|Bulgaria Country Studies index|
Bulgaria - Government Structure
The constitution of 1971 substantially diminished the power of the Council of Ministers, or cabinet, which had been an intermittent center of executive authority in Bulgarian governments since 1878. In the last two decades of the Zhivkov regime, the council acted as an advisory board to the State Council and directed everyday operations of the government bureaucracies. All members of the Council of Ministers belonged to the BCP or BANU, and many held top party posts and ministries simultaneously. Longtime Politburo member Stanko Todorov headed the executive committee of the council from its creation in 1971 until 1989. Within their areas of responsibility, the ministries had authority to form administrative organs and to overturn acts by local government agencies. The exact makeup of the council was not prescribed in the constitution; the National Assembly had authority to make changes as necessary, and the council's shape and size changed often in the last Zhivkov years.
After the elections of 1986, the Council of Ministers was reorganized and reduced in size. In the last years of the Zhivkov regime, it included eleven ministers, a chairman (the prime minister), a deputy prime minister, and the chairman of the Committee on State and People's Control. In early 1990, the new provisional council had fourteen ministries: agriculture and forests; construction, architecture, and public works; economy and planning; finance; foreign affairs; foreign economic relations; industry and technology; internal affairs; internal trade; justice; national defense; national education; public health and social welfare; and transport. The ambassador to the Soviet Union also had full cabinet status, as did the heads of the committees for protection of the environment and state and people's control. Five deputy prime ministers also sat in that cabinet, which was headed by Zhivkov-era holdover Georgi Atanasov. The second provisional cabinet, under Andrei Lukanov, included ministers of the environment, culture, and science and higher education in its seventeen departments. The ambassador to the Soviet Union was dropped, and a minister for economic reform added.
The new status of the Council of Ministers as the power center of Bulgarian government was signaled by the targeting of Prime Minister Lukanov for opposition pressure in the fall of 1990. A second signal was intense bargaining between the BSP and opposition parties for positions in the Popov cabinet. That bargaining produced a compromise agreement that gave the key ministries of foreign economic relations and finance to the BSP, with national defense going to the UDF. The Ministry of the Interior, very sensitive because of its role under Zhivkov as the enforcer of state security, was largely reorganized and headed by a nonpolitical figure whose two deputies represented the major parties. The splitting of the deputy minister positions was a key compromise to gain approval of the Popov cabinet. In all, five of the seventeen ministers in the new cabinet were politically unaffiliated; seven remained from the last Lukanov cabinet to soften the transition; and the UDF filled only three posts. The multiparty conference that reached this agreement also allowed for further adjustments in the cabinet structure for the Popov government. As an interim head of government, Popov's main goal was to establish minimal political and economic conditions favorable to long-term reforms.
More about the Government and Politics of Bulgaria.
In 1987 Bulgaria consolidated its local government structure by combining its twenty-eight districts (okruzi; sing. okrug), into nine provinces (oblasti; sing. oblast), including the city of Sofia. A tangible part of the Zhivkov regime's massive (and largely theoretical) plan for economic and political restructuring, the reorganization imitated restructuring plans in the Soviet Union. Local government consolidation was to eliminate the complex and inefficient okrug bureaucracies and improve the operation of "people's self-management," the system by which people's councils nominally managed area enterprises. The latter improvement was to result from narrowing the primary function of the new oblast government to the assistance of local workers' collectives. At the same time, municipalities and townships became somewhat more autonomous because the restructuring gave them some of the administrative power removed from the higher level.
Although the number of districts had remained stable from 1959 until the 1987 reform, the number and allocation of smaller urban and rural political entities changed rapidly during that period as the population shifted. In 1990 there were 299 political divisions smaller than the oblast and twentynine separate urban areas. Both oblasti and smaller constituencies were ruled by people's councils, elected for thirtymonth terms. The local multiple-candidate elections of February 1988 were another aspect of the restructuring program. Although local election commissions retained considerable influence over nominations, about 26 percent of successful candidates were nonparty in 1988. At that time, 51,161 councillors and 3,953 mayors were elected.
The people's councils at all levels were run by elected executive committees that met continuously. These committees had full executive power to act between sessions of the people's councils, in the same way as the State Council acted for the National Assembly in the Zhivkov-era national government. Each council was responsible to the council at the next higher level; financial planning was to conform to the goals of national economic programs. Local councils had authority over the People's Militia, or police, as well as over local services and administration. The Popov government scheduled new local elections for February 1991, after which time reforms were expected in the local government system. Meanwhile, most provincial governments remained under the control of Zhivkovite officials, intensifying the schism between the urban and provincial political climates.
The first significant post-Zhivkov act of the holdover (ninth) National Assembly was passage of twenty-one measures of constitutional reform. These measures included abolition of the article of the 1971 constitution giving the BCP sole right to govern. In April 1990, that National Assembly dissolved itself to make way for national election of a Grand National Assembly, charged with writing and ratifying a new constitution; this was the first voluntary adjournment of that body since World War II.
In accordance with the provisions under which the 1990 parliamentary elections were held, after passing the new constitution in July 1991 the Grand National Assembly voted to dissolve itself and continue working as a normal parliament until election of the new body. Thus, in the second half of 1991 work would continue on critical legislation covering issues such as privatization, election procedures, and local government reform.
After the 1990 national elections, the National Assembly remained a weak legislative body, but for a new reason. No longer required to follow party orders precisely, representatives often were split quite evenly on reform issues. The majority BSP included reform and reactionary factions, and the 144 UDF members were a formidable opposition group. Unlike the brief assemblies of the Zhivkov era, the new body remained in session several days a week throughout the remainder of 1990 through mid-1991, struggling for compromise on reform legislation.
The State Council and the Presidency
In the years immediately following the Zhivkov regime, the nominal structure of the Bulgarian government remained essentially unchanged. Actual decision making, however, moved from the elite level of the communist leadership to a variety of political figures and institutions.
The Role of Unofficial Organizations
In the post-Zhivkov reforms, the National Assembly returned to its prewar status as a forum for debate of legislation among representatives of true political factions. This status had been lost completely from 1947 to 1989, when the assembly rubber-stamped legislation originating in the BCP hierarchy.
The Assembly under Zhivkov
According to the 1971 constitution, the unicameral National Assembly was the supreme organ of state power, acting as the national legislature and electing all the other bodies of the national government. In practice under the Zhivkov regime, the National Assembly met for three short sessions each year, long enough to approve policies and legislation formulated by the Council of Ministers and the State Council. The National Assembly had a chairman (elected by the entire body, until 1990 at the recommendation of the BCP Central Committee), and four deputy vice chairs. In the intervals between sessions, the functions of the assembly were conducted by permanent commissions whose number and designation varied through the years. Not enumerated in the 1971 constitution, the authority of the commissions often overlapped that of the ministerial departments. The National Assembly had the power to dissolve itself or extend its term in emergency session.
During the Zhivkov years, new assemblies were elected every five years to coincide with party congresses; the Central Committee of the BCP met immediately before the first session of each new assembly to approve candidates who were then rubber-stamped by the National Assembly for the leadership positions of the assembly, State Council, and Council of Ministers. The ninth National Assembly (1986-90) was rarely even notified of policy decisions of the Zhivkov-led State Council. Nevertheless, election of the National Assembly remained the most important political ritual in Bulgaria throughout the communist period, and the return to free assembly elections in 1990 recalled the direct popular representation prescribed in the Turnovo Constitution of 1879, still revered as a model for Bulgarian governance.
Members of the highest national judicial body, the Supreme Court, were elected to five-year terms by the National Assembly. Until 1990, however, National Assembly approval really meant control by the State Council, hence by the BCP. The national court system was divided into criminal, civil, and military courts; the Supreme Court had jurisdiction in both original and appellate cases, and it controlled the activities of all lower courts. The 1971 constitution called the court system and state prosecutor's office "weapons of the dictatorship of the proletariat." The chief prosecutor, chief legal official of Bulgaria, was responsible for compliance with the law by ordinary citizens, local and national political entities and officials, and other public organizations. The powers of this office were extended by law in 1980 in an effort to forestall public dissatisfaction with the crime prevention system. Like the justices of the Supreme Court, the chief prosecutor served at the approval of the State Council. Together with the chief justice of the Supreme Court, the chief prosecutor provided absolute BCP control of the Bulgarian judicial system until 1990. The election of all judicial officials further guaranteed this control.
Lower courts functioned at the provincial and municipal levels; election was by people's councils at the provincial level and directly by citizens at the municipal level, using party-approved lists. In 1990 each of Bulgaria's provinces (including Sofia) had a province court. The 105 provincal courts tried minor offenses. Both professional judges and lay assessors sat in the lower courts. Specialized disputes were heard outside the regular court system. For example, international trade cases went to the Foreign Trade Court of Arbitration of the Bulgarian Chamber of Commerce and Industry, civil disputes among enterprises and public organizations were heard by the State Court of Arbitration, and labor disputes were settled by the conciliation committees of enterprises.
Criticized before and after the fall of Zhivkov, the Bulgarian justice system changed little with the reform programs of 1990 and 1991. The round table resolutions of early 1990 alluded only to separation of the judicial, legislative, and executive branches to avoid concentration of power in any single branch. However, establishment of an independent, authoritative judiciary would be complicated by the universal view, instilled by forty-five years of complete control by the BCP, that the Bulgarian court system was only an extension of the state's executive power. In a 1991 poll, only 1.7 percent of Bulgarians expressed trust in the courts and the prosecutor's office. In 1990 the youngest judges were over forty years old, and the most talented had left for other careers because of the short term of office, poor pay, low professional status, and party control. In late 1990, Judge Dimitur Lozanchev became the first politically neutral chairman of the Supreme Court since World War II.
The State Council, technically an executive committee within the National Assembly, was created by the 1971 constitution as the primary executive agency of the national government. Because of that role, the chairman of the council was automatically president of the country and thus one of the two most powerful figures in Bulgaria in the Zhivkov years. The State Council included representatives from trade unions, the Communist Youth League of Bulgaria (Komsomol), and other mass organizations. The council supervised the Council of Ministers and had the right to repeal ministry decisions--a function that clearly reduced the Council of Ministers to secondary executive status. In addition to its executive functions, the State Council could issue direct decrees with full legal authority when the National Assembly was not in session, with no provision for later approval by the full legislative body. Under Zhivkov most members of the State Council were high officials of the BCP. When Petur Mladenov replaced Zhivkov as chairman of the State Council, he did not automatically become head of state. When the State Council was abolished in April 1990, the round table named Mladenov president of the republic, a new title for the Bulgarian head of state. The appointment was made with the understanding that the new constitution would set guidelines for this office. Meanwhile, Mladenov and his successor Zheliu Zhelev retained the power to form cabinets with the consent of the National Assembly, to represent the country abroad, and to act as commander in chief of the armed forces.
The First Freely Elected Assembly, 1990
The National Assembly
The round table reforms of 1990 included a new election law ratified by the National Assembly. As in other aspects of governance, prescribed election procedures did not change greatly under the new regime, but the intent and practice of the law did. The right to vote by direct secret ballot remained universal for all Bulgarians over eighteen, and the officials they elected remained thoretically responsible only to the voters. Prescriptions for eligibility for nomination and the nomination process changed little with the new law. The main difference was that in practice the BCP (BSP) no longer could indiscriminately remove elected representatives or members of people's councils, nor did it control the nomination function nominally given to public organizations, trade unions, youth groups, and cooperatives.
Under the election law of 1953, all candidate lists were approved by the communist-controlled Fatherland Front. Under the 1990 law, all parties and registered nonparty organizations could submit candidates; individuals could be nominated for the assembly with 500 signatures of voters from their district, and an unlimited number of candidates might run from each district. The State Council formerly had the power to call elections; for the 1990 Grand National Assembly election, the date was fixed by agreement of the UDF and the BCP. The Central Election Commission, formerly a creature of the State Council, was to supervise the equitable implementation of election laws, overseeing the operation of equivalent commissions at local levels. Election commissions at all levels included members from various parties; the Central Election Commission was headed by a professor of law with no political connection.
The new law also revised the representational system of the National Assembly. The new assembly continued to have 400 seats, but it would sit for four instead of five years. A new electoral structure also was introduced. Half the National Assembly members were elected in multiple-seat districts, in proportion to total votes cast for each party in the district. A 4 percent minimum was required for a party to achieve representation. The law designated twenty-eight multiple-seat voting districts, based on the pre-1987 okruzi. The other 200 members were elected from 200 singleseat voting districts. A runoff election was held in each district where no candidate received 50 percent of the initial vote (this occurred in 81 of the 200 districts). All voters in the 1990 election had one vote in each type of district.
The election was supervised by the CSCE. According to impartial observers and the parties themselves, the election was reasonably free of interference and coercion, considering that most of the electorate had never faced a true political choice and the registration and voting systems were quite complex. Party strategies were dictated by timing and geography. The UDF, lacking time and resources to campaign in the provinces, confined its efforts to the more congenial constituency in Sofia and other large cities. The BSP campaigned as a reform party in progressive Sofia, but it took advantage of the substantial residue of Zhivkovite local officials in the provinces (many of whom were accused of exerting pressure on their constituents to vote BSP) to gain 211 assembly seats to the UDF's 144. The UDF outpolled the BSP in Sofia, Plovdiv, Varna, and most other Bulgarian cities.
The timing of the next national election was the topic of heated debate in the first half of 1991 as political factions maneuvered for advantage. After the new constitution was ratified in July 1991 and a new election law was scheduled for August, elections were tentatively set for October 1991. The new election law was to free the system of the cumbersome procedure used in 1990. Controversial elements of the law were a BSP-backed clause disallowing absentee ballots from émigrés and the restriction of all campaign activities to the Bulgarian language. The 1991 law prescribed a Central Electoral Commission of twenty-five, to be appointed by the president in consultation with major political factions. The central commission would then appoint and oversee like commissions at lower jurisdictions and set policy for election administration. National elections were to be held by the proportional system, eliminating the two-part system of 1990. Recognized parties, coalitions of parties, individual nominees, and combinations of individuals and parties would be eligible to run. The country was divided into thirty-one electoral constituencies, three of which were in Sofia.
The Council of Ministers
An important quasigovernmental institution in the early stages of this process was the national round table. Conceived by opposition groups shortly after Zhivkov's fall, the round table format was accepted by the Atanasov government under threat of general strikes. In March 1990, a declaration on the role and status of the national round table, formulated by all major political groups, gave the round table approval rights to all major legislation proposed by the government, prior to formal consideration by the National Assembly. In 1990 round table discussions included key government figures and representatives of all constituent groups of the UDS and other opposition parties and trade unions. This forum was an effective bridge across the chaotic months preceding the first free election. It reached key compromises on election law, major provisions of the new constitution, and economic reforms. Compromise measures were then forwarded to the parliament for ratification. By mid-1990 round table proposals were dominated by the platform of the UDF, for which that forum had become the chief input to government policy. The national round table thus replaced the BCP as the de facto source of legislative initiatives, in the absence of a coalition government representing the major Bulgarian political factions.
In late 1990, President Zhelev convened a Political Consultative Council that was able to unite all major factions behind formation of a coalition government in December 1990. This step ended the threat that chaos would follow the resignation of the Lukanov government. In January 1991, the parties represented in the National Assembly signed a detailed agreement describing political rights, the legislative agenda for 1991, BCP (BSP) responsibility for the mistakes of the Zhivkov regime, property rights, resolution of social conflicts, and ethnic questions. The stated purpose of this agreement was to ease national tensions and provide a proper working atmosphere for the immense reform program envisioned for 1991.
You can read more regarding this subject on the following websites:
Bulgaria Country Studies index
Country Studies main page