Summary of the Unit
700 draft laws were registered, of which:
- 7 (1%) European integration draft laws;
- 45 (6.4%) draft laws on the consent to or denunciation of international treaties;
- 8 (1.1%) urgent draft laws.
119 draft laws were adopted in their entirety, of which:
- 9 (7.6%) European integration draft laws;
- 17 (14.3%) laws on ratification of international treaties;
- 3 (2.5%) laws were identified by the President as urgent.
The 13th session of the Verkhovna Rada of Ukraine of the 9th convocation was marked by fairly high legislative activity — 700 draft laws were registered, making the 13th session the second-highest by this indicator during martial law. This observation, together with two others, may indicate an increase in legislative spam. Thus, during the 13th session, the share of draft laws with one signatory also increased significantly. In addition, as in previous sessions, the Restoration of Ukraine group demonstrated very high activity: one MP of this group accounts for almost six registered draft laws (five times more than for other factions and groups).
The Government demonstrated the largest share of registered draft laws for the entire 9th convocation. The significant increase in the share of governmental draft laws was due to the change of Government (and the need to re-register draft laws of the previous Government). This also affected the lowest number of adopted laws in all spring sessions during martial law, since no draft law initiated by the Svyrydenko Government was adopted during the 13th session.
The share of laws initiated by minority factions and non-factional MPs totalled 16%, the highest figure for the entire 9th convocation. The number of adopted laws with 23+ signatories is the highest of the 9th convocation. It is also noteworthy that two draft laws of the Platform for Life and Peace group were adopted — for the first time since the beginning of the full-scale invasion.
Registered Draft Laws
700 draft laws were registered during the 13th session, which is 135 more than were registered during the previous spring 11th session. Overall, the 13th session has one of the highest figures for the number of draft laws during martial law. This result differs from the trend of the previous sessions, which recorded a gradual decrease in the number of registered draft laws that began in the 9th session. This can be explained by both the increase in legislative spam and the re-registration of governmental draft laws caused by the change of Government.
Seven European integration draft laws Euro-integration draft laws are those that have been granted the relevant status by decision of the Committee on European Integration. Consequently, the number of Euro-integration draft laws for the 13th session may change and may not correspond to the data presented in the Monitoring. This may occur if the Committee on European Integration recognises draft laws registered during the 13th session as European integration-related after the publication of the Monitoring for that session. The data presented here regarding the number of registered European integration-related draft laws is current as of 2 September 2025. were registered during the 13th session. This is 1% of all registered draft laws.
45 draft laws on the consent to or denunciation of international treaties were registered during the 13th session. This is 6.4% of all registered draft laws.
Eight urgent draft laws were registered during the 13th session. This is 1.1% of all registered draft laws.
Registered Draft Laws by the Initiator
For the majority of factions and groups of the Verkhovna Rada of Ukraine, the indicators of the 13th session remain relatively stable, demonstrating trends similar to those of the previous sessions (10th–12th). Non-factional MPs (6.1%) and the European Solidarity faction (3.6%) registered between 10 and 41 draft laws, which corresponds to their previous activity. The share of draft laws initiated by the President remains at a fairly standard level. However, there are several notable changes and features worth highlighting:
- The share of draft laws initiated by the Cabinet of Ministers of Ukraine increased to 22.7%, compared to 15.8% in the 12th session. This is the largest increase in the Government’s share per session and the highest both in share and in number of draft laws for the entire 9th convocation. Most governmental draft laws were registered by the new Government after 17 July 2025. In one and a half months, the Svyrydenko Government registered more draft laws than the Shmyhal Government did in five months. The pace of registration per month under the Svyrydenko Government is three times higher than that of the Shmyhal Government in the 13th session. The reasons for such growth lie in the re-registration of draft laws after their withdrawal. This process is one of the reasons for the increase in the total number of draft laws per session and in the share of governmental ones.
- The Servant of the People faction demonstrates the lowest share of draft laws for the entire 9th convocation. The number of draft laws of the ruling faction is, in fact, higher than in the previous three sessions. The increase in the number and simultaneous decrease in the share of draft laws of Servant of the People was caused by the growth in the number of registered draft laws from other factions and the Government.
- The Restoration of Ukraine group continued to demonstrate high legislative activity: the group maintained a high level of lawmaking activity, although its share decreased to 13.9% compared to the record 20.4% in the 12th session. The decrease in the share of this group’s draft laws is due to the increase in the number of draft laws of the Government and parliamentary factions. The number of draft laws registered by this group has remained stable over the last four sessions. Nevertheless, the group remains one of the most active, outpacing most factions and groups, which confirms the trend towards possible legislative spam, when a large number of draft laws are registered that do not always have prospects of adoption.
- The share of draft laws initiated by the Fatherland faction increased to 5.9% compared to 3.7% in the 12th session. This is the highest figure for the faction in the last five sessions, indicating an increase in its legislative activity.
- The Holos faction has slightly revived its activity (3% compared to 1.6% in the 12th session), but it remains at a rather low level compared to previous convocations.
The authorship of the draft law was determined by the initiator’s factional affiliation. For MPs, the first signatory of the draft law is considered the initiator. This method has its limitations, but it is used by the VRU Secretariat. In addition, Article 90(3) of the Rules of Procedure explicitly defines the MP whose signature appears first as the initiator of a draft law.
The number of registered draft laws per MP It is worth noting that the number of draft laws per MP does not indicate the efficiency of factions or groups. It is rather an indicator that allows for a better understanding of the general trends in the Verkhovna Rada’s work. The number of draft laws registered by specific MPs is deliberately not given here, as they often perceive it as an indicator of their efficiency. This encourages them to register more draft laws, neglecting the quality, which is one reason for legislative spam. for the majority of factions and groups in the 13th session shows a fairly standard situation for the 9th convocation. Unlike the 12th session, where most factions and groups had fewer than one draft law per MP, in the 13th session, more than half of the factions and groups had more than one draft law per MP. This is particularly evident in the case of the Holos faction, which almost tripled the number of draft laws per MP (1.1 compared to 0.35 in the 12th session), the Fatherland faction — which doubled its figure (1.47 compared to 0.67 in the 12th session) and the Party for the Future — which increased its figure by one and a half times. For MPs belonging to the majority of parliamentary groups, this indicator continues to remain below 0.6 draft laws per MP It is logical to assume that legislative drafting in parties forming factions is better established than in groups formed by majoritarian MPs due to the existing stable organisational structure and the possibilities of establishing the work of the parliamentary association as a subject of the right of legislative initiative. This obviously affects the ability to develop group draft laws. . The Restoration of Ukraine group continues, for the sixth session in a row, to stand out with an extraordinarily high indicator for the 9th convocation — 5.71 draft laws per MP. This figure is higher than in the 12th session and second only to the 10th session. The Restoration of Ukraine group has at least 4.8 times more draft laws per MP than the next faction by this indicator — Servant of the People (1.19). Such a number of draft laws per MP is another sign of legislative spam.
Registered Draft Laws by Groups of Signatories
In terms of the number of signatories to draft laws, the 13th session deviates from the trend of a decrease in the number of draft laws with one initiator, a large number of which indirectly indicates the presence of legislative spam. The share of draft laws with one signatory increased compared to the 11th and 12th sessions and is the highest for all sessions of the 9th convocation. Instead, almost all shares of the other groups of draft laws showed a decrease. This may indicate a lower level of cooperation between MPs and, potentially, a somewhat lower quality of draft laws. At the same time, the gradual increase in the share of draft laws with more than 23 signatories continued.
In this section of parliamentary monitoring, the authors proceed from the assumption that a larger number of signatories correlates positively with better elaboration of draft laws, a higher level of consensus and a decrease in legislative spam.
The draft law with the largest number of signatories is Draft Law on the Commissioner of the Verkhovna Rada of Ukraine for Human Rights No. 13181 of 17 April 2025, which has 248 signatories.
Laws Adopted
119 laws were adopted in their entirety during the 13th session. This is a relatively low figure for the 9th convocation. At the same time, it is the lowest figure for spring sessions during martial law, as the number of adopted draft laws decreased by 18 compared to the 11th session. Moreover, the ratio of adopted to registered draft laws in the 13th session is lower than in the 11th and 12th sessions.
Nine European integration laws were adopted during the 13th session. This is 7.6% of all laws passed.
During the 13th session, the Verkhovna Rada adopted 17 laws on granting consent to international treaties. This is 14.3% of all laws adopted. Only one international draft law was a denunciation of an agreement, namely, on the suspension of the Convention on the Prohibition of Anti-Personnel Mines for Ukraine. Of the 16 treaties ratified by the Verkhovna Rada during the 13th session, seven were multilateral agreements and nine bilateral agreements. Among all these agreements, most were ratified with the EU (four agreements).
Three draft laws (2.5%) adopted during the 13th session were identified by the President of Ukraine as urgent.
The President vetoed (and submitted his proposals) two draft laws. One of them has already been adopted, taking into account the President’s proposals, while the second is under consideration in the committee.
Laws Passed by the Initiator
The Monitoring of the 13th Session Revealed Several Observations
First, MPs of the Servant of the People faction slightly increased their share of all adopted draft laws (46.2%) compared to the 11th session (43%). This figure is fairly typical for Servant of the People when considering the period of martial law. The share of adopted draft laws of Servant of the People has been growing for the third session in a row, although it remains significantly lower than the record 63% in the 10th session.
Second, the Cabinet of Ministers of Ukraine has shown a decrease in the share of adopted laws for the third session in a row. While in the previous session the Government was the initiator of almost one-third of adopted draft laws, now it accounts for only a quarter. The decrease in the share of adopted draft laws can be explained by the change of Government, as part of the draft laws of the previous Government were never adopted, while the new Government’s draft laws have not yet passed all stages of consideration. At the same time, no draft law initiated by the Svyrydenko Government was adopted during the 13th session.
The share of adopted laws initiated by the President of Ukraine also decreased (11.8%) compared to the results of the 12th (14.8%) and 11th (16.8%) sessions. This share of adopted laws initiated by the President is one of the lowest for the 9th convocation.
Third, the share of laws initiated by minority factions and non-factional MPs totalled 16%, the highest figure for the entire 9th convocation. This increase may be explained by the fact that the share of draft laws of the Holos faction more than doubled (9.2%) compared to other sessions during martial law.
Interestingly, during the 13th session, two laws initiated by the Platform for Life and Peace group were adopted. These are the first two draft laws adopted that were initiated by MPs belonging to this group.
Laws Passed by Groups of Signatories
The 13th session partially continued the positive trends of the previous sessions. Compared to the previous 12th session, the share of adopted laws with more than 23 signatories increased significantly, accounting for more than one-third of all laws passed. Their share is not only a record but, for the first time, the highest among all groups in a session. At the same time, the share of draft laws with one signatory also continued to grow. The share of adopted draft laws with 8–22 signatories decreased significantly. Thus, 65% of adopted laws had more than eight signatories, while in the 12th session, this figure was 70%.
The draft law with the largest number of signatories is the Law on Amendments to the Tax Code and Other Laws of Ukraine to Support Entrepreneurs of the Defence and Industrial Complex No. 13420 of 25 June 2025, adopted by the Verkhovna Rada on 21 August 2025. It has 128 signatories.
Laws Passed by the Number of Signatories
| Groups by the number of signatories — MPs for adopted laws | Number of laws submitted by MPs (percentage of total MPs’ laws) |
| 1 | 9 (12.2%) |
| 2–3 | 4 (5.4%) |
| 4–7 | 13 (17.6%) |
| 8–22 | 20 (27%) |
| 23+ | 28 (37.8%) |
