real time and for free. Thus, it is extremely difficult to commit fraud by printing a fake QR code. To interpret the GouvCheck QR code, users need a smartphone or tablet with a camera, as well as the GouvCheck app, which can be downloaded from the Google Play Store or the Apple App Store. A wide range of documents are provided with a GouvCheck logo including: building permits, residence certificates, certificates of voter registration, criminal record certificates, welcome and integration contracts, certificates of life, hunting permits, fishing licenses, and the proof of payment for passports or identity cards.
Citations:
Digital Economy & Society Index (2021). https://luxembourg.public.lu/en/invest/competitiveness/desi.html. Accessed 14 January 2022.
“Electronic Governance 2021-2025’ strategy.” The Luxembourg Government (2021). https://gouvernement.lu/en/dossiers.gouv_ctie%2Ben%2Bdossiers%2Bstrategie_gouvernance_electronique_2021_2025%2Bstrategie_gouvernance_electronique_2021_2025.html#bloub-1. Accessed 14 January 2022.
Graph View
To what extent does the government assess the potential impacts of existing and prepared legal acts (regulatory impact assessments, RIA)?
10
9
9
RIA are applied to all new regulations and to existing regulations which are characterized by complex impact paths. RIA methodology is guided by common minimum standards.
8
7
6
7
6
RIA are applied systematically to most new regulations. RIA methodology is guided by common minimum standards.
5
4
3
4
3
RIA are applied in some cases. There is no common RIA methodology guaranteeing common minimum standards.
2
1
1
RIA are not applied or do not exist.
Luxembourg launched a first stab at regulatory impact assessments (RIAs) at the end of the 1990s, with the goal of simplifying administrative procedures at both the national and European levels. In 2004, the government set up the Plateforme interministérielle de réforme et de simplification administrative, which since 2017 has implemented the so-called Omnibus Bill. Containing 11 laws and two regulations, this is intended to facilitate and speed up planning procedures in 102 municipalities, and introduces a transversal approach to the systematic screening of all administrative procedures. In 2018, the competences of the country’s main regulatory oversight body were transferred from the Ministry of the Civil Service and Administrative Reform to the Ministry of Digitalization. The goal was to implement the e-government strategy, advance administrative reform, promote digital inclusion and integrate new technologies in society.
The new ministry, which is responsible for coordinating the Plateforme interministérielle, is also responsible for a range of other oversight functions, including evaluating regulatory policy, identifying areas in which regulation could be made more effective, and coordinating regulatory policy. The digitalization process is expected to include continuous exchanges between the state, business and the general public. The participatory platform Zesumme Vereinfachen hosts collaborative projects and proposals aimed at administrative simplification, which are analyzed by the Ministry for Digitalization and then processed or discussed with the administration(s) referenced by the proposal that has been submitted. By participating in this process, the citizens can get involved in one or more phases of the project, at their own convenience.
Citations:
“Einfach Lëtzebuerg Action Plan.” https://digital-luxembourg.public.l u/initiatives/einfach-letzebuerg. Accessed 14 January 2022.
“OECD Regulatory Policy Outlook 2021.” https://doi.org/10.1787/38b0fdb1-en. Accessed 03 May 2022.
The new ministry, which is responsible for coordinating the Plateforme interministérielle, is also responsible for a range of other oversight functions, including evaluating regulatory policy, identifying areas in which regulation could be made more effective, and coordinating regulatory policy. The digitalization process is expected to include continuous exchanges between the state, business and the general public. The participatory platform Zesumme Vereinfachen hosts collaborative projects and proposals aimed at administrative simplification, which are analyzed by the Ministry for Digitalization and then processed or discussed with the administration(s) referenced by the proposal that has been submitted. By participating in this process, the citizens can get involved in one or more phases of the project, at their own convenience.
Citations:
“Einfach Lëtzebuerg Action Plan.” https://digital-luxembourg.public.l u/initiatives/einfach-letzebuerg. Accessed 14 January 2022.
“OECD Regulatory Policy Outlook 2021.” https://doi.org/10.1787/38b0fdb1-en. Accessed 03 May 2022.
Does the RIA process ensure participation, transparency and quality evaluation?
10
9
9
RIA analyses consistently involve stakeholders by means of consultation or collaboration, results are transparently communicated to the public and assessments are effectively evaluated by an independent body on a regular basis.
8
7
6
7
6
The RIA process displays deficiencies with regard to one of the three objectives.
5
4
3
4
3
The RIA process displays deficiencies with regard to two of the three objectives.
2
1
1
RIA analyses do not exist or the RIA process fails to achieve any of the three objectives of process quality.
No open and consultative regulatory impact assessment (RIA) process is currently in place. The procedure requires an interministerial exchange between governmental departments and coordination groups, including the consultation of experts. Impact assessment data originates from internal ministry documents, which may be consulted by the state Council of Ministers and parliamentary members.
Due to administrative simplification efforts in recent years, the government has decided to run two public platforms, www.einfach.lu and www.vosidees.lu. As in most OECD countries, the formal process of developing harmonized standards does not include risk-management procedures. RIAs are not evaluated by an independent body.
In its 2019 evaluation, the OECD has noted that “since 2015, Luxembourg has made some minor improvements to its regulatory management tools. Digital means of consultations are now undertaken in Luxembourg, albeit not systematically… Over time, it will be important to expand the usage of the central website to all regulatory proposals.”
Citations:
“Einfach Lëtzebuerg/Digital Lëtzebuerg.” Le Gouvernement du Grand-Duché de Luxembourg (2022). https://digital-luxembourg.public.lu/initiatives/einfach-letzebuerg. Accessed 14 January 2022.
“Indicators of Regulatory Policy and Governance Europe 2019 - Luxembourg.” OECD (2020). https://www.oecd.org/gov/regulatory-policy/indicators-of-regulatory-policy-and-governance-2019-luxembourg.pdf. Accessed 14 January 2022.
“Better Regulation in Europe. Luxembourg.” OECD (2019). https://www.oecd.org/gov/regulatory-policy/46547003.pdf. Accessed 14 January 2022.
Bossaert, Danielle: How size matters. The constraints and opportunities of public administration in Luxembourg. In: forum, 2019, no. 394, pp. 39 - 43.
Due to administrative simplification efforts in recent years, the government has decided to run two public platforms, www.einfach.lu and www.vosidees.lu. As in most OECD countries, the formal process of developing harmonized standards does not include risk-management procedures. RIAs are not evaluated by an independent body.
In its 2019 evaluation, the OECD has noted that “since 2015, Luxembourg has made some minor improvements to its regulatory management tools. Digital means of consultations are now undertaken in Luxembourg, albeit not systematically… Over time, it will be important to expand the usage of the central website to all regulatory proposals.”
Citations:
“Einfach Lëtzebuerg/Digital Lëtzebuerg.” Le Gouvernement du Grand-Duché de Luxembourg (2022). https://digital-luxembourg.public.lu/initiatives/einfach-letzebuerg. Accessed 14 January 2022.
“Indicators of Regulatory Policy and Governance Europe 2019 - Luxembourg.” OECD (2020). https://www.oecd.org/gov/regulatory-policy/indicators-of-regulatory-policy-and-governance-2019-luxembourg.pdf. Accessed 14 January 2022.
“Better Regulation in Europe. Luxembourg.” OECD (2019). https://www.oecd.org/gov/regulatory-policy/46547003.pdf. Accessed 14 January 2022.
Bossaert, Danielle: How size matters. The constraints and opportunities of public administration in Luxembourg. In: forum, 2019, no. 394, pp. 39 - 43.
Does the government conduct effective sustainability checks within the framework of RIA?
10
9
9
Sustainability checks are an integral part of every RIA; they draw on an exhaustive set of indicators (including social, economic, and environmental aspects of sustainability) and track impacts from the short- to long-term.
8
7
6
7
6
Sustainability checks lack one of the three criteria.
5
4
3
4
3
Sustainability checks lack two of the three criteria.
2
1
1
Sustainability checks do not exist or lack all three criteria.
RIA is undertaken for all regulations in Luxembourg, and takes the form of a checklist mainly focusing on administrative burdens and enforcement costs. The 2019 OECD assessment notes that “Luxembourg currently refers to European Commission best practice instead of providing own guidance material.” Thus, the limited current focus of RIA in Luxembourg does not reflect European Commission standards. The assessments adds: “Luxembourg may consider creating bespoke guidance material to enhance domestic support for regulatory policy.” It is therefore essential to agree on regulatory impact assessment (RIA) procedures to “benefit from improved coherence and coordination between ministries, civil society and stakeholders.” Sustainability checks at all levels should be made transparent by establishing harmonized legislation with binding RIA standards.
Citations:
“Indicators of Regulatory Policy and Governance Europe 2019 - Luxembourg.” OECD (2020). https://www.oecd.org/gov/regulatory-policy/indicators-of-regulatory-policy-and-g overnance-2019-luxembourg.pdf. Accessed 14 January 2022.
“Better Regulation in Europe. Luxembourg.” OECD (2019). https://www.oecd.org/gov/regulatory-policy/46547003.pdf. Accessed 14 January 2022.
Citations:
“Indicators of Regulatory Policy and Governance Europe 2019 - Luxembourg.” OECD (2020). https://www.oecd.org/gov/regulatory-policy/indicators-of-regulatory-policy-and-g overnance-2019-luxembourg.pdf. Accessed 14 January 2022.
“Better Regulation in Europe. Luxembourg.” OECD (2019). https://www.oecd.org/gov/regulatory-policy/46547003.pdf. Accessed 14 January 2022.
To what extent do government ministries regularly evaluate the effectiveness and/or efficiency of public policies and use results of evaluations for the revision of existing policies or development of new policies?
10
9
9
Ex post evaluations are carried out for all significant policies and are generally used for the revision of existing policies or the development of new policies.
8
7
6
7
6
Ex post evaluations are carried out for most significant policies and are used for the revision of existing policies or the development of new policies.
5
4
3
4
3
Ex post evaluations are rarely carried out for significant policies and are rarely used for the revision of existing policies or the development of new policies.
2
1
1
Ex post evaluations are generally not carried out and do not play any relevant role for the revision of existing policies or the development of new policies.
According to the OECD, “ex post evaluations have been undertaken in Luxembourg although they remain an inconsistently applied regulatory management tool.” However, legislation is rarely modified through a process of ex post evaluation. High-quality evaluation studies are rarely carried out. There is also a shortage of personnel able to design legal texts. Rigorous state-commissioned evaluation of legislation is thus unlikely in the near future.
The Ministry of the Civil Service and Administrative Reform is the central oversight body responsible for quality control of regulatory management tools in Luxembourg. Its oversight functions apply to stakeholder engagement, RIA and ex post evaluations, and the entity is additionally responsible for other functions including the evaluation and coordination of regulatory policy. The Council of State is in charge of providing legal scrutiny of regulatory proposals.
Citations:
“Indicators of Regulatory Policy and Governance Europe 2019 - Luxembourg.” OECD (2020). https://www.oecd.org/gov/regulatory-policy/indicators-of-regulatory-policy-and-g overnance-2019-luxembourg.pdf. Accessed 14 January 2022.
“Better Regulation in Europe. Luxembourg.” OECD (2019). https://www.oecd.org/gov/regulatory-policy/46547003.pdf. Accessed 14 January 2022.
The Ministry of the Civil Service and Administrative Reform is the central oversight body responsible for quality control of regulatory management tools in Luxembourg. Its oversight functions apply to stakeholder engagement, RIA and ex post evaluations, and the entity is additionally responsible for other functions including the evaluation and coordination of regulatory policy. The Council of State is in charge of providing legal scrutiny of regulatory proposals.
Citations:
“Indicators of Regulatory Policy and Governance Europe 2019 - Luxembourg.” OECD (2020). https://www.oecd.org/gov/regulatory-policy/indicators-of-regulatory-policy-and-g overnance-2019-luxembourg.pdf. Accessed 14 January 2022.
“Better Regulation in Europe. Luxembourg.” OECD (2019). https://www.oecd.org/gov/regulatory-policy/46547003.pdf. Accessed 14 January 2022.
Graph View
Does the government consult with societal actors in a fair and pluralistic manner?
10
9
9
The government always consults with societal actors in a fair and pluralistic manner.
8
7
6
7
6
The government in most cases consults with societal actors in a fair and pluralistic manner.
5
4
3
4
3
The government does consult with societal actors, but mostly in an unfair and clientelistic manner.
2
1
1
The government rarely consults with any societal actors.
Luxembourg is a generally consensus-oriented society, with neo-corporatist traits (the so-called Luxembourg Social Model), which became institutionalized in the aftermath of the steel crisis in the 1970s. When introducing a draft bill to parliament, the government normally launches a broad consultation process. Unions and employers’ organizations are often consulted; draft bills may be submitted to the appropriate professional chamber when they concern their own affiliated people (Chambre des Salariés, Chambre de Commerce, Chambre des Métiers, Chambre des Fonctionnaires et Employés publics and Chambre de l‘Agriculture). Civil society groups may also be included in the process, depending on the purpose of the draft bill or the new policy.
The so-called tripartite social model is based on institutionalized and ongoing dialogue between the government, employers and trade unions on important economic and social issues, with the goal of reaching consensus. Nowadays, four institutions engage in this ongoing social dialogue: the Economic Committee, the Economic and Social Council, the Tripartite Coordination Committee, and the Permanent Committee on Labor and Employment. Industry-specific tripartite bodies in some cases hold their own events, such as the Steel Tripartite Conference or the Aviation Tripartite Conference.
However, the prevalence and quality of dialogue between the social partners has declined in recent years. Trade unions have said the national-level social dialogue is not as developed as they would like. In 2020-21, trade unions repeatedly called for a gathering of the tripartite coordination committee to discuss the social impact of the coronavirus pandemic. When the government eventually held a meeting of the tripartite coordination committee in December 2021, the meeting did not respond to the unions’ expectations. The meeting only lasted a few hours, and did not lead to any major outcome, while unions had hoped to discuss a broad range of subjects ranging from housing to tax policies. To express their disapproval, unions did not participate in the press conference that followed the meeting, and instead published a press statement spelling out their disappointment over the government’s perceived disregard of their requests.
Citations:
“Tripartite: Luxembourg’s social model “. https://luxembourg.public.lu/en/society-and-culture/political-system/tripartite.html. Accessed 14 January 2022.
OGBL, LCGB, CGFP (2021) Tripartite – eine Nullnummer!, available at: https://lcgb.lu/de/2021/12/14/tripartite-eine-nullnummer/
“OGBL, LCGB & CGFP: Tripartite didn’t go anywhere.” RTL Today (15 December 2021). https://today.rtl.lu/news/luxembourg/a/1833252.html. Accessed 14 January 2022.
www.vosidees.lu. https://www.vosidees.lu/. Accessed 14 January 2022.
OGBL, LCGB, CGFP (2021) Tripartite – eine Nullnummer!, available at: https://lcgb.lu/de/2021/12/14/tripartite-eine-nullnummer/
The so-called tripartite social model is based on institutionalized and ongoing dialogue between the government, employers and trade unions on important economic and social issues, with the goal of reaching consensus. Nowadays, four institutions engage in this ongoing social dialogue: the Economic Committee, the Economic and Social Council, the Tripartite Coordination Committee, and the Permanent Committee on Labor and Employment. Industry-specific tripartite bodies in some cases hold their own events, such as the Steel Tripartite Conference or the Aviation Tripartite Conference.
However, the prevalence and quality of dialogue between the social partners has declined in recent years. Trade unions have said the national-level social dialogue is not as developed as they would like. In 2020-21, trade unions repeatedly called for a gathering of the tripartite coordination committee to discuss the social impact of the coronavirus pandemic. When the government eventually held a meeting of the tripartite coordination committee in December 2021, the meeting did not respond to the unions’ expectations. The meeting only lasted a few hours, and did not lead to any major outcome, while unions had hoped to discuss a broad range of subjects ranging from housing to tax policies. To express their disapproval, unions did not participate in the press conference that followed the meeting, and instead published a press statement spelling out their disappointment over the government’s perceived disregard of their requests.
Citations:
“Tripartite: Luxembourg’s social model “. https://luxembourg.public.lu/en/society-and-culture/political-system/tripartite.html. Accessed 14 January 2022.
OGBL, LCGB, CGFP (2021) Tripartite – eine Nullnummer!, available at: https://lcgb.lu/de/2021/12/14/tripartite-eine-nullnummer/
“OGBL, LCGB & CGFP: Tripartite didn’t go anywhere.” RTL Today (15 December 2021). https://today.rtl.lu/news/luxembourg/a/1833252.html. Accessed 14 January 2022.
www.vosidees.lu. https://www.vosidees.lu/. Accessed 14 January 2022.
OGBL, LCGB, CGFP (2021) Tripartite – eine Nullnummer!, available at: https://lcgb.lu/de/2021/12/14/tripartite-eine-nullnummer/
Graph View
To what extent does the government achieve coherent communication?
10
9
9
Ministries are highly successful in aligning their communication with government strategy.
8
7
6
7
6
Ministries most of the time are highly successful in aligning their communication with government strategy.
5
4
3
4
3
Ministries occasionally issue public statements that contradict the public communication of other ministries or the government strategy.
2
1
1
Strategic communication planning does not exist; individual ministry statements regularly contradict each other. Messages are often not factually consistent with the government’s strategy.
Political communication in Luxembourg is carried out at several levels (local, national, state, European), and through several channels and tools, including direct communication (press briefings, statements, public debates, meetings with citizens), and indirect communication (websites, press articles, reports, interviews to mass media). In recent years, the use of social media (Twitter, Facebook, Instagram) has significantly expanded.
Press briefings have traditionally been the government’s main method of communicating. Following the Council of Ministers meetings on Fridays, the prime minister holds a weekly public press conference (which is broadcast live on the YouTube channel of the government) intended to communicate the body’s work. Press conferences are also regularly held by ministries, public administrations, government agencies and associations. All ministries have communication services with official press officers (spokespersons), but in most cases it is the ministers themselves who directly give statements to journalists. Government members are encouraged not to voice disagreement in public, so as to give the impression of unanimous decision-making. Reporting directly to the prime minister, the state Press and Information Service (SIP) works to coordinate a coherent and wide-ranging government communication policy.
As part of the Ministry of State, the Department of Media, Connectivity and Digital Policy supports the development of a diverse media landscape, and is in charge of electronic communications and the postal service, and oversees data protection issues.
Every year, the prime minister delivers the State of the Nation speech to the Chamber of Deputies. This constitutes the government’s declaration regarding the economic, social and financial situation in the country. All ministries (including the state minister) release annual reports that are also published on their own websites.
Citations:
The Luxembourg Government. https://gouvernement.lu/en.html. Accessed 14 January 2022.
The Luxembourg Government. Information and Presse Service (SIP). https://sip.gouvernement.lu/en.html. Accessed 14 January 2022.
“State of the Nation 2021.” Xavier Bettel (12 October 2021). https://gouvernement.lu/en/gouvernement/xavier-bettel/actualites.gouvernement%2Ben%2Bactualites%2Btoutes_actualites%2Bdiscours%2B2021%2B10-octobre%2B12-etat-de-la-nation.html. Accessed 14 January 2022.
Press briefings have traditionally been the government’s main method of communicating. Following the Council of Ministers meetings on Fridays, the prime minister holds a weekly public press conference (which is broadcast live on the YouTube channel of the government) intended to communicate the body’s work. Press conferences are also regularly held by ministries, public administrations, government agencies and associations. All ministries have communication services with official press officers (spokespersons), but in most cases it is the ministers themselves who directly give statements to journalists. Government members are encouraged not to voice disagreement in public, so as to give the impression of unanimous decision-making. Reporting directly to the prime minister, the state Press and Information Service (SIP) works to coordinate a coherent and wide-ranging government communication policy.
As part of the Ministry of State, the Department of Media, Connectivity and Digital Policy supports the development of a diverse media landscape, and is in charge of electronic communications and the postal service, and oversees data protection issues.
Every year, the prime minister delivers the State of the Nation speech to the Chamber of Deputies. This constitutes the government’s declaration regarding the economic, social and financial situation in the country. All ministries (including the state minister) release annual reports that are also published on their own websites.
Citations:
The Luxembourg Government. https://gouvernement.lu/en.html. Accessed 14 January 2022.
The Luxembourg Government. Information and Presse Service (SIP). https://sip.gouvernement.lu/en.html. Accessed 14 January 2022.
“State of the Nation 2021.” Xavier Bettel (12 October 2021). https://gouvernement.lu/en/gouvernement/xavier-bettel/actualites.gouvernement%2Ben%2Bactualites%2Btoutes_actualites%2Bdiscours%2B2021%2B10-octobre%2B12-etat-de-la-nation.html. Accessed 14 January 2022.
Graph View
To what extent can the government achieve its own policy objectives?
10
9
9
The government can largely implement its own policy objectives.
8
7
6
7
6
The government is partly successful in implementing its policy objectives or can implement some of its policy objectives.
5
4
3
4
3
The government partly fails to implement its objectives or fails to implement several policy objectives.
2
1
1
The government largely fails to implement its policy objectives.
In general, the government is able to implement its policy objectives, which are usually outlined in coalition-government programs (the most recent covering the period 2018-2023). This might take longer than planned, given that a policy based on maximum consensus is often cumbersome. But projects are sometimes not only slowed down but delayed indefinitely, especially when powerful lobbies are involved.
Citations:
“Projects within the framework of the National Action Plan for Integration.” The Luxembourg Government. Ministry of Family Affairs, Integration and the Greater Region (13 July 2021). https://mfamigr.gouvernement.lu/en/le-ministere/attributions/integration/integrationsprojekte/projets.html. Accessed 14 January 2022.
“Circular Economy Strategy Luxembourg/Strategie Kreeslafwirtschaft Lëtzebuerg.” The Government of the Grand Duchy of Luxembourg (8 February 2021). https://gouvernement.lu/dam-assets/documents/actualites/2021/02-fevrier/08-strategie-economie-circulaire/Strategy-circular-economy-Luxembourg-022021.pdf. Accessed 14 January 2022.
“Plan d’action national du Luxembourg pour la mise en oeuvre des Principes directeurs des Nations Unies relatifs aux entreprises et aux droits de l’homme 2020-2022.” Le Gouvernement du Grand-Duché de Luxembourg. Ministère des Sffaires étrangères et européennes (2020). https://www.ohchr.org/Documents/Issues/Business/NationalPlans/LuxembourgNP2020-2022_FR.pdf. Accessed 14 January 2022.
“Statement of the Consultative Commission on Human Rights of the Grand-Duché of Luxembourg” (2020). https://ccdh.public.lu/dam-assets/fr/avis/2019/Prise-de-position-Entreprises-et-droits-de-l-Homme-version-finale.pdf. Accessed 14 January 2022.
Citations:
“Projects within the framework of the National Action Plan for Integration.” The Luxembourg Government. Ministry of Family Affairs, Integration and the Greater Region (13 July 2021). https://mfamigr.gouvernement.lu/en/le-ministere/attributions/integration/integrationsprojekte/projets.html. Accessed 14 January 2022.
“Circular Economy Strategy Luxembourg/Strategie Kreeslafwirtschaft Lëtzebuerg.” The Government of the Grand Duchy of Luxembourg (8 February 2021). https://gouvernement.lu/dam-assets/documents/actualites/2021/02-fevrier/08-strategie-economie-circulaire/Strategy-circular-economy-Luxembourg-022021.pdf. Accessed 14 January 2022.
“Plan d’action national du Luxembourg pour la mise en oeuvre des Principes directeurs des Nations Unies relatifs aux entreprises et aux droits de l’homme 2020-2022.” Le Gouvernement du Grand-Duché de Luxembourg. Ministère des Sffaires étrangères et européennes (2020). https://www.ohchr.org/Documents/Issues/Business/NationalPlans/LuxembourgNP2020-2022_FR.pdf. Accessed 14 January 2022.
“Statement of the Consultative Commission on Human Rights of the Grand-Duché of Luxembourg” (2020). https://ccdh.public.lu/dam-assets/fr/avis/2019/Prise-de-position-Entreprises-et-droits-de-l-Homme-version-finale.pdf. Accessed 14 January 2022.
To what extent does the organization of government provide mechanisms to ensure that ministers implement the government’s program?
10
9
9
The organization of government successfully provides strong mechanisms for ministers to implement the government’s program.
8
7
6
7
6
The organization of government provides some mechanisms for ministers to implement the government’s program.
5
4
3
4
3
The organization of government provides weak mechanisms for ministers to implement the government’s program.
2
1
1
The organization of government does not provide any mechanisms for ministers to implement the government’s program.
The Luxembourg electoral system combines proportional representation using candidate lists with a type of majoritarian system that allows a voter to pick individual candidates by giving them preferential votes on more than one list.
Consequently, the voters, and not the party, decide on the composition of parliament and even of the government, since the candidates with the best results usually become ministers. This system encourages politicians to pursue personal initiatives, but as they generally address small lobbies, such projects do not typically conflict with the government’s agenda.
Consequently, the voters, and not the party, decide on the composition of parliament and even of the government, since the candidates with the best results usually become ministers. This system encourages politicians to pursue personal initiatives, but as they generally address small lobbies, such projects do not typically conflict with the government’s agenda.
How effectively does the government office/prime minister’s office monitor line ministry activities with regard to implementation?
10
9
9
The GO / PMO effectively monitors the implementation activities of all line ministries.
8
7
6
7
6
The GO / PMO monitors the implementation activities of most line ministries.
5
4
3
4
3
The GO / PMO monitors the implementation activities of some line ministries.
2
1
1
The GO / PMO does not monitor the implementation activities of line ministries.
There is no formal monitoring by the Prime Minister’s Office, as no institutional resources exist to carry this out. The small size of the government administration and ongoing discussions between ministers, foster a high level of transparency without the necessity of explicit monitoring tools. In case of conflicts, the prime minister moderates and acts as conciliator.
Citations:
Schroen, Michael (2008): “Das politische System Luxemburgs,” in: Wolfgang Ismayr (ed.): Die Politischen Systeme Westeuropas, 4th ed., VS Springer Verlag, Wiesbaden, pp. 483 – 514.
Citations:
Schroen, Michael (2008): “Das politische System Luxemburgs,” in: Wolfgang Ismayr (ed.): Die Politischen Systeme Westeuropas, 4th ed., VS Springer Verlag, Wiesbaden, pp. 483 – 514.
How effectively do federal and subnational ministries monitor the activities of bureaucracies/executive agencies with regard to implementation?
10
9
9
The ministries effectively monitor the implementation activities of all bureaucracies/executive agencies.
8
7
6
7
6
The ministries monitor the implementation activities of most bureaucracies/executive agencies.
5
4
3
4
3
The ministries monitor the implementation activities of some bureaucracies/executive agencies.
2
1
1
The ministries do not monitor the implementation activities of bureaucracies/executive agencies.
Executive agencies and the administration usually lack the autonomy to pursue a course of action independent of guidelines issued by the responsible ministers. Sometimes, the strong personality of an agency head leads to conflict. If this happens, the views of the minister or his key collaborators usually prevail. In the domain of labor, social security and public finance, monitoring is more centralized and effective, since the financial implications for the state are much more consequential. Four agencies that wield considerable influence are the Administration of the Environment (Administration de l’environnement); the Labor and Mines Inspectorate (Inspection du Travail et des Mines, ITM), which is attached to Ministry of Labor, Employment and the Social and Solidarity Economy; the Social Security Inspectorate General (Inspection Générale de la Sécurité Sociale, IGSS), which is attached to the Ministry of Social Security; and the General Inspectorate of Finance (Inspection générale des finances, IGF), which is attached to the Ministry of Finance.
Citations:
“Finances publiques.” Ministère des Finances. www.mf.public.lu/finances_publiques/. Accessed 14 January 2022.
“Inspection générale de la sécurité sociale.” Ministère de la Sécurité Sociale. www.mss.public.lu/acteurs/igss/ Accessed 14 January 2022.
Inspection générale des finances. www.igf.etat.lu. Accessed 14 January 2022.
Inspection du Travail et des Mines. https://itm.public.lu/fr/nous-connaitre/objectifs-missions.html. Accessed 14 January 2022.
Citations:
“Finances publiques.” Ministère des Finances. www.mf.public.lu/finances_publiques/. Accessed 14 January 2022.
“Inspection générale de la sécurité sociale.” Ministère de la Sécurité Sociale. www.mss.public.lu/acteurs/igss/ Accessed 14 January 2022.
Inspection générale des finances. www.igf.etat.lu. Accessed 14 January 2022.
Inspection du Travail et des Mines. https://itm.public.lu/fr/nous-connaitre/objectifs-missions.html. Accessed 14 January 2022.
To what extent does the central government ensure that tasks delegated to subnational self-governments are adequately funded?
10
9
9
The central government enables subnational self-governments to fulfill all their delegated tasks by funding these tasks sufficiently and/or by providing adequate revenue-raising powers.
8
7
6
7
6
The central government enables subnational governments to fulfill most of their delegated tasks by funding these tasks sufficiently and/or by providing adequate revenue-raising powers.
5
4
3
4
3
The central government sometimes and deliberately shifts unfunded mandates to subnational governments.
2
1
1
The central government often and deliberately shifts unfunded mandates to subnational self-governments.
Since 2018, the Ministry of the Interior has overseen 102 municipalities in Luxembourg, even though as early as 2004, the government promised to carry out a process of merging municipalities. The total number of municipalities was slated to have been winnowed down to 71 in 2017; however, this has not yet happened. This ministry’s oversight is paired with substantial financial transfers from the central government to local entities, which, apart from a substantial share in corporate-income-tax revenues, lack autonomous sources of revenue. The largest municipality is the city of Luxembourg, which numbers 124,832 (2022) inhabitants. Two-thirds of local entities have fewer than 3,000 inhabitants, a size which is believed to be far too small to handle modern political, administrative and technical matters. Over the last decade, this challenge has led to the creation of so-called municipal syndicates, or associations of municipalities (syndicats intercommunaux), whose major purpose is to jointly offer services in areas such as waste management, water supply, and sports and leisure activities. Over the course of the last decade, the number of municipal syndicates has steadily risen. Luxembourg’s cities and municipalities are incorporated in an association called SYVICOL.
Major reform discussions and topics currently on the agenda include further redefinition of administrative structures, for instance by continuing the process of municipal mergers (six of them have been implemented so far), and the character of the relations between the central state and the local level, especially with regard to reforming municipal finances to render these entities more stable.
The municipalities’ major sources of income include funding from the central state and revenues from the occupational tax (Gewerbesteuer), which is levied at the local level. Since 2017, due to the full budgetary assumption of teachers’ salaries, grants to local budgets have been increased, providing municipalities with greater financial and planning security. Despite the financial impact of the coronavirus pandemic on Luxembourg’s economy, the 2022 state budget allotted €2.38 billion to the municipalities’ general endowment fund (+7.3% compared with 2021, or +11.2% compared with 2019).
Citations:
“De Budget 2022.” Luxembourg’s Stat Budget 2022 official website. The Government of the Grand Duchy of Luxembourg. https://budget.public.lu/lb.html. Accessed 3 January 2022.
“L’État plus généreux avec les communes en 2022.” Luxemburger Wort (02.11.2021). https://www.wort.lu/fr/luxembourg/l-etat-plus-genereux-avec-les-communes-en-2022-6180f97dde135b9236fb053f. Accessed 14 January 2022.
“Public administration characteristics and performance in EU28: Luxembourg.” European Commission. Directorate-General for Employment, Social Affairs and Inclusion Support for developing better country knowledge on public administration and institutional capacity-building” (VC/2016/0492).
Major reform discussions and topics currently on the agenda include further redefinition of administrative structures, for instance by continuing the process of municipal mergers (six of them have been implemented so far), and the character of the relations between the central state and the local level, especially with regard to reforming municipal finances to render these entities more stable.
The municipalities’ major sources of income include funding from the central state and revenues from the occupational tax (Gewerbesteuer), which is levied at the local level. Since 2017, due to the full budgetary assumption of teachers’ salaries, grants to local budgets have been increased, providing municipalities with greater financial and planning security. Despite the financial impact of the coronavirus pandemic on Luxembourg’s economy, the 2022 state budget allotted €2.38 billion to the municipalities’ general endowment fund (+7.3% compared with 2021, or +11.2% compared with 2019).
Citations:
“De Budget 2022.” Luxembourg’s Stat Budget 2022 official website. The Government of the Grand Duchy of Luxembourg. https://budget.public.lu/lb.html. Accessed 3 January 2022.
“L’État plus généreux avec les communes en 2022.” Luxemburger Wort (02.11.2021). https://www.wort.lu/fr/luxembourg/l-etat-plus-genereux-avec-les-communes-en-2022-6180f97dde135b9236fb053f. Accessed 14 January 2022.
“Public administration characteristics and performance in EU28: Luxembourg.” European Commission. Directorate-General for Employment, Social Affairs and Inclusion Support for developing better country knowledge on public administration and institutional capacity-building” (VC/2016/0492).
To what extent does central government ensure that subnational self-governments may use their constitutional scope of discretion with regard to implementation?
10
9
9
The central government enables subnational self-governments to make full use of their constitutional scope of discretion with regard to implementation.
8
7
6
7
6
Central government policies inadvertently limit the subnational self-governments’ scope of discretion with regard to implementation.
5
4
3
4
3
The central government formally respects the constitutional autonomy of subnational self-governments, but de facto narrows their scope of discretion with regard to implementation.
2
1
1
The central government deliberately precludes subnational self-governments from making use of their constitutionally provided implementation autonomy.
Local governments increasingly depend on transfers from the central government. Efforts to centralize the regulation of land use have been ongoing for years and continue to drag on as a result of insufficient personnel, changing EU legislation and citizen initiatives. Following a reform of the education system, municipalities lost one of their major prerogatives, which was the autonomous management of primary school (students four to 12 years old) teaching staff. A municipal reform also undermined other aspects of autonomy, as evidenced by a law on emergency services. In return, the government has promised to provide more autonomy through territorial reforms, especially in the form of expanded financial autonomy and the provision of support for municipal finances through regional funds.
Citations:
Eser, Thiemo W./Scholtes, Maryse (2008): Raumentwicklung, Regionalpolitik und Landesplanung, in:Wolfgang H. Lorig/Mario Hirsch (eds.), Das politische System Luxemburgs, Springer VS Verlag, Wiesbaden, pp. 286 – 309.
Syvicol. https://www.syvicol.lu/fr. Accessed 14 January 2022.
Citations:
Eser, Thiemo W./Scholtes, Maryse (2008): Raumentwicklung, Regionalpolitik und Landesplanung, in:Wolfgang H. Lorig/Mario Hirsch (eds.), Das politische System Luxemburgs, Springer VS Verlag, Wiesbaden, pp. 286 – 309.
Syvicol. https://www.syvicol.lu/fr. Accessed 14 January 2022.
To what extent does central government ensure that subnational self-governments realize national standards of public services?
10
9
9
Central government effectively ensures that subnational self-governments realize national standards of public services.
8
7
6
7
6
Central government largely ensures that subnational self-governments realize national standards of public services.
5
4
3
4
3
Central government ensures that subnational self-governments realize national minimum standards of public services.
2
1
1
Central government does not ensure that subnational self-governments realize national standards of public services.
The Ministry of the Interior provides support to local administrations. As part of a series of territorial reforms, the administration responsible for monitoring municipal finances will be integrated within the existing national Court of Auditors (Cour des Comptes). The government is not entirely free to optimize and improve local government.
State planning has been criticized by municipalities due to the Ministry of the Interior’s failure to publish a land-use plan (“Plan d’aménagement général” or “Flächennutzungsplan,” PAG), which is a technical and complex instrument that guides municipalities’ development activities, but also affects landowners who have acquired land or who want to start construction or renovation work. In 2019, 36 Luxembourg municipalities expressed concern over state-imposed updates to their PAGs, with sometimes significant consequences for property owners.
Even after 15 years, half of the country’s municipalities have yet to adapt their development plans to the law. This is the case for nearly 40 municipalities across the Grand Duchy. As a result, the Ministry of the Interior has taken some of the blame because the new municipal land-use law has proved to be too difficult. A sub-development plan (“Plan d’aménagement particulier” or “Teil-Bebauungsplan,” PAP) ultimately had to be published for all construction projects.
Citations:
“Aménagement communal.” Le gouvernement luxembourgeois. Ministère de l’Intérieur (2022). https://mint.gouvernement.lu/fr/dossiers/2021/amenagement-communal.html. Accessed 14 January 2022.
“General development plan: changes … and consequences!.” Editus (2020). https://www.editus.lu/en/practical-guide/development-and-maintenance-257t/map-of-layouts-general-in-and-change-of-consequences-1112a. Accessed 14 January 2022.
State planning has been criticized by municipalities due to the Ministry of the Interior’s failure to publish a land-use plan (“Plan d’aménagement général” or “Flächennutzungsplan,” PAG), which is a technical and complex instrument that guides municipalities’ development activities, but also affects landowners who have acquired land or who want to start construction or renovation work. In 2019, 36 Luxembourg municipalities expressed concern over state-imposed updates to their PAGs, with sometimes significant consequences for property owners.
Even after 15 years, half of the country’s municipalities have yet to adapt their development plans to the law. This is the case for nearly 40 municipalities across the Grand Duchy. As a result, the Ministry of the Interior has taken some of the blame because the new municipal land-use law has proved to be too difficult. A sub-development plan (“Plan d’aménagement particulier” or “Teil-Bebauungsplan,” PAP) ultimately had to be published for all construction projects.
Citations:
“Aménagement communal.” Le gouvernement luxembourgeois. Ministère de l’Intérieur (2022). https://mint.gouvernement.lu/fr/dossiers/2021/amenagement-communal.html. Accessed 14 January 2022.
“General development plan: changes … and consequences!.” Editus (2020). https://www.editus.lu/en/practical-guide/development-and-maintenance-257t/map-of-layouts-general-in-and-change-of-consequences-1112a. Accessed 14 January 2022.
To what extent is government enforcing regulations in an effective and unbiased way, also against vested interests?
10
9
9
Government agencies enforce regulations effectively and without bias.
8
7
6
7
6
Government agencies, for the most part, enforce regulations effectively and without bias.
5
4
3
4
3
Government agencies enforce regulations, but ineffectively and with bias.
2
1
1
Government agencies enforce regulations ineffectively, inconsistently and with bias.
There are a number of powerful interest groups in Luxembourg.
Civil servants (Fonctionnaires d’État) affiliated with the CGFP union (Confédération Générale de la Fonction Publique) constitute one such group. Civil servants represent a large part of the electorate in national elections (foreigners are not allowed to vote). Therefore, it is not easy for a government to make decisions that go against the positions of the CGFP trade union, for fear that the political opposition would immediately take the CGFP’s side. As one result, a number of civil servants earn much higher salaries than are paid in comparable private sector positions. In January 2021, about 31,049 people were employed by the Luxembourg government (of which 16,339 were women, or 52.6%), meaning almost 2,000 people were added to the payroll during the pandemic.
One influential subgroup of civil servants are the teachers, who have a strong influence over educational policies. Other powerful interest groups include business associations, insurance companies and the construction industry.
Citations:
“La Fonction publique.” https://fonction-publique.public.lu/dam-assets/fr/documentation/fonctionpublique/fonction-publique-chiffre-2020.pdf. Accessed 14 January 2022.
Schroen, Michael (2012): Luxemburg. Interessenvermittlung in einem Kleinstaat, in: Werner Reutter (ed.): Vergleichende Interessengruppen- und Verbändeforschung, 2nd edition, Springer VS, Wiesbaden, pp. 417 – 444.
Civil servants (Fonctionnaires d’État) affiliated with the CGFP union (Confédération Générale de la Fonction Publique) constitute one such group. Civil servants represent a large part of the electorate in national elections (foreigners are not allowed to vote). Therefore, it is not easy for a government to make decisions that go against the positions of the CGFP trade union, for fear that the political opposition would immediately take the CGFP’s side. As one result, a number of civil servants earn much higher salaries than are paid in comparable private sector positions. In January 2021, about 31,049 people were employed by the Luxembourg government (of which 16,339 were women, or 52.6%), meaning almost 2,000 people were added to the payroll during the pandemic.
One influential subgroup of civil servants are the teachers, who have a strong influence over educational policies. Other powerful interest groups include business associations, insurance companies and the construction industry.
Citations:
“La Fonction publique.” https://fonction-publique.public.lu/dam-assets/fr/documentation/fonctionpublique/fonction-publique-chiffre-2020.pdf. Accessed 14 January 2022.
Schroen, Michael (2012): Luxemburg. Interessenvermittlung in einem Kleinstaat, in: Werner Reutter (ed.): Vergleichende Interessengruppen- und Verbändeforschung, 2nd edition, Springer VS, Wiesbaden, pp. 417 – 444.
Graph View
To what extent does the government respond to international and supranational developments by adapting domestic government structures?
10
9
9
The government has appropriately and effectively adapted domestic government structures to international and supranational developments.
8
7
6
7
6
In many cases, the government has adapted domestic government structures to international and supranational developments.
5
4
3
4
3
In some cases, the government has adapted domestic government structures to international and supranational developments.
2
1
1
The government has not adapted domestic government structures, no matter how beneficial adaptation might be.
Luxembourg has made progress in implementing European legislation. In terms of the transposition of EU directives, Luxembourg’s performance is moderate, yet it has improved in recent years. Given the size of the country, there is limited scope for improving the government administration’s human resources. A single civil servant is typically responsible for a number of tasks that would be assigned to an entire team in other EU member states. For example, European Social Fund (ESF) activities fall under the responsibility of only four civil servants who have other responsibilities in addition to European programs. Despite a lack of personnel, work expected by European and supranational institutions is completed.
On 21 March 2020, the Chamber of Deputies approved a law implementing the 6th Directive 2011/16/EU on Administrative Cooperation (“DAC6”), which introduced an automatic exchange of information in relation to cross-border financial arrangements. The law of 10 July implemented a register of fiduciaries and trusts, transposing Article 31 of Directive (EU) 2015/849 as amended by the 5th Anti-Money Laundering Directive (AMLD5). However, in December 2021, the European Commission called on Luxembourg to amend its legislation to correctly transpose the non-deductibility of interest payments rule set by the EU Anti-Tax Avoidance Directive.
Luxembourg often responds to international requests by launching an ad hoc group. The country has also done well in conforming national law to EU directives, sometimes transposing laws verbatim. However, this does not guarantee that the law will be followed verbatim; differences between de jure and de facto interpretations have emerged.
On 21 March 2020, the Chamber of Deputies approved a law implementing the 6th Directive 2011/16/EU on Administrative Cooperation (“DAC6”), which introduced an automatic exchange of information in relation to cross-border financial arrangements. The law of 10 July implemented a register of fiduciaries and trusts, transposing Article 31 of Directive (EU) 2015/849 as amended by the 5th Anti-Money Laundering Directive (AMLD5). However, in December 2021, the European Commission called on Luxembourg to amend its legislation to correctly transpose the non-deductibility of interest payments rule set by the EU Anti-Tax Avoidance Directive.
Luxembourg often responds to international requests by launching an ad hoc group. The country has also done well in conforming national law to EU directives, sometimes transposing laws verbatim. However, this does not guarantee that the law will be followed verbatim; differences between de jure and de facto interpretations have emerged.
To what extent is the government able to collaborate effectively with international efforts to foster global public goods?
10
9
9
The government can take a leading role in shaping and implementing collective efforts to provide global public goods. It is able to ensure coherence in national policies affecting progress.
8
7
6
7
6
The government is largely able to shape and implement collective efforts to provide global public goods. Existing processes enabling the government to ensure coherence in national policies affecting progress are, for the most part, effective.
5
4
3
4
3
The government is partially able to shape and implement collective efforts to provide global public goods. Processes designed to ensure coherence in national policies affecting progress show deficiencies.
2
1
1
The government does not have sufficient institutional capacities to shape and implement collective efforts to provide global public goods. It does not have effective processes to ensure coherence in national policies affecting progress.
Luxembourg is mainly involved in international reform initiatives in the framework of the European Union, as well as in the multilateral environment (OECD, ONU, UNESCO), including participation in cooperation for development across the world.
The Sustainable Development Goals of the United Nations’ 2030 Agenda (adopted at the 2015 U.N. Summit), have been integrated into the 2021 Grand Duchy’s National Reform Program for the first time. The government is working to update its strategic approach with reference to the revised International Climate Finance Strategy (defined by the United Nations Climate Change Conference and the Paris Agreement), the Aichi Biodiversity targets, and the Sendai Framework for Disaster Risk Reduction, which sets standards and goals for climate action and environmental and social protection. The Grand Duchy signed a new strategic framework agreement (2020-2023) that will enable the World Health Organization (WHO) to implement the Thirteenth General Program of Work flexibly and effectively. All this should also contribute to making society more resilient.
According to Luxembourg’s development cooperation strategy, entitled “On the road to 2030,” the country provided international and multilateral organizations with €119.7 million in 2019 and €124.6 million in 2020. Luxembourg has been an essential supporter of the Global Fund since its inception. With contributions totaling more than €47.85 million to date, the country is one of the most generous donors among the members of the Organization for Economic Cooperation and Development (OECD).
Citations:
“National Plan for a Green, Digital and Inclusive Transition. National Reform Programme of the Grand Duchy of Luxembourg under the European semester 2021.” The Government of the Grand Duchy of Luxembourg. https://ec.europa.eu/info/sites/default/files/2021-european-semester-national-re form-programme-luxembourg_en.pdf. Accessed 03 Jan.2022.
“Economic forecast for Luxembourg 2020-2023. European Commission.” https://ec.europa.eu/info/business-economy-euro/economic-performance-and-forecas ts/economic-performance-country/luxembourg/economic-forecast-luxembourg_en. Accessed 03 Jan.2022.
“How Countries are Performing on the Road to Recovery.” World Economic Forum. Special edition 2020. https://www3.weforum.org/docs/WEF_TheGlobalCompetitivenessReport2020.pdf. Accessed 03 Jan.2022.
The Global Fund. https://www.theglobalfund.org/en/. Accessed 14 January 2022.
The Sustainable Development Goals of the United Nations’ 2030 Agenda (adopted at the 2015 U.N. Summit), have been integrated into the 2021 Grand Duchy’s National Reform Program for the first time. The government is working to update its strategic approach with reference to the revised International Climate Finance Strategy (defined by the United Nations Climate Change Conference and the Paris Agreement), the Aichi Biodiversity targets, and the Sendai Framework for Disaster Risk Reduction, which sets standards and goals for climate action and environmental and social protection. The Grand Duchy signed a new strategic framework agreement (2020-2023) that will enable the World Health Organization (WHO) to implement the Thirteenth General Program of Work flexibly and effectively. All this should also contribute to making society more resilient.
According to Luxembourg’s development cooperation strategy, entitled “On the road to 2030,” the country provided international and multilateral organizations with €119.7 million in 2019 and €124.6 million in 2020. Luxembourg has been an essential supporter of the Global Fund since its inception. With contributions totaling more than €47.85 million to date, the country is one of the most generous donors among the members of the Organization for Economic Cooperation and Development (OECD).
Citations:
“National Plan for a Green, Digital and Inclusive Transition. National Reform Programme of the Grand Duchy of Luxembourg under the European semester 2021.” The Government of the Grand Duchy of Luxembourg. https://ec.europa.eu/info/sites/default/files/2021-european-semester-national-re form-programme-luxembourg_en.pdf. Accessed 03 Jan.2022.
“Economic forecast for Luxembourg 2020-2023. European Commission.” https://ec.europa.eu/info/business-economy-euro/economic-performance-and-forecas ts/economic-performance-country/luxembourg/economic-forecast-luxembourg_en. Accessed 03 Jan.2022.
“How Countries are Performing on the Road to Recovery.” World Economic Forum. Special edition 2020. https://www3.weforum.org/docs/WEF_TheGlobalCompetitivenessReport2020.pdf. Accessed 03 Jan.2022.
The Global Fund. https://www.theglobalfund.org/en/. Accessed 14 January 2022.
Graph View
To what extent do actors within the government monitor whether institutional arrangements of governing are appropriate?
10
9
9
The institutional arrangements of governing are monitored regularly and effectively.
8
7
6
7
6
The institutional arrangements of governing are monitored regularly.
5
4
3
4
3
The institutional arrangements of governing are selectively and sporadically monitored.
2
1
1
There is no monitoring.
In the absence of systematic monitoring of institutional arrangements, the government relies mainly on international expertise. EU and OECD data significantly affects the political agenda, and the implementation of social and economic policies. However, in line with the coalition agreement for the 2018-2023 period, the Grand Duchy embarked on a series of administrative and organizational reforms – the so-called “state modernization.” Public services were encouraged to implement customer/citizen-focused-quality management systems.
The European Commission’s 2018 report entitled “Public administration characteristics and performance in EU28” confirmed the Luxembourg status-quo-oriented administrative tradition. The country scores high on the Uncertainty Avoidance dimension (thus reflecting a certain resistance to new methods and ideas), but also on the Long-term Orientation dimension (which expresses the pragmatism of the public administration and the ability to adapt to change). A comparative review of the Power Distance dimension indicates that Luxembourg’s traditions, like those in Germany and France, retain considerable respect for authorities and hierarchies.
The Grand Duchy is a member of the Open Government Partnership (OGP), which is a multilateral initiative aiming to stimulate governments around the world to make concrete commitments to promote good governance through the use of new technologies. The 2019-2021 National Plan was prepared by a horizontal group (facilitated by the Ministry of Foreign and European Affairs and the “Digital Lëtzebuerg” platform), with the participation of various stakeholders (ministries, administrations, civil society, academia, media). Luxembourg articulates its action around six goals: transparent and open administration, promotion of open data, promoting the use of clear administrative language, information on climate action, establishment of a European center for CiviTech, and establishment of a support program for human rights defenders.
Within the ongoing “Digital Lëtzebuerg” strategy, many actions have already been accomplished. However, due to country’s high-quality technological structure, it should still be possible to further streamline the administrative formalities and procedures that affect users (citizens, businesses, administrations).
Citations:
“Open Government Partnership. Luxembourg National Action Plan 2019-2021.” The Government of the Grand Duchy of Luxembourg/Open Government Partnership Lëtzebuerg (10 March 2020). https://www.opengovpartnership.org/wp-content/uploads/2019/08/Luxembourg_Action-Plan_2019-2021_EN.pdf. Accessed 14 January 2022.
“Public administration characteristics and performance in EU28: Luxembourg.” European Commission. Directorate-General for Employment, Social Affairs and Inclusion Support for developing better country knowledge on public administration and institutional capacity-building” (VC/2016/0492) (2018).
“Einfach Lëtzebuerg.” The Government of Grand Duchy of Luxembourg. https://einfach.public.lu/fr.html. Accessed 14 January 2022.
The European Commission’s 2018 report entitled “Public administration characteristics and performance in EU28” confirmed the Luxembourg status-quo-oriented administrative tradition. The country scores high on the Uncertainty Avoidance dimension (thus reflecting a certain resistance to new methods and ideas), but also on the Long-term Orientation dimension (which expresses the pragmatism of the public administration and the ability to adapt to change). A comparative review of the Power Distance dimension indicates that Luxembourg’s traditions, like those in Germany and France, retain considerable respect for authorities and hierarchies.
The Grand Duchy is a member of the Open Government Partnership (OGP), which is a multilateral initiative aiming to stimulate governments around the world to make concrete commitments to promote good governance through the use of new technologies. The 2019-2021 National Plan was prepared by a horizontal group (facilitated by the Ministry of Foreign and European Affairs and the “Digital Lëtzebuerg” platform), with the participation of various stakeholders (ministries, administrations, civil society, academia, media). Luxembourg articulates its action around six goals: transparent and open administration, promotion of open data, promoting the use of clear administrative language, information on climate action, establishment of a European center for CiviTech, and establishment of a support program for human rights defenders.
Within the ongoing “Digital Lëtzebuerg” strategy, many actions have already been accomplished. However, due to country’s high-quality technological structure, it should still be possible to further streamline the administrative formalities and procedures that affect users (citizens, businesses, administrations).
Citations:
“Open Government Partnership. Luxembourg National Action Plan 2019-2021.” The Government of the Grand Duchy of Luxembourg/Open Government Partnership Lëtzebuerg (10 March 2020). https://www.opengovpartnership.org/wp-content/uploads/2019/08/Luxembourg_Action-Plan_2019-2021_EN.pdf. Accessed 14 January 2022.
“Public administration characteristics and performance in EU28: Luxembourg.” European Commission. Directorate-General for Employment, Social Affairs and Inclusion Support for developing better country knowledge on public administration and institutional capacity-building” (VC/2016/0492) (2018).
“Einfach Lëtzebuerg.” The Government of Grand Duchy of Luxembourg. https://einfach.public.lu/fr.html. Accessed 14 January 2022.
To what extent does the government improve its strategic capacity by changing the institutional arrangements of governing?
10
9
9
The government improves its strategic capacity considerably by changing its institutional arrangements.
8
7
6
7
6
The government improves its strategic capacity by changing its institutional arrangements.
5
4
3
4
3
The government does not improve its strategic capacity by changing its institutional arrangements.
2
1
1
The government loses strategic capacity by changing its institutional arrangements.
In 2021, the government launched its Electronic Governance 2021-2025 strategy, which was drawn up jointly by the Ministry for Digitalization and the Government IT Centre (CTIE), with the aim of enhancing e-government mechanisms and enabling the transition to digital government. To achieve this, the government’s IT center is currently bolstering its digital services infrastructures, thus achieving very high levels of security and reliability. Due to the fact that all services provided the Luxembourg public authorities have now been digitized, the application procedure for the various COVID-19 aid schemes was streamlined for citizens and companies alike via the MyGuichet.lu portal.
As a new step related to the administrative reform and simplification process, the national portal for public inquiries, www.enquetes-publiques.lu, which was launched in 2021, provides information about various procedures. Public inquiries are formal and mandatory prior to certain administrative decisions.
Another ambitious reform ongoing since 2010 has been the general opening of the civil service to citizens of the European Union, with the exception of some positions relating to national sovereignty. The change is expected to gradually improve the quality of government administration.
Citations:
“Electronic Governance 2021-2025’ strategy.” The Luxembourg Government (2021). https://ctie.gouvernement.lu/en/dossiers/strategie_gouvernance_electronique_2021_2025/strategie_gouvernance_electronique_2021_2025.html. Accessed 14 January 2022.
“The national portal for public inquiries.” The Luxembourg Government. Ministry of Digitalization (2021). https://digital.gouvernement.lu/en/dossiers/2021/pnep.html. Accessed on 14 January 2022.
As a new step related to the administrative reform and simplification process, the national portal for public inquiries, www.enquetes-publiques.lu, which was launched in 2021, provides information about various procedures. Public inquiries are formal and mandatory prior to certain administrative decisions.
Another ambitious reform ongoing since 2010 has been the general opening of the civil service to citizens of the European Union, with the exception of some positions relating to national sovereignty. The change is expected to gradually improve the quality of government administration.
Citations:
“Electronic Governance 2021-2025’ strategy.” The Luxembourg Government (2021). https://ctie.gouvernement.lu/en/dossiers/strategie_gouvernance_electronique_2021_2025/strategie_gouvernance_electronique_2021_2025.html. Accessed 14 January 2022.
“The national portal for public inquiries.” The Luxembourg Government. Ministry of Digitalization (2021). https://digital.gouvernement.lu/en/dossiers/2021/pnep.html. Accessed on 14 January 2022.