The Impact of the EU Charter on
Fundamental Rights: From
Theory to Practice
An Introduction for the Public Interest Law
Alliance (PILA), Dublin, 7 February 2013
Jonathan Cooper
Doughty Street Chambers
The Lisbon Treaty: do we have a
Constitutional Framework for
Europe?
Ireland in Europe
Treaty of Nice: In 2001 Irish
voters rejected the Treaty of Nice by
53.9% (Accepted in 2002 by
62.9% )
Treaty of Lisbon: On 12 June 2008
the Treaty of Lisbon was rejected by
a margin of 53.4% to 46.6%
(Accepted by a margin of 67.1% to
32.9% on 2 October 2009)
The Lisbon Treaty in a Nutshell
•
No more byzantine architecture
•
The three pillars have become
one.
•
The EU has a legal personality
•
The EU becomes more supranational and less intergovernmental.
•
Enhanced democratic
accountability and judicial
oversight
•
Human rights move centre stage
The Lisbon Treaty is a complicated
amending treaty. It incorporates a
European Union that is made up of:
• 3 Treaties;
• almost 40 Protocols;
• 2 Annexes; and
• myriad Declarations.
The consolidated texts stretch to over
500 A4 pages.
Read together is this a Constitution?
Treaties making up the EU post
Lisbon
•
Treaty of the European Union (TEU) =
democratic principles, institutions, enhanced
cooperation, external action and common
foreign and security policy of the EU;
•
Treaty on the Functioning of the European
Union (TFEU) = “organises the functioning of
the Union and determines the areas of,
delimitation of, and arrangements for
exercising its competences” (draws heavily on
now defunct TEC); and
•
EU Charter of Fundamental Rights and
Freedoms is given effect by becoming a
separate Treaty
Transforming the Values and
Objectives of the EU
•
Lisbon makes human rights protection as
important as the consolidation of the Union.
•
Is the guarantee of the internal market no
longer the overriding objective of the EU?
•
The EU’s values: human dignity, democracy,
equality, the rule of law and respect for human
rights, including the rights of persons belonging
to minorities.
•
The EU’s objectives include promoting social
justice and protection, equality between women
and men, solidarity between generations and
the protection of the rights of the child, as well
as combating social exclusion and
discrimination.
Those objectives also include:
•
“contributing to peace, security, the
sustainable development of the Earth,
solidarity and mutual respect among
peoples,
•
free and fair trade, eradication of
poverty and the protection of human
rights, in particular the rights of the
child,
•
as well as to the strict observance and
the development of international law,
including respect for the principles of
the United Nations Charter.”
Human Rights within the EU:
pre and post Lisbon
Human Rights within the EU pre
Lisbon:
•
Early case law of the ECJ: human rights
ought to be read into the way the EEC is
implemented (Stauder v City of Ulm)
•
The Maastricht Treaty 1992: reference
to the role of human rights principles
(process continued at Amsterdam and
then Nice IGCs)
•
Cologne Council 1999: agreement to
codify rights within the EU
•
Nice 2000: EU Charter of Fundamental
Rights and Freedoms was solemnly
proclaimed
Amended Article 6, TEU
Article 6 TEU guarantees, and protects,
enforceable human rights in three ways:
•
the EU Charter of Fundamental Rights
(the Charter) is given binding effect by
becoming a Treaty of the EU;
•
the EU will become a party to the ECHR;
and
•
pre-existing human rights protection
within the EU and its Member States
will continue to be part of EU law.
THE TFEU FURTHER EXTENDS HUMAN
RIGHTS PROTECTION - PROVISIONS
HAVING GENERAL APPLICATION
INCLUDE:
Article 8
In all its activities, the Union shall aim to eliminate
inequalities, and to promote equality, between men
and women.
Article 9
... the Union shall take into account requirements
linked to the promotion of a high level of employment,
the guarantee of adequate social protection, the fight
against social exclusion, and a high level of education,
training and protection of human health.
Article 10
... the Union shall aim to combat discrimination based
on sex, racial or ethnic origin, religion or belief,
disability, age or sexual orientation.
TFEU (HUMAN RIGHTS) PROVISIONS
HAVING GENERAL APPLICATION
INCLUDE:
Article 11
Environmental protection requirements must be
integrated into ... the Union...
Article 13
... since animals are sentient beings, pay full regard to
the welfare requirements of animals ....
Article 16
Everyone has the right to the protection of personal
data concerning them...
Article 17
The Union respects ... churches and religious
associations or communities in the Member States ...
equally respects ... philosophical and non-confessional
organisations ... the Union shall maintain an open,
transparent and regular dialogue with these churches
and organisations.
The EU Charter of
Fundamental Rights:
prospects, possibilities &
pitfalls
The European Union Charter of
Fundamental Rights: what is it &
where did it come from?
The Charter was drafted by a Convention comprised of:
•
15 representatives of heads of state or government
•
16 Members of the European Parliament
•
30 members of national parliaments
•
An EU Commissioner
“The Charter which we are drafting must one day in the
not-too-distant future become legally binding …. We
should therefore proceed as if we had to submit a legally
binding list” (Roman Herzog, President of the Convention with
responsibility for drafting the Charter, December 1999)
Charter proclaimed on behalf of the EU institutions in
December 2000. It was decided it should be non-binding.
The EU Charter of Fundamental
Rights: where do the Rights come
from?
In the preamble it is expressly stated to reaffirm:
“… the rights as they result, in particular, from the
constitutional obligations and international obligations
common to the Member States, the Treaty on European
Union, the Community Treaties, the European
Convention for the Protection of Human Rights and
Fundamental Freedoms, the Social Charters adopted by
the Community and by the Council of Europe and the
case law of the Court of Justice of the European
Communities and the European Court of Human rights”
Content of the Charter
The Charter includes civil and political rights and
economic and social rights thus affirming the indivisibility
of human rights.
These rights are divided into six sections:
•
Dignity
•
Freedoms
•
Equality
•
Solidarity
•
Citizens' rights
•
Justice
The content of the Charter has been unaffected by the
Lisbon Treaty, although some of the wording has been
adapted. It is gender neutral.
NB: Check your Charter is 14/12/2007 (OJ C/303/1)
Content of the Charter: Key Additions
Dignity:
Article 1: Human dignity
Human dignity is inviolable. It must be respected
Article 3: Right to the integrity of the person
1. Everyone has the right to respect for his or her physical and
mental integrity.
Article 5: Prohibition of slavery and forced labour
3. Trafficking in human beings is prohibited
Content of the Charter
Freedoms:
Article 8: Protection of personal data
3. Compliance with these rules shall be subject to control by an
independent authority
Article 9: Right to marry and found a family
No requirement to be between women and men
Article 10: freedom of thought, conscience and religion
2. The right to conscientious objection is recognised ...
Content of the Charter
Freedoms
Article 11: Freedom of expression and information
2. The freedom and pluralism of the media shall be
respected
Article 12: Freedom of assembly and association
2. Political parties at Union level contribute to expressing the
political will of the citizens of the Union
Article 13: Freedom of the arts and sciences
The arts and scientific research shall be free of constraint.
Academic freedom shall be respected.
Content of the Charter
Freedoms
Article 14: Right to education
1. Everyone has the right to education and to have access to
vocation and continuing training
2. This right includes the possibility to receive free
compulsory education
3. The freedom to found educational establishments with
due respect for democratic principles and the right of
parents to ensure the education and teaching of their
children in conformity with their religious, philosophical and
pedagogical convictions shall be respected, in accordance
with the national laws governing the exercise of such
freedom
Content of the Charter
Freedoms
Article 15: Freedom to choose an occupation and
right to engage in work
1. Everyone has the right to engage in work and to pursue a
freely chosen or accepted occupation
3. Nationals of third countries who are authorised to work in
the territories of the Member States are entitled to working
conditions equivalent to those of citizens of the Union.
Article 16: Freedom to conduct a business
The freedom to conduct a business in accordance with Union
law and national laws and practices is recognised
Article 17: Right to property
2. Intellectual property shall be protected
Content of the Charter
Freedoms
Article 18: Right to asylum
The right to asylum shall be guaranteed with due respect for
the rules of the Geneva Convention of 28th July 1951 and
the Protocol of 31st January 1967 relating to the status of
refugees in accordance with the Treaty on European Union
and the Treaty on the Functioning of the European Union
(hereinafter referred to as ‘the Treaties’).
Article 19: Protection in the event of removal,
expulsion or extradition
1. Collective expulsions are prohibited
2. No one may be removed, expelled or extradited to a State
where there is a serious risk that he or she would be subject
to the death penalty, torture or other inhuman or degrading
treatment or punishment.
Content of the Charter
Equality
Article 20: Equality before the law
Everyone is equal before the law
Article 21: Non-discrimination
1. Any discrimination based on any ground such as sex,
race, colour, ethnic or social origin, genetic features,
language, religion or belief, political or any other opinion,
membership of a national minority, property, birth,
disability, age or sexual orientation shall be prohibited
Article 23: Equality between men and women
… The principle of equality shall not prevent the
maintenance or adoption of measures providing for specific
advantages in favour of the under-represented sex
Content of the Charter
Equality
Article 24: The rights of the child
1. Children shall have rights to such protection and care as
is necessary for their wellbeing. They may express their
views freely. Such views shall be taken into consideration on
matter which concern them in accordance with their age and
maturity
2. In all actions relating to children, whether taken by public
authorities or private institutions, the child’s best interest
must be a primary concern
3. Every child shall have the right to maintain on a regular
basis a personal relationship and direct contact with both his
or her parents, unless that is contrary to his or her interests
Content of the Charter
Equality
Article 25: The rights of the elderly
The Union recognises and respects the rights of the elderly
to lead a life of dignity and independence and to participate
in social and cultural life
Article 26: Integration of persons with disabilities
The Union recognises and respects the right of persons with
disabilities to benefit from measures designed to ensure
their independence, social and occupational integration and
participation in the life of the community
Content of the Charter
Solidarity
Article 28: Right of collective bargaining and action
Workers and employers, or their respective organisations,
have, in accordance with Community law and national laws
and practices, the right to negotiate and conclude collective
agreements at the appropriate levels and, in cases of
conflicts of interest, to take collective action to defend their
interests, including strike action.
Article 33: Family and professional life
1. The family shall enjoy legal, economic and social
protection
Content of the Charter
Solidarity
Article 35: Health care
Everyone has the right of access to preventative health care
and the right to benefit from medical treatment under the
conditions established by national laws and practices. A
high level of human health protection shall be ensured in
the definition and implementation of all Union policies and
activities
Article 37: Environmental Protection
A high level of environmental protection and the
improvement of the quality of the environment must be
integrated into the policies of the Union and ensured in
accordance with the principle of sustainable development.
Article 38: Consumer protection
Union policies shall ensure a high level of consumer
protection
Content of the Charter
Citizens’ Rights
Article 41: right to good administration
1. Every person has the right to have his or her affairs
handled impartially, fairly and within a reasonable time by
the institutions, bodies, offices and agencies of the Union.
2. This right includes:
(a) the right of every person to be heard, before any
individual measure which would affect him or her adversely is
taken;
(b) the right of every person to have access to his or her file,
while respecting the legitimate interests of confidentiality and
of professional and business secrecy;
(c) the obligation of the administration to give reasons for its
decisions.
3. Every person has the right to have the Union make good
any damage caused ...
Article 42: Right of access to documents
Article 43: Ombudsman
Content of the Charter
Justice
Article 47: right to an effective remedy and to a fair
trial
Everyone whose rights and freedoms guaranteed by the law
of the Union are violated has the right to an effective
remedy before a tribunal in compliance with the conditions
laid down in this Article …
Legal aid shall be made available to those who lack sufficient
resources insofar as such aid is necessary to ensure effective
access to justice
Article 48: Presumption of innocence and right of
defence
2. Respect for the rights of the defence of anyone who has
been charged shall be guaranteed
Content of the Charter
Justice
Article 49: Principles of legality and
proportionality of criminal offences and penalties
3. The severity of penalties must not be
disproportionate to the criminal offence
Article 50: Right not to be tried or punished twice
in criminal proceedings for the same criminal
offence
The role of the Charter within the EU
Post Lisbon: how it works
TEU, Article 6(1):

The Union recognises the rights, freedoms and principles
set out in the Charter of Fundamental Rights of the European
Union of 7 December 2000, as adapted at Strasbourg, on 12
December 2007, which shall have the same legal value as
the Treaties.


The provisions of the Charter shall not extend in any way the
competences of the Union as defined in the Treaties.
The rights, freedoms and principles in the Charter shall be
interpreted in accordance with the general provisions in Title
VII of the Charter governing its interpretation and application
and with due regard to the explanations referred to in the
Charter, that set out the sources of those provisions.
The EU Charter: how it works
Article 51
1. The provisions of this Charter are addressed to the
institutions, bodies, offices and agencies of the Union
with due regard for the principle of subsidiarity and to
the Member States only when they are implementing
Union law. They shall therefore respect the rights,
observe the principles and promote the application
thereof in accordance with their respective powers and
respecting the limits of the powers of the Union as
conferred on it in the Treaties.
2. The Charter does not extend the field of application of
Union law beyond the powers of the Union or establish
any new power or task for the Union, or modify powers
and tasks as defined in the Treaties.
Rights and Principles:
What is a right?
What is a principle?
Why this distinction?
The EU Charter: how it works
(continued)
Article 52
1. Any limitation on the exercise of the rights and
freedoms recognised by this Charter must be provided
for by law and respect the essence of those rights and
freedoms. Subject to the principle of proportionality,
limitations may be made only if they are necessary and
genuinely meet objectives of general interest
recognised by the Union or the need to protect the
rights and freedoms of others.
2. Rights recognised by this Charter for which provision is
made in the Treaties shall be exercised under the
conditions and within the limits defined by those
Treaties.
The EU Charter: how it works
(continued)
Article 52 cont.
3. In so far as this Charter contains rights which
correspond to rights guaranteed by the Convention for
the Protection of Human Rights and Fundamental
Freedoms, the meaning and scope of those rights shall
be the same as those laid down by the said Convention.
This provision shall not prevent Union law providing
more extensive protection.
4. In so far as this Charter recognises fundamental rights
as they result from the constitutional traditions
common to the Member States, those rights shall be
interpreted in harmony with those traditions.
The EU Charter: how it works
(continued)
Article 52 cont.
5. The provisions of this Charter which contain principles
may be implemented by legislative and executive acts
taken by institutions, bodies, offices and agencies of
the Union, and by acts of Member States when they are
implementing Union law, in the exercise of their
respective powers. They shall be judicially cognisable
only in the interpretation of such acts and in the ruling
on their legality.
6. Full account shall be taken of national laws and
practices as specified in this Charter.
7. The Explanations drawn up as a way of providing
guidance in the interpretation of this Charter shall be
given due regard by the courts of the Union and of the
Member States.
The Charter’s Scope in a Nutshell
Article 51:
The Charter cannot create new areas of competence for
the EU but EU institutions must comply with it
Is existing EU competence required for the Charter to
apply within a Member State? How much is required?
Article 52:



Rights are directly enforceable
Principles are justiciable in the circumstances
identified in Article 52(5)
Article 52(5): how is the distinction to be drawn?
Failure of the Charter and its Explanations to spell
out clearly which of the Charter articles involve
rights and which principles.
The role of the CJEU
The UK Protocol to the EU
Charter
The UK Protocol to the EU Charter
Is it an opt out? Or an interpretive protocol?
The Protocol is not an opt-out from the Charter. The
Charter will apply in the UK, even if its
interpretation may be affected by the terms of the
Protocol.
The Protocol is a belt-and-braces approach of the
Government
“[the Protocol] puts beyond doubt what should
have been obvious from other provisions” (Jack
Straw)
The Application of the
Charter in 10 Easy Steps
The Application of the Charter in 10
Easy Steps
Step 1: The Charter does not apply to pure
domestic law and practice
Step 2: The Charter will only apply when
EU law is implemented
Step 3: What level of engagement is
required for the Charter to kick in? Simple
competence?
Step 4: Does the test of subsidiarity apply?
Are the issues under review more
appropriately addressed at the national
level?
The Application of the Charter in 10
Easy Steps
Step 5: If Union law is implemented, what
is the nature of the right at issue? Is it a
right or a principle?
Step 6: For clarification refer to the
Explanations
Step 7: Is the interference with the Charter
necessary and proportionate?
Step 8: If a right is involved that mirrors
the rights contained in the ECHR, then the
same interpretation of that right must be
given as the one that is provided by the
Strasbourg Court.
The Application of the Charter in 10
Easy Steps
Step 9: Similarly, if the right is guaranteed
by one of the EU Treaties it must be
interpreted consistently with that Treaty
provision.
Step 10: In a UK context, reference should
be had to the UK’s Protocol. Does this affect
the outcome?
Pleading human rights within EU law post
Lisbon: (i) EU law relied upon (ii) TEU (iii)
TFEU (iv) EU Charter (v) Protocol
THE EU CHARTER CASES
POST LISBON TO DATE
The Charter in Force: are judges
paying attention to the Charter?
The impact of the Charter on the judiciary,
both at national and EU level, ‘is already
visible’
The CJEU quoted the Charter in its
reasoning in 42 cases in 2011 (compared to
27 cases in 2010)
November 2012: National courts referred to
the Charter in 27 preliminary rulings
Case Law Regarding the
Application of the Charter
Article 51: Scope of the Charter
• J McB v L.E
• Aklagaren v Fransson
Article 53: Level of protection
• Preliminary ruling in the case of Stefano
Melloni
Article 1: Human Dignity
• Brustle v Greenpeace
Article 4: Prohibition of Torture and
Inhuman or Degrading Treatment or
Punishment
• N.S. v Secretary of State for the
Home Department and M.E. v
Refugee Applications Commissioner
Article 47: Right to an effective remedy
and to a fair trial
• ZZ v Secretary of State for the
Home Department
• Günter Fuß v Stadt Halle
• Alassini and Others
• P. Knauf Gips v European
Commission
• Sofiane Fahas v Council of the
European Union
• DEB Deutsche Energiehandels und
Beratungsgellschaft v Germany
Article 21: Non-Discrimination
• Test Achats v Council of Ministers
• Kücükdeveci v Swedex GmbH & Co.
Article 7: Respect for private and family
life
• Chakroun v Minister van
Buitenlandse Zaken
Article 8: Protection of Personal Data
• Joined cases C-92/09 and C-93/09
• Commission v Germany
Article 11: Freedom of Expression and
Information
• SABAM v Scarlett
Article 18: Right to Asylum
• Hasan and Others
• Minister voor Immigratie v X, and
two others
References to the Charter by the
European Court of Human Rights
• Schalk and Kopf v Austria
Application of the Charter in the
English Courts
R (on the application of Zagorski and
Baze) v Secretary of State for
Business, Innovation and Skills and
Archimedes Pharma UK Ltd
The Impact of the UK’s Protocol
CJEU in N.S v Secretary of State for the Home
Department:
“Article 1(1) of Protocol (No 30) explains
Article 51 of the Charter with regard to the
scope thereof and does not intend to exempt
the Republic of Poland or the United Kingdom
from the obligation to comply with the
provisions of the Charter or to prevent a
court of one of those Member States from
ensuring compliance with those provisions”
Cranston J held that “the Charter cannot be
directly relied on as against the United
Kingdom although it is an indirect influence
as an aid to interpretation.”
The Impact of the UK’s Protocol
In the Court of Appeal, the Secretary of
State’s Notice stated:
“Contrary to the Judge’s holding, the
Secretary of State accepts, in principle, that
fundamental rights set out in the Charter
can be relied on as against the United
Kingdom, and submits that the Judge erred
in holding otherwise (judgment,
paragraphs 155 and 157, first sentence).
The purpose of the Charter Protocol is not
to prevent the Charter from applying to the
United Kingdom, but to explain its effect”