01_Prelims_Monica.qxd 10/3/06 2:52 PM Page i THE NATIONAL COURTS MANDATE IN THE EUROPEAN CONSTITUTION The reform of the European Constitution continues to dominate news headlines and has provoked a massive debate, unprecedented in the history of EU law Against this backdrop Monica Claes book offers a bottom up view of how the Constitution might work, taking the viewpoint of the national courts as her starting point, and at the same time returning to fundamental principles in order to interrogate the myths of Community law Adopting a broad, comparative approach, she analyses the basic doctrines of Community law from both national constitutional perspectives as well as the more usual European perspective It is only by combining the perspectives of the EU and national constitutions, she argues, that a complete picture can be obtained, and a solid theoretical base (constitutional pluralism) developed Her comparative analysis encompasses the law in France, Belgium, Denmark, the Netherlands, Germany, Ireland, Italy and the United Kingdom and in the course of her inquiry discusses a wide variety of prominent problems The book is structured around three main themes, coinciding with three periods in the development of the judicial dialogue between the ECJ and the national courts The first focuses on the ordinary non-constitutional national courts and how they have successfully adapted to the mandates developed by the ECJ in Simmenthal and Francovich The second examines the constitutional and other review courts and discusses the gradual transformation of the ECJ into a constitutional court, and its relationship to the national constitutional courts The contrast is marked; these courts are not specifically empowered by the case law of the ECJ and have reacted quite differently to the message from Luxembourg, leaving them apparently on collision course with the ECJ in the areas of judicial Kompetenz-Kompetenz and fundamental rights The third theme reprises the first two and places them in the context of the current debate on the Constitution for Europe and the Convention, taking the perspective of the national courts as the starting point for a wide-ranging examination of EUs constitutional fundamentals In so doing it argues that the new Constitution must accommodate the national perspective if it is to prove effective Volume in the series Modern Studies in European Law 01_Prelims_Monica.qxd 10/3/06 2:52 PM Page ii Modern Studies in European Law Soft Law in European Community Law Linda Senden The Impact of European Rights on National Legal Cultures Miriam Aziz Partnership Rights, Free Movement and EU Law Helen Toner National Remedies Before the Court of Justice Michael Dougan The National Courts Mandate in the European Constitution Monica Claes 01_Prelims_Monica.qxd 10/3/06 2:52 PM Page iii The National Courts Mandate in the European Constitution Monica Claes HART PUBLISHING OXFORD AND PORTLAND, OREGON 2006 01_Prelims_Monica.qxd 10/3/06 2:52 PM Page iv Published in North America (US and Canada) by Hart Publishing c/o International Specialized Book Services 5804 NE Hassalo Street Portland, Oregon 97213-3644 USA â Monica Claes 2006 Monica Claes has asserted her right under the Copyright, Designs and Patents Act 1988, to be identified as the author of this work Hart Publishing is a specialist legal publisher based in Oxford, England To order further copies of this book or to request a list of other publications please write to: Hart Publishing, Salters Boatyard, Folly Bridge, Abingdon Rd, Oxford, OX1 4LB Telephone: +44 (0)1865 245533 Fax: +44 (0)1865 794882 email: mail@hartpub.co.uk WEBSITE: http//:www.hartpub.co.uk British Library Cataloguing in Publication Data Data Available ISBN 10: 1-84113-476-7 (hardback) ISBN 13: 978-1-84113-476-5 (hardback) Typeset by Datamatics Technologies Ltd, India Printed and bound in Great Britain by TJ International Ltd, Padstow, Cornwall 01_Prelims_Monica.qxd 10/3/06 2:52 PM Page v Acknowledgements This book was originally written as a PhD thesis, which I defended at the Law Faculty of the University of Maastricht in June 2004 The original topic of my research had been the impact of Community law on the constitutional position of national courts (this ultimately became Part I) As I went along, I became more interested in the multifaceted theme of the relationship between legal orders and constitutionalism in a multilevel Constitution, which I decided to include in the book, and analysed from the perspective of national courts (this ended up being Part II of my book) When I returned to my research after maternity leave, the constitutional debate had been redirected, and was now phrased in terms of the Convention and the Draft Treaty establishing a Constitution for Europe I decided to add a third (and final!) Part to my book, examining the impact of the Constitutional Treaty on the national courts European mandate Writing this book took time and patience, and would never have been possible without the encouragement and support of many people Being grateful to many, I would like to mention a few I would like to express my sincere gratitude to my supervisors, Bruno de Witte and Aalt Willem Heringa I thank Bruno for his astute comments and sharp remarks, for his kind encouragement and his wise and flexible approach He was always ready to share his wide knowledge and clear insights, first in Maastricht, later from Florence by e-mail Bruno truly was and is my mentor, my Doktorvater I thank Aalt Willem for his help, guidance and support, both with respect to my work and in human matters His belief in me and my work gave me confidence I hope and trust that I will continue to learn from both of them I would like to thank the members of the PhD committee: Hildegard Schneider, Sacha Prechal and Luc Verhey, for their time and support I thank Leonard Besselink, Ellen Vos and Pierre Larouche for their comments and for the stimulating debate at the defense ceremony I thank my seconds (paranimfen) Janneke Gerards and Margreet Keus, both of whom I admire greatly, and whose strength and dedication inspire me Margreet and Janneke have supported me during the final stages of writing and in the preparation of my PhD defence They have shared the legendary nervous last minutes before the start of the ceremony in the zweetkamertje of the University of Maastricht Nettie Litjens kindly agreed to put the files together and produce a camera-ready manuscript, and did so with remarkable patience and 01_Prelims_Monica.qxd 10/3/06 2:52 PM Page vi Acknowledgements equanimity She, in fact, gently forced me to finally bring my research to an end The University of Maastricht provided the opportunity and the warm environment to conduct my research and write the book I am grateful to my family, friends, and colleagues who helped me in ways unknown to them Above all, I thank my parents and my parentsin-law Writing this book simply would not have been possible without their support Finally, words cannot express my gratitude to Eric, for his unfailing love and support He put up with me during the entire process of writing and not writing, enquiring as to progress at the right times, respecting my grudging silence at others, patiently encouraging me to persevere all along During the process, we were joined by our sons Lucas and Michiel; and after the completion of the manuscript, by Olivier The boys took away much of our time and sleep, but they gave me the energy to bring this project to an end I dedicate this book to my boys, all four of them Maastricht, October 2005 vi 01_Prelims_Monica.qxd 10/3/06 2:52 PM Page vii Contents Table of Cases Introduction The Judge, his Mandate, the National Constitution and European Union Law I II Setting the Stage The Theoretical Framework xii 27 PART The National Courts as Common Courts of European Law 39 Introduction 41 Before the West was Won: A Touch of Legal Archaeology 2.1 The General Picture 2.2 The Netherlands 2.3 France 2.4 Belgium 2.5 Luxembourg 2.6 Germany 2.7 Italy 2.8 Conclusion 45 45 48 50 52 53 54 55 56 The Creation of a Community Mandate for National Courts 3.1 Introduction: National Courts as Community Courts 3.2 Hints of a Role for National Courts in the Treaties 3.3 The Community Mandate of the National Courts 58 58 60 67 The Duty to Review National Law: the Simmenthal Mandate 69 4.1 The Doctrine of Direct Effect 70 4.2 The Doctrine of Supremacy 97 4.3 Direct Effect and Supremacy: the Simmenthal Mandate 108 4.4 Supremacy beyond Direct Effect? 114 4.5 Conclusion 117 Refining the Mandate: Second Generation Issues 5.1 The Principle of Procedural Autonomy 119 120 01_Prelims_Monica.qxd 10/3/06 2:52 PM Page viii Contents 5.2 5.3 5.4 5.5 5.6 viii From a Principle of Structural Supremacy to the Principle of Full Effectiveness The Principle of Effective Judicial Protection The Requirement of Uniform Application of Community Law Intermediate Concluding Remarks Changing the Perspective: the Creation of New Remedies 124 135 140 141 143 The Simmenthal Mandate Embraced 6.1 Introduction 6.2 Gradual Acceptance of the Duty of Judicial Review by the Domestic Courts: a Birds Eye View 6.3 Final Remarks 149 149 About Legal Orders 7.1 Introduction 7.2 The Classic Dichotomy: Monism and Dualism 7.3 What Relationship between National and Community Law: in Search of a Doctrinal Basis 7.4 The Relationship between the Community and National Legal Order in the Case Law of the Court of Justice 7.5 The New Legal Order and the European Union 7.6 Defining the Community Legal Order from the National Perspective 7.7 Closing Remarks 166 166 167 The Constitutional Limits of the Judicial Function 8.1 The Place of the Courts in the National Constitutional System 8.2 The Court of Justice and the Jurisdictional Issue 8.3 The National Answer Explaining Acceptance 9.1 Legalist Explanations 9.2 Judicial Dialogue 9.3 The Wider Context: National Constitutional Law on Treaties 9.4 The Wider Context: the General Increase of Constitutional Review 9.5 The Empowerment Thesis 9.6 The Inter-court Competition Argument 9.7 Cross-fertilisation 9.8 National Legal Cultures 9.9 La Doctrine and Personalities on the Bench 150 164 173 179 187 187 212 214 214 222 224 246 246 249 252 253 255 257 258 260 262 01_Prelims_Monica.qxd 10/3/06 2:52 PM Page ix Contents 9.10 And Beyond 9.11 The Cases at Hand 9.12 The Proportion of Community Law Cases in Domestic Proceedings 9.13 Final Remarks 10 Excursion: The Costanzo Mandate of Administrative Authorities 11 The Francovich Mandate: Jurisdiction to Hold the State Liable for Breach of Community Law 11.1 Introduction 11.2 State Liability for Breach of Community Law before Francovich 11.3 Liability of the Legislating State in National Law 11.4 The Case of Infringements of Community Law: Pre-Francovich Decisions of National Courts 11.5 Non-contractual Liability of the Community 11.6 The European Perspective: The Courts Case Law on Governmental Liability for Breach of Community Law 11.7 Liability of the State: the National Answer 11.8 Conclusion 263 264 264 265 266 279 279 281 286 301 313 318 346 382 PART The Court of Justice and National Constitutional Jurisdictions: La Guerre des Juges? 385 12 Introduction 387 13 Introducing the Actors: Courts Having Constitutional Jurisdiction 13.1 Defining the Actors: National Courts Having Constitutional Jurisdiction 13.2 The European Court of Justice as a Rival Constitutional Court 13.3 A Strenuous Constitutional Dialogue 14 La Guerre des Juges? 14.1 Constitutional Courts and the Simmenthal Mandate: Are the Constitutional Courts under the Same Mandate as Ordinary Courts? 14.2 Community Law and the National Constitutional Courts Mandate 391 392 399 423 452 452 463 ix 01_Prelims_Monica.qxd 10/3/06 2:52 PM Page x Contents 15 Prior Review of the Constitutionality of Treaties 15.1 The European Perspective 15.2 The National Perspective 15.3 Preventive Constitutional Review of the Treaties: A Few Observations 465 465 469 16 A Posteriori Constitutional Review of the Treaties 16.1 The European Perspective 16.2 The National Perspective 16.3 Concluding Remarks 495 495 500 532 17 Preventive Constitutional Review of the Constitutionality of Secondary Law 17.1 The European Perpsective 17.2 The National Perspective 17.3 Concluding Remarks 535 535 541 557 18 Judicial Review of Secondary European Union Law by National Courts? 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Page xi Contents 22 Incorporation of the National Courts Mandate? 22.1 General Observations 22.2 The Treaty Establishing a Constitution for Europe 680 680 682 23 Fundamental Rights 23.1 Reminder: the Current Situation 23.2 The EU Charter of Fundamental Rights 23.3 Accession to the European Convention on Human Rights 23.4 Accession and/or Charter? 23.5 The Treaty Establishing a Constitution for Europe... International Court of Justice, Advisory Opinion of 11 April 1949, Reparations for Injuries Suffered in the Service of the UN, ICJ Reports 1949, 174 105, 607 International Court of Justice, decision of 27 June 2001, Germany v United States (in the case of La-Grand), available on www.icj-cij.org 106, 183 ECHR All decisions are available on www.echr.coe.int European. .. 134, 269, 276 Case C-158/91 Criminal proceedings against Jean-Claude Levy [1993] I-4287 574 Joined Cases C-181/91 and C-248/91 European Parliament v Council of the EC and Commission of the EC [1993] ECR I-3685 408, 538 Joined Cases C-267 and C-268/91 Criminal proceedings against Keck and Mithouard [1993] ECR I-6097... Modjahedines du Peuple dIran (OMPI) v Council, pending 594 Case T-333/02 Gestoras Pro Amnistia association and others v Council (pending) 694 International Court of Justice Permanent Court of Justice, Advisory Opinion of 3 March 1928, Jurisdiction of the Courts of Danzig, PCIJ Series B, no 15 72, 106 International... Germany v European Parliament and Council of the European Union (tobacco advertising and sponsoring) [2000] ECR I-8419 42, 649 Case C-377/98 The Netherlands v European Parliament and Council (Biotechnology) [2001] ECR I-7079 421 Joined Cases C-397/98 and C-410/98 Metallgesellschaft Ltd, Hoechst AG and Hoechst (UK) Ltd v Commissioners of Inland Revenue... v Council of the European Union [1995] I-7 498 Case C-290/94 Commission v Greece [1996] ECR I-3285 537 Opinion 2/94 Accession by the Community to the ECHR [1996] ECR I-1759 419, 649, 657, 701 Opinion 2/94 Accession by the Community to the ECHR [1996] ECR I-1788 516, 625 Case C-27/95 Woodspring District Council... 352 European Court of Human Rights, admissibility decision of 23 May 2002, Segi and Gestoras Pro Amnistia and others v Germany, Austria, Belgium, Denmark, Spain, Finland, xxvi 01_Prelims_Monica.qxd 10/3/06 2:52 PM Page xxvii Table of Cases France, Greece, Ireland, Italy, Luxembourg, the Netherlands, Portugal, the United Kingdom and Sweden, available on www.echr.coe.int ... dipositions dadaptation au droit communautaire dans le domaine des transports 628 Conseil constitutionnel, decision n 98-408 DC of 22 January 1999, Treaty establishing the International Penal Court 469 Conseil constitutionnel, decision n 99-412 DC of 15 June 1999, European Charter of regional and minority languages 469 France Available at www.legifrance.fr... Grỹne Gewerkschaftr Innen/UG pending, Opinion of AG Jacobs delivered on 12 December 2002 444 Court of First Instance Case T-51/89 Tetra Pak Rausing SA v Commission [1990] ECR II-309 3, 58 Case T-521/93 Atlanta and others v Council and Commission [1996] ECR II-1707 612, 6156 Case T-584/93 Olivier Roujansky v Council of the European Union [1994]... Willy Rothley and Others v European Parliament [2000] ECR II-2085 412 Case T-17/00 Willy Rothley and Others v European Parliament [2002] ECR II-579 412 Case T-174/00 Biret International SA v Council [2002] ECR II-17 571 Case T-236/00 Gabriele Stauner and Others v European Parliament ... Before the Court of Justice Michael Dougan The National Courts Mandate in the European Constitution Monica Claes 01_Prelims_Monica.qxd 10/3/06 2:52 PM Page iii The National Courts Mandate in the European. .. Cases Introduction The Judge, his Mandate, the National Constitution and European Union Law I II Setting the Stage The Theoretical Framework xii 27 PART The National Courts as Common Courts of European. .. Defining the Community Legal Order from the National Perspective 7.7 Closing Remarks 166 166 167 The Constitutional Limits of the Judicial Function 8.1 The Place of the Courts in the National Constitutional