MINIMUM STAFFING NORM FOR AN ADMINISTRATIVE STRUCTURE

Abstract

This article examines the problem of administrative capacity in small-sized central government administrations in Bulgaria, focusing on the absence of a normative minimum staff threshold for the performance of mandatory general administrative functions. The analysis combines a review of the legal framework governing administrative organization with empirical data obtained under the Access to Public Information Act from central administrations with fewer than 50 staff positions. The findings reveal systematic patterns of capacity compensation, including concentration of multiple heterogeneous administrative functions within single positions, extensive reliance on external contractors and shared services, and the absence of clearly designated responsible officials for legally mandated regimes. These practices create structural risks related to compliance, continuity, and effectiveness of administrative activity, particularly in areas requiring specialized expertise such as financial control, human resources management, information security, and access to public information. Based on the empirical evidence, the article argues that the current regulatory approach implicitly assumes the existence of administrative capacity that is not realistically achievable in small administrations. It proposes an expert-based framework for determining a minimum administrative staff threshold necessary for lawful and effective functioning, while outlining policy implications for administrative reform, shared services, and capacity rationalization. The study contributes to public policy debates by linking formal regulatory requirements with observed organizational practices and identifying concrete points for policy intervention.