The independence of the NEURC cannot be ensured outside the executive branch — UNBA
Although strengthening the independence of the NEURC is consistent with Ukraine’s international obligations, the chosen method of achieving this goal is inconsistent with the Constitution, weakens safeguards for market participants, and creates a conflict with budgetary legislation.
This was noted by the UNBA Committee on energy law following an analysis of Draft Law No. 14282 dated December 8, 2025 «On amendments to certain laws of Ukraine regarding the strengthening of guarantees for the exercise of powers by the National Commission for State Regulation in the Spheres of Energy and Public Utilities», which was adopted in principle by the Verkhovna Rada.
In the opinion of the advocates, this draft law effectively removes the energy regulator from the jurisdiction of the Cabinet of Ministers of Ukraine, the civil service, and budgetary discipline all at once. In doing so, it recreates the model of a body «outside the branches of government», which the Constitutional Court has already ruled to be unconstitutional.
According to the legislative proposals, the Cabinet of Ministers will not direct or coordinate the National Commission for State Regulation in the Sectors of Energy and Utilities, nor can it overturn its decisions. The document explicitly prohibits the Commission from seeking or carrying out instructions from the President, the Prime Minister, or members of the Cabinet of Ministers.
According to the draft law, the NEURC will formally remain listed in Article 24 of the Law «On central executive bodies» among bodies with special status. At the same time, the characteristics indicating the regulator’s affiliation with the executive branch will be removed: direction and coordination, the Cabinet’s right to repeal acts, budgetary control, and the status of its personnel.
At the same time, the UNBA Committee notes that Article 116 of the Constitution stipulates that the Cabinet of Ministers directs and coordinates the work of ministries and other executive bodies. The Constitution exhaustively lists the state authorities that do not belong to any of the three branches: the National Bank of Ukraine, the Accounting Chamber, the Ukrainian Parliament Commissioner for Human Rights and the Central Election Commission.
However, the establishment of a state body that, based on its functional purpose, scope of activity, and powers, bears the characteristics of a central executive body but is not subordinate to the Cabinet of Ministers and does not belong to the system of executive bodies is inconsistent with the Constitution (Constitutional Court Decision No. 5-r/2019 of June 13, 2019).
The UNBA is convinced that guarantees of the NEURC’s independence must be built into the system of executive bodies (prohibition on instructions regarding regulatory matters, a protected budget, and protected terms of office), rather than achieved by removing the regulator from within this system.
The full comments can be viewed at this link.
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