Drag-and-Drop Law

Simplifying bureaucracy and legal decision-making processes with Rulemapping

Stephan Breidenbach
Till Behnke
Ina Remmers

Nobody likes to wait months for a decision from the authorities. But new legal requirements have often meant complicated forms, manual checks, and long processing times. The Rulemapping Group is taking a radical new approach to change this. Their Law as Code approach transforms laws and administrative processes into executable program code. In other words, rules and regulations are translated as digital rule-maps in context, and this is done so precisely that computers can read and apply them directly. Even changes to legislation can be entered using drag and drop, and it is possible to work on procedures collaboratively. Above all, more than one office can work on the procedure at the same time – an invaluable advantage when you consider that it currently takes an average of four years to obtain approval for a wind turbine because up to 24 specialist authorities process paper files one after the other, stated Till Behnke, one of the managing directors.

Rule maps are based on no-code technology and can be configured without programming to keep laws and regulations up to date. In order to really make an impact on a large scale, rule maps including an editor are to be made available as open source programs. In administration, Rulemapping also creates the basis for the sensible use of artificial intelligence (AI) because it can provide support where data is unstructured or decisions are complex.

Tilo Wend
Matthes Scheinhardt
Dirk Woywood

The idea came from Stephan Breidenbach, who 25 years ago, as a newly appointed law professor at the Viadrina in Frankfurt/Oder, no longer wanted to put up with the lengthy research and examination of the law. Inspired by the book Gödel, Escher, Bach by Douglas Hofstadter, the topic of visualization appealed to him – and he finally set himself the task of illustrating the subsumption and the cosmos that emerges from it.

If-then logic: Subsumption means that a major question, such as whether planning permission may be granted in the administrative area, is broken down into layers of checks. Law graduates learn to think along these lines as early as their undergraduate studies. To answer the big question, they approach it in small steps: Planning permission may only be granted if no sand lizard or other rare animal in need of special protection lives where the building is to be constructed. This is called an operative fact. A large set of regulations against which a building permit is checked consists of hundreds, sometimes thousands of operative facts that are checked individually. Legal logic dictates that entire layers of examination are often superfluous if one operative fact is not present. If the sand lizard only lives there, no construction is allowed. The rest of the review is unnecessary because this one operative fact cannot be made up for by other criteria being met. However, it is also important to examine important exceptions, because if it is a socially relevant issue such as a wind turbine, then it may still be possible to build it.

How can you visualize the legal review process in such a way that there is constant recognition? asked Breidenbach. He designed an initial rule map for his students: It was clear to me over 20 years ago that much more could be made of this, namely automation, creating access to legal knowledge, or bringing about settlements in court and mediation proceedings.

The power lies in comprehensibility, transparency – in an image.

In addition to his teaching activities, he founded a company because he did not see sufficient opportunities to promote his idea at the university. Tilo Wend was on board right from the start, initially as a third-semester law student and then quickly as the managing director responsible for the further development of the technology. Over the years, there have always been various areas in which the rule map has been used to good effect, including mass proceedings such as Toll Collect or the diesel scandal, in which hundreds of thousands of lawsuits were processed and filed in a very short time with the help of the software.

For a question about another project, in 2022 Breidenbach turned to Rafael Laguna de la Vera, founding director of SPRIND, on recommendation. They chatted and ended up talking about breakthrough innovations – interest was aroused on both sides. Breidenbach later submitted his idea to SPRIND, followed by an initial validation of the rule map. And then, as life would have it, Breidenbach said, Till Behnke, a social entrepreneur with whom he had already launched the charitable donation platform betterplace.org 18 years ago, was able to spare some time. Benke, Ina Remmers, and Matthes Scheinhardt had withdrawn from running the neighborhood platform nebenan.de, which they founded in 2023, and caught fire for rule mapping. The trio joined forces, with co-founder Dirk Woywood bringing many years of operational and technological expertise on board – and since then the new, diverse management team has dedicated itself entirely to Rulemapping. They are all experienced business people who, although they say they no longer camp out in the office, bring all the more expertise and composure in the face of world-changing visions.

We joined when it came to scaling the whole thing and were very happy to answer the call of the Professor, as we affectionately call him. The integration of AI and digital process automation was invented in the autumn of 2023, which meant that a language model and the rule map could be combined, said Behnke, that was and is the only way in the world to get the only correct answer from AI without it hallucinating. The patent application is pending.

Woywood, Wend, Remmers, Scheinhardt, Behnke, Breidenbach
The management team of the Rulemapping Group (f. l. t. r.): Dirk Woywood, Tilo Wend, Ina Remmers, Matthes Scheinhardt, Till Behnke and Stephan Breidenbach

It is always said that there is too much bureaucracy and that it needs to be reduced, but we absolutely have to change the narrative. Bureaucracy doesn’t just control things, it structures the way we live together. We need regulations, stated Remmers. The complexity will not go away, and interests have become more complicated. We must therefore make the state more functional and find innovative solutions to deal with administrative action.

An application of the Rulemapping Group has already been established to do just that. Europe’s first Article 21 DSA-certified dispute resolution body for social media platforms has been established to review thousands of social media complaints and uses end-to-end technology. Lawyers receive an AI-supported proposal that is visually comprehensible and correct thanks to the rule map. All other approaches to using AI in law remain a black box, as they are not comprehensible and also make false suggestions, said Behnke.

For a long time now, it has not just been about streamlining bureaucracy or even – a regular accusation – replacing people with AI. It’s about creating tools so that the state remains capable of acting at all, people can work better, and we are not heading for a catastrophe. Many courts are already overloaded, and in the next few years the baby boomer generation will be retiring in droves, stated Breidenbach. It is also clear that the disenchantment of many citizens with politics is linked to the many small frustrating experiences they have had as private individuals when it comes to applying for documents or planning permission, for example.

The Rulemapping Group, which is based in Berlin and currently has 20 employees, reached an important milestone in April 2025: an equity financing of twelve million euros, in which SPRIND made a significant investment. This is intended to help to spread the technology as quickly as possible and make it available wherever mass or very complicated processes are required – in the public sector as well as in companies.

More about the Rulemapping Group: rulemapping.com

I always knew that our system was the basis for future AI integration. AI is getting better at handling structured data and we have the architecture for legal or rule-based decision-making processes. We just had to wait a little until the AI was ready to work with us – or we were ready to work with it. - Stephan Breidenbach

At SPRIND, we believe that our state needs a digital backbone instead of a confusing number of isolated solutions, as a resilient and sovereign foundation for a modern society. Rulemapping rethinks administration and legislation and not only creates a digital basis for automating processes with the help of AI, but also offers a real prospect of making the state as a whole more effective.

Rule mapping can radically simplify administrative processes: Routine applications can be processed automatically, complex processes are prepared with the help of AI, and humans always retain an overview. At the same time, bureaucracy becomes transparent – every decision is stored in the code and can be traced. This is precisely where the potential lies: A real paradigm shift in the way laws are created and implemented, benefiting citizens, authorities, and companies alike. The rule mapping method is unique worldwide and could become an export hit.

Together with a private lead investor, we are investing in the Rulemapping Group as part of a financing round totaling twelve million euros in growth capital. At the same time, we are helping to ensure that rule mapping becomes a generally usable, international standard for law as code. We are promoting the further development of the technology as well as pilot projects in public administration and are accompanying the step into the mainstream. Our goal is for rule mapping to establish itself as an essential building block of a digitally sovereign state in Germany and internationally.

Rule maps serve as a reliable blueprint for administrative decisions, from application to decision. Because the rules are available in computer code, many routine decisions can be fully automated – for example, standard applications, approvals, or benefit calculations. Citizens receive notifications much faster because software can check a complex application in seconds. At the same time, everything is carried out strictly in accordance with the applicable laws, only much more efficiently. The understandability of decisions also increases: Each decision step is documented and can be viewed if required. The result is more transparent processes in which everyone can see which rule led to which decision.

Rulemapping creates the basis for the sensible use of artificial intelligence in administration. Because if the legal rules of the game are available as code, AI can provide targeted support where data is unstructured or decisions are complex – without making the system impenetrable. It works according to rules and remains comprehensible because it follows the common theme of a digitally mapped set of rules. Rule mapping thus combines the strengths of automation and AI: Routine cases are dealt with automatically, complex cases are prepared by the AI – and in the end, humans retain control over the final decision.

Thinking of legislation and administrative processes as code fundamentally changes administrative action. Decisions no longer have to be fought for manually through countless files and paragraphs, but are made digitally and uniformly. This not only speeds up procedures, but also minimizes errors and discretionary scope – every case is handled according to the same, fixed set of rules. At the same time, government employees gain time for the really tricky cases or for direct contact with citizens. All of this ultimately strengthens trust in government processes: When administration becomes faster, more transparent and more efficient, people experience the state as being service-oriented and capable of acting efficiently.

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