Members of the ACT Legislative Assembly have failed to pass a single private member's bill in the past two years, despite an average of 7.75 bills being passed each year since territory self-government.
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Private member's bills are proposed legislation presented by members of the assembly who are not government ministers.
A new report by assembly clerk Tom Duncan showed that no private member's bill was passed in 2013 or 2014, even though the assembly or at least one of its committees had met on 123 days last year.
Deputy Opposition Leader Alistair Coe presented the only new private member's bill to the assembly last year, seeking to change government procurement policies by requiring all invoices worth more than $10,000 to also be published on a public register.
Currently the government publishes online all contracts with a value of more than $25,000.
Two other private member's bills remain before the assembly from 2013, including one from Opposition Leader Jeremy Hanson limiting the number of government ministers to six, and one from opposition treasury spokesman Brendan Smyth seeking to bring ACT payroll-tax arrangements into line with other jurisdictions.
The bills can only be passed with the support of the government or the Greens' balance-of-power member, minister Shane Rattenbury.
The annual Business of the Assembly report also showed that an average of 37 questions without notice had been asked of government ministers each sitting day and 126 questions placed on the notice paper of outstanding business.
A separate independent report on governance in the ACT by the University of Canberra's Institute for Governance and Policy Analysis found that members of the current assembly believed private members had not exercised their ability to introduce private members' bills
In a recommendation of the report on Latimer House Principles, the ACT said governance would be well served by non-executive members introducing bills - "and so broaden legislative deliberations in the territory."
"In past assemblies, it has been usual for between 15 and 30 private member's bills to be considered and, importantly, enacted," the report said.
In 2015, the assembly is expected to sit for 39 days.
Mr Coe was responsible for the most questions on notice - 51 - by a single member last year, at 51 questions, and 13 petitions including signatures of more than 6700 ACT residents were presented to the assembly last year. A total of six e-petitions were presented.
Mr Coe also recorded the most adjournment speeches by a single member, speaking a total of 35 times. Adjournment debates allow members to speak on any topic they choose at the end of the day's proceedings.
Mr Duncan said the annual report ensured transparency by highlighting the progress of bills, committee work, rulings and statements by the Speaker, ministerial statements and petitions presented.
During 2014, 29 reports from assembly committees were tabled, and ministers made 93 statements - an average of two each sitting day.
Non-executive members moved 65 private members' business motions, most of which were amended and agreed to.
"One of our roles as custodians of the Parliament is to record and highlight the important work of the institution we serve," Mr Duncan said.
"It's a critical aspect of accountability: a robust democracy and a healthy parliament."
The failure to pass private member's bills comes as the opposition continues to target Mr Rattenbury's support for the government through a formal parliamentary agreement signed after the 2012 election.
In September 2013, Mr Hanson declared the opposition would seek to block any legislation Mr Rattenbury introduced in his capacity as an ACT Greens member instead of as a government minister.
He described Mr Rattenbury as a "cowboy" who wanted his own way on all matters, including items not supported by the cabinet. Mr Rattenbury labelled the move undemocratic.
