Instituto de Estudios Políticos y Derecho Público "Dr. Humberto J. La Roche"
de la Facultad de Ciencias Jurídicas y Políticas de la Universidad del Zulia
Maracaibo, Venezuela
Esta publicación cientíca en formato digital es continuidad de la revista impresa
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197402ZU34
ppi 201502ZU4645
Vol.41 N° 78
Julio
Septiembre
2023
Recibido el 13/03/23 Aprobado el 11/05/23
ISSN 0798- 1406 ~ De pó si to le gal pp 198502ZU132
Cues tio nes Po lí ti cas
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de Es tu dios Po lí ti cos y De re cho Pú bli co Dr. Hum ber to J. La Ro che” (IEPDP) de la Fa-
cul tad de Cien cias Ju rí di cas y Po ti cas de la Uni ver si dad del Zu lia.
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avan ces o re sul ta dos de in ves ti ga ción en las áreas de Cien cia Po lí ti ca y De re cho Pú bli-
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Dr. Hum ber to J. La Ro che. Ma ra cai bo, Ve ne zue la. E- mail: cues tio nes po li ti cas@gmail.
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Vol. 41, Nº 78 (2023), 259-271
IEPDP-Facultad de Ciencias Jurídicas y Políticas - LUZ
Policy issues and legal support for
the activity of the State Bureau of
Investigation in Ukraine
DOI: https://doi.org/10.46398/cuestpol.4178.18
Оlena Gulak *
Viktoriia Halai **
Pozniakov Spartak ***
Pavlo Parkhomenko ****
Maryan Hurkovskyy *****
Abstract
Using dialectics and cognition method the purpose of this
work was to analyze the appropriate level of legal support for
the activities of the State Bureau of Investigation, to determine
its eectiveness and to identify problematic aspects. A number of
statutes, reports, online meetings and speeches delivered in the
media and in the specialized committee of the Verkhovna Rada of Ukraine
were investigated. It is concluded that among the shortcomings of the State
Bureau of Investigation regulation, the following stand out: 1) Absence of a
system of internal law enforcement agencies and clear delimitation of their
role; 2) Uncertainty about the status of the State Investigation Bureau as an
anti-corruption body; 3) Changes in the status compared to the principal
established in the rst edition of the Basic Law of Ukraine; 4) Inadequacy
of regulatory consolidation of social and pension provision of employees
of the State Bank of Ukraine; 5) Questions about the need to create expert
services in the SBI system and include them among the state institutions
entitled to conduct forensic examinations in Ukraine.
Keywords: normative and legal support; law enforcement agencies; State
Bureau of Investigation; National Anti-Corruption Bureau of
Ukraine; wartime crimes against children.
* National University of Life and Environmental Sciences of Ukraine, Kyiv, Ukraine. ORCID ID: https://
orcid.org/0000-0001-9004-0185
** State University of Economics and Technology: Kryvyi Rih, Ukraine. ORCID ID: https://orcid.
org/0000-0003-1568-5068
*** Vinnytsia national agrarian university, Vinnytsia, Ukraine. ORCID ID: https://orcid.org/0000-0003-
3861-3710
**** Bakhmatsky District Court of Chernihiv Region, Chernihiv, Ukraine. ORCID ID: https://orcid.
org/0000-0002-0275-9120
***** Lviv State University of Internal Aairs, Lviv, Ukraine. ORCID ID: https://orcid.org/0000-0003-
4275-8576
260
Оlena Gulak, Viktoriia Halai, Pozniakov Spartak, Pavlo Parkhomenko y Maryan Hurkovskyy
Policy issues and legal support for the activity of the State Bureau of Investigation in Ukraine
Cuestiones de política y apoyo jurídico a la actividad
de la Ocina Estatal de Investigación en Ucrania
Resumen
Mediante el uso de la dialéctica y el método de cognición el propósito
de este trabajo fue analizar el nivel adecuado de respaldo legal para las
actividades de la Ocina Estatal de Investigación, para determinar su
ecacia e identicar aspectos problemáticos. Se investigaron una serie de
estatutos, informes, reuniones en línea y discursos pronunciados en los
medios de comunicación y en el comité especializado de la Rada Suprema
de Ucrania. Se concluye que entre las deciencias de la regulación de la
Ocina Estatal de Investigaciones, se destacan las siguientes: 1) Ausencia
de un sistema de agencias de aplicación de la ley internas y una delimitación
clara de su rol; 2) Incertidumbre sobre la condición del Negociado Estatal
de Investigaciones como órgano anticorrupción; 3) Cambios en el estado
en comparación con el principal establecido en la primera edición de la
Ley Básica de Ucrania; 4) Inadecuación de la consolidación reglamentaria
de la provisión social y de pensiones de los empleados del Banco Estatal
de Ucrania; 5) Preguntas sobre la necesidad de crear servicios de expertos
en el sistema SBI e incluirlos entre las instituciones estatales que tienen
derecho a realizar exámenes forenses en Ucrania.
Palabras clave: soporte normativo y legal; organismos encargados de
hacer cumplir la ley; Ocina Estatal de Investigaciones;
Ocina Nacional Anticorrupción de Ucrania; crímenes
contra los niños en tiempos de guerra.
Introduction
The State Bureau of Investigation (after this - SBI) is a Ukrainian state
law enforcement agency tasked with the prevention, detection, termination,
disclosure, and investigation of criminal oenses primarily against high-
ranking ocials, heads of anti-corruption agencies, the judicial corps, law
enforcement ocers and against the established order of wearing military
uniform service, which, in fact, concentrates in itself perhaps the most
signicant powers in terms of the system of currently operating domestic
law enforcement agencies as a whole.
At the same time, the legal regime of martial law has a signicant impact
on the organization of the work of law enforcement agencies that conduct
pre-trial investigations. Currently, on the territory of Ukraine, the most
resonant, in addition to directly military ones, are crimes against children
in the occupied territories, and therefore, the issue of legal responsibility
261
CUESTIONES POLÍTICAS
Vol. 41 Nº 78 (2023): 259-271
for sexual and other violence against children committed during wartime is
gaining special relevance.
The changes introduced following Laws of Ukraine No. 305-IX dated
03.12.2019 and No. 720-IX dated 17.06.2020 add particular importance
and update the status of the body, according to which the SDB from the
status of “central body of executive power carrying out law enforcement
activities” was transformed into a “state law enforcement body,” which
is entrusted with the tasks as mentioned above, which, strengthened the
independence of this body and gave it considerable governmental weight
(Gulak et al., 2023).
1. Objectives
This work aims to analyze the appropriate level of legal support for
the State Bureau of Investigation activities, analyze its eectiveness, and
identify problematic aspects.
2. Materials and methods
General scientic and unique scientic methods of cognition were used to
achieve the goal, particularly dialectical, formal-logical, analysis, synthesis,
systemic-structural, comparative-legal, formal-legal, and prognostic.
The theoretical basis for the research was provided by the scientic
output of scientists who dealt with issues of legal support for the system
of newly created Ukrainian state law enforcement agencies in general, as
well as the legal basis for the formation and operation of the State Bureau
of Investigation.
The problems of the functioning and activity of the system of new law
enforcement agencies, whose activities are aimed primarily at combating
and preventing corruption, were investigated in the work of Gulak O.,
Kurylo V., Dubchak L., Golovko L., Holovii L., Yara O. (Golovko et al.,
2022; Gulak et al., 2015; Gulak et al., 2021; Dubchak et al., 2021; Gulak et
al., 2022; Yara et al., 2021). Furthermore, public control over the activities
of the State Bureau of Investigation was studied in a recent work by the
co-authors of the same scientic publication (Gulak et al., 2023). In the
context of writing the article, the work of Ladychenko V., Danyliuk Yu.,
Golovko L., Kidalov S., Kutsevych M. who studied public participation in
ensuring security and law and order at the level of local self-government
bodies, was used (Ladychenko et al., 2021; Golovko, 2017; Kidalov at al.,
2020; Kutsevych et al., 2020).
262
Оlena Gulak, Viktoriia Halai, Pozniakov Spartak, Pavlo Parkhomenko y Maryan Hurkovskyy
Policy issues and legal support for the activity of the State Bureau of Investigation in Ukraine
A comparative analysis of the legal support of the formation and activity
of the newly created state law enforcement bodies of the anti-corruption
direction became important in the scope of the research. In addition, several
by-laws, reports, online meetings and speeches in the mass media, the
specialized committee of the Verkhovna Rada of Ukraine were examined,
and a critical look was made at the personal participation of the co-authors
of the study in the election of the Council of Public Control at the SBI of the
new term.
3. Results and discussion
Among several legal conicts and imperfections in the normative
regulation of the legal foundations of the formation and activity of the State
Bureau of Investigation, we singled out the following blocks, which we aim
to investigate in the course of writing this scientic article:
1. Absence of a system (clearly dened by a single normative legal
act of such a list) of domestic law enforcement agencies and a clear
delineation of the place of the SBI itself in it;
2. Uncertainty of the status of the State Bureau of Investigation
as an anti-corruption body and a body in the system of ensuring
domestic national security, in particular, the presence of gaps and
conicting positions in the Basic Law of Ukraine on establishing the
foundations of the SBI’s activities, as well as in the corresponding
prole main legislative acts of Ukraine;
3. Changes in the status of the DBR in comparison with the primary
one established in the rst edition of the Basic Law of Ukraine,
which, by analogy with the status of the National Anti-Corruption
Bureau of Ukraine, are such that they contradict the norms of the
Constitution of Ukraine and are the subject of consideration in the
Constitutional Court of Ukraine;
4. Inadequacy of regulatory consolidation of social and pension
provision of employees of the State Bank of Ukraine;
5. Questions regarding the need to create expert services in the SBI
system and include them among the state institutions with the right
to conduct a forensic examination in Ukraine.
The current legislation of Ukraine needs to contain a clear list of
Ukrainian state bodies that are law enforcement. The Law of Ukraine “On
State Protection of Court Employees and Law Enforcement Bodies” (Law
of Ukraine, 1993) provides an incomplete list of bodies considered law
enforcement for this Law. The Law of Ukraine “On the National Security
263
CUESTIONES POLÍTICAS
Vol. 41 Nº 78 (2023): 259-271
of Ukraine” (Law of Ukraine, 2018) discloses only the main characteristics
of law enforcement agencies. Several subordinate legal acts contain non-
exhaustive lists of such bodies. In particular, some founding documents of
state bodies directly indicate their law enforcement status (Resolution of
the Cabinet of Ministers of Ukraine, 2009).
So, to the list of law enforcement agencies, which are dened in
Article 2, “Basic Concepts” of the Law of Ukraine “On State Protection
of Court Employees and Law Enforcement Agencies” following the latest
amendments introduced under the norms of Law of Ukraine No. 1150-IX
dated 28.01.2021 (Law of Ukraine, 2021a), include the following: “bodies of
the prosecutor’s oce, the National Police, the security service, the Military
Law and Order Service of the Armed Forces of Ukraine, the National
Anti-Corruption Bureau of Ukraine, the state border protection bodies,
the Bureau of Economic Security of Ukraine, bodies and institutions for
the execution of punishments, pretrial detention centers, bodies of state
nancial control, sh protection, state of forest protection, other bodies that
perform law enforcement or law enforcement functions” (Law of Ukraine,
1993).
At the same time, the content of Article 1 of the Law of Ukraine “On the
State Bureau of Investigation” indicates the opposite: “The State Bureau
of Investigation is a state law enforcement body entrusted with the tasks
of prevention, detection, termination, disclosure, and investigation of
criminal oenses assigned to its competence” (Law of Ukraine, 2015).
Therefore, the absence of both a comprehensive normative and legal
action regarding the unied denition of the system of “law enforcement
agencies” and the absence of the “State Bureau of Investigation” among
the list of such, in particular, in Article 2 “Basic Concepts” of the Law of
Ukraine “On State Protection of Court Employees and law enforcement
agencies” gives rise to many legal dierences, collisions, and procedural
contradictions.
The same legal conicts concern the uncertainty of the status of the
State Bureau of Investigation as an anti-corruption body and a body in the
system of ensuring domestic national security. In particular, the very status
of the SBI, enshrined in Article 1 of the Law of Ukraine “On the State Bureau
of Investigation” (Law of Ukraine, 2015), mentions the relationship of this
body neither to anti-corruption nor that which is part of the Ukrainian
security and defense sector does not have.
At the same time, the norms of the Law of Ukraine, “On Prevention of
Corruption,” are contradictory, even within the same law. In particular,
Article 1, “Denition of Terms” of the Law of Ukraine “On Prevention of
Corruption” operates in entirely dierent interpretations regarding the
place and role of the law enforcement body under investigation, dening:
264
Оlena Gulak, Viktoriia Halai, Pozniakov Spartak, Pavlo Parkhomenko y Maryan Hurkovskyy
Policy issues and legal support for the activity of the State Bureau of Investigation in Ukraine
1. among the list of specially authorized entities in the eld of anti-
corruption - the prosecutor’s oce, the National Police, the National
Anti-Corruption Bureau of Ukraine, and the National Agency for the
Prevention of Corruption;
2. and at the same time, including, following the latest changes
stipulated by the provisions of the Law of Ukraine No. 1502-IX dated
01.06.2021 (Law of Ukraine, 2021b), among the regular channels
of reporting on possible facts of corruption or corruption-related
oenses methods of protected (including anonymous) reporting
of information by the whistleblower to the prosecutor’s oce, the
National Police, the National Anti-Corruption Bureau of Ukraine,
the National Agency for the Prevention of Corruption, and the State
Bureau of Investigation (Law of Ukraine, 2014).
Part 2 of Article 12, “Composition of the Security and Defense Sector”
of the Law of Ukraine “On National Security of Ukraine” refers to the
security and defense sector: “Ministry of Defense of Ukraine, Armed
Forces of Ukraine, State Special Transport Service, Ministry of Internal
Aairs of Ukraine, National Guard of Ukraine, National Police of Ukraine,
State Border Service of Ukraine, State Migration Service of Ukraine, State
Emergency Service of Ukraine, Security Service of Ukraine, The Anti-
Terrorist Center under the Security Service of Ukraine, the Judicial Security
Service, the State Security Oce of Ukraine, the State Service for Special
Communications and Information Protection of Ukraine, the Apparatus
of the National Security and Defense Council of Ukraine, the intelligence
agencies of Ukraine, the central body of executive power that ensures the
formation and implementation of state military-industrial policy” (Law of
Ukraine, 2018), without including the body under study.
Therefore, regardless of the lack of a classication of the State Bureau
of Investigation both in the main and in the relevant legislation as an anti-
corruption body and a body in the system of ensuring domestic national
security, we see the need for such a legal step, since de facto. Accordingly,
intermediate norms of the current legislation, the SBІ performs these
functions directly.
At one time, special anti-corruption laws were adopted (in particular,
Laws of Ukraine: “On the Anti-Corruption Bureau of Ukraine” and “On the
State Bureau of Investigation”). However, they were not harmonized with
the Constitution of Ukraine. This incompleteness of the previous parliament
gave rise to many legal conicts.
Thus, the director of the National Anti-corruption Bureau of Ukraine
was appointed in April 2015 by issuing a corresponding Decree of the
President of Ukraine, which the Constitution of Ukraine does not provide
as the exclusive authority of the highest ocial of the Ukrainian state.
265
CUESTIONES POLÍTICAS
Vol. 41 Nº 78 (2023): 259-271
In December 2019, the Constitutional Court of Ukraine did not agree to
the changes to the Constitution of Ukraine, which allowed the President
to appoint the directors of the SBI and NABU. On August 28, 2020, the
Constitutional Court of Ukraine recognized as unconstitutional the
Decree of the President of Ukraine on the appointment of Artem Sytnyk
to the position of Director of the National Anti-Corruption Bureau (which
took place in April 2015) and the provisions of the Law of Ukraine “On
NABU” regarding the participation of the President in the selection and
appointment of the Director of the Bureau (Komisarov, 2021).
In order to resolve such signicant regulatory discrepancies in the
system of anti-corruption legislation, several draft Laws of Ukraine were
submitted to the Verkhovna Rada of Ukraine. In particular, on February 15,
2021, the Verkhovna Rada registered the government draft law No. 5070
on bringing the status of NABU into compliance with the requirements of
the Constitution (Draft Law of Ukraine, 2021a). And on February 22 of the
same year - draft Law No. 5133 of February 22, 2021, “On Amendments
to Articles 85 and 106 of the Constitution of Ukraine (Regarding the
Procedure for Appointment and Dismissal of the Director of the National
Anti-Corruption Bureau of Ukraine and the Director of the State Bureau of
Investigation)” (Draft Law of Ukraine, 2021b).
The rationale behind the latest legislative initiative was that those
anti-corruption law enforcement agencies that investigate and uncover
corruption crimes by top ocials, judges, and law enforcement ocers,
namely NABU and SBI, should be as independent as possible from
the legislative (Verkhovna Rada) and executive (Cabinet of Ministers)
authorities On March 16, 2021, following the review of the latest legislative
initiative, draft Law No. 5133 was sent to the Constitutional Court for its
opinion (Draft Law of Ukraine, 2021b).
The proposed constitutional changes are necessary for the legislative
recognition of NABU and DBR as state authorities with a special status.
From a constitutional and legal point of view, amendments to the Basic
Law of our country will make it possible to distinguish the legal status of the
State Security Bureau and NABU from the status of other state authorities.
Similar constitutional and legal transformations are due primarily to
the specic tasks that the SBI and NABU must carry out within the limits
of their powers. At the same time, following the provisions of draft law
No. 5133, the improvement of work in the anti-corruption sphere will be
based on parity and competitive principles of the procedure for appointing
and dismissing directors of these state law enforcement agencies. Similar
proposals were repeatedly expressed by Ukraine’s international partners
(Shevchuk, 2021).
266
Оlena Gulak, Viktoriia Halai, Pozniakov Spartak, Pavlo Parkhomenko y Maryan Hurkovskyy
Policy issues and legal support for the activity of the State Bureau of Investigation in Ukraine
Note that the current status of NABU in the relevant Law of Ukraine
has been changed from a dierent law enforcement body, whose director
is appointed by the President of Ukraine, to a “central body of executive
power with a special status,” following the requirements of Law of
Ukraine No. 1810-IX dated 19.10.2021 “On Introduction amendments to
some laws of Ukraine regarding bringing the status of the National Anti-
Corruption Bureau of Ukraine into compliance with the requirements of
the Constitution of Ukraine” (Law of Ukraine, 2021c).
Instead, at the same time, the SBI acquires the status of a state law
enforcement agency instead of the previous version: “a central body of
executive power that carries out law enforcement activities,” following the
norms of the Law of Ukraine “On Amendments to Certain Laws of Ukraine
on Improving the Activities of the State Bureau of Investigations.” adopted
at the end of 2019 (Law of Ukraine, 2019).
In addition, according to the complete order of norms dened for him
by the Constitution of Ukraine, the President of Ukraine does not have
such powers concerning the newly created body - the State Bureau of
Investigation. Therefore, the norm established in Part 2 of Art. 28 of the
Law of Ukraine “On the State Bureau of Investigations,” regarding the fact
that the Regulations on the Council of Public Control and the procedure for
its formation are approved by the President of Ukraine at the request of the
Director of the State Bureau of Investigations, do not correspond, in our
opinion, to the central Law of our state (Gulak et al., 2023).
Among the essential problematic issues in the activity of the SBI are the
following: the issue of social and pension security for SBI employees and the
need to create expert services in the SBI system and include them among
the state institutions that have the right to conduct forensic examinations
in Ukraine.
In particular, a draft of the Law of Ukraine “On Amendments to the
Law of Ukraine “On the State Bureau of Investigation” and other legislative
acts on social protection of rank-and-le and senior members of the SBI
and particular issues of service in the SBI was prepared for the SBI, which,
following the procedure established by law, along with accompanying
documents, was sent to the Committee of the Verkhovna Rada of Ukraine
on Law Enforcement Activities (Letter dated May 11, 2022, No. 10-11-
01-6163). However, the subjects of the legislative initiative still need to
introduce the specied draft law for consideration by the Verkhovna Rada
of Ukraine.
In addition, the Cabinet of Ministers of Ukraine, as a subject of the
right of a legislative initiative to eliminate legislative gaps and regulate
legal relations in the eld of pension provision for employees of the State
Bureau of Investigation, submitted to the Verkhovna Rada of Ukraine on
267
CUESTIONES POLÍTICAS
Vol. 41 Nº 78 (2023): 259-271
22.07.2021 the draft Law of Ukraine “On making changes to some laws
of Ukraine regarding the regulation of certain issues of pension provision
and insurance of employees of the State Bureau of Investigation” (reg.
No. 5818). According to the results of voting at the plenary session of the
VRU, which took place on December 1, 2022, the mentioned draft law was
rejected in connection with the issue of pension provision for members of
the rank and le of the SBI still needs to be solved.
Currently, the Verkhovna Rada of Ukraine is considering draft law No.
5305, “On Amendments to Certain Laws of Ukraine on Improving the Legal
Basis of the State Bureau of Investigation,” registered on March 26, 2021.
The Verkhovna Rada of Ukraine adopted the said draft law on 01.07.2021
as a basis. However, during its preparation for the second reading, the
norms regarding the creation of expert services in the SBI system and their
classication as state institutions entitled to perform forensic examination
were removed from it in Ukraine, even though the Opinion of the VRU
Committee on Law Enforcement Activities dated November 24, 2021,
recommended its adoption in the second reading and as a whole as a law
with the necessary technical and legal amendments.
Conclusions
Our analysis of the regulatory and legal foundations of the formation
and operation of the State Bureau of Investigation, which, according to its
status, is currently, the law enforcement body with the most potent powers,
showed several conicting norms and contradictions.
Among the imperfections of the normative regulation of the legal
foundations of the formation and activity of the State Bureau of Investigation,
we singled out the following blocks, which were investigated in the course
of writing this scientic article:
1. Absence of a system (clearly dened by a single normative legal
act of such a list) of domestic law enforcement agencies and a clear
delineation of the place of the SBI itself in it;
2. Uncertainty of the status of the State Bureau of Investigation
as an anti-corruption body and a body in the system of ensuring
domestic national security, in particular, the presence of gaps and
conicting positions in the Basic Law of Ukraine on establishing the
foundations of the SBI’s activities, as well as in the corresponding
prole main legislative acts of Ukraine;
3. Changes in the status of the DBR in comparison with the primary
one established in the rst edition of the Basic Law of Ukraine,
268
Оlena Gulak, Viktoriia Halai, Pozniakov Spartak, Pavlo Parkhomenko y Maryan Hurkovskyy
Policy issues and legal support for the activity of the State Bureau of Investigation in Ukraine
which, by analogy with the status of the National Anti-Corruption
Bureau of Ukraine, are such that they contradict the norms of the
Constitution of Ukraine and are the subject of consideration in the
Constitutional Court of Ukraine;
4. Inadequacy of regulatory consolidation of social and pension
provision of employees of the State Bank of Ukraine;
5. Questions regarding the need to create expert services in the SBI
system and include them among the state institutions with the right
to conduct a forensic examination in Ukraine.
It was concluded that the absence of both a comprehensive legal act
regarding the unied denition of the system of “law enforcement agencies”
and the absence of the “State Bureau of Investigation” among the list of
such, in particular, in Article 2 “Basic Concepts” of the Law of Ukraine “On
State Protection of Court Employees and law enforcement agencies” gives
rise to many legal dierences, collisions, and procedural contradictions.
In addition, regardless of the lack of a classication of the State Bureau
of Investigation as an anti-corruption body and a body in the system of
ensuring domestic national security in both the primary and specialized
legislation, we see the need for such a legal step, since de facto. Accordingly,
intermediate norms of current legislation, the SBI performs these functions
directly.
Bibliographic References
DRAFT LAW OF UKRAINE. 2021a. On making changes to some laws of Ukraine
regarding bringing the status of the National Anti-Corruption Bureau of
Ukraine into compliance with the requirements of the Constitution of
Ukraine: Draft Law of Ukraine 5070. Available Online. In: https://
w1.c1.rada.gov.ua/pls/zweb2/webproc4_1?pf3511=71099. Consultation
date: 02/03/2023.
DRAFT LAW OF UKRAINE. 2021b. On Amendments to Articles 85 and 106 of
the Constitution of Ukraine (Regarding the Procedure for Appointment
and Dismissal of the Director of the National Anti-Corruption Bureau
of Ukraine and the Director of the State Bureau of Investigation): Draft
Law of Ukraine № 5133. Available Online. In: http://w1.c1.rada.gov.ua/
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