The principle of conferral and the principle of sincere cooperation in the light of recent case-law of the CJEU: Are the Member States (post-Lisbon) Masters of the Treaties in the external relations of the EU?

Paulien Van de Velde-Van Rumst
Rechten, notariaat en criminologische wetenschappen
Persbericht

EU-lidstaten in de internationale relaties van de EU – heer en meester?

Herinnert u zich de ‘CETA-saga’ nog? Het moment waarop Waals minister-president Paul Magnette de ondertekening van het handelsakkoord tussen de Europese Unie en Canada op het laatste nippertje kon blokkeren na jarenlange onderhandelingen? Deze situatie is tekenend voor het getouwtrek tussen de EU-lidstaten en de Europese Unie zelf op het internationale toneel. De EU-lidstaten willen graag hun zichtbaarheid behouden en proberen dit af te dwingen voor het Europees Hof van Justitie.

 

De Europese Unie en haar lidstaten voeren een gezamenlijk buitenlands beleid. Dit wil zeggen dat er contacten gelegd worden met landen die geen lid zijn van de Europese Unie om, bijvoorbeeld, handel te vergemakkelijken, terrorisme te bestrijden en klimaatopwarming tegen te gaan. Hoe worden deze taken verdeeld?

 

HET PRINCIPE VAN DE TOEGEKENDE BEVOEGDHEDEN

De verdeling van de internationale taken van de Europese Unie en haar lidstaten gebeurt op basis van het principe van de ‘toegekende bevoegdheden’. De lidstaten van de EU hebben samen een vaste lijst van internationale taken voor de EU bepaald. Sommige van deze taken mag de EU alleen uitvoeren, voor anderen is er samenwerking met de lidstaten nodig. Alleszins, als een internationale taak niet aan de EU wordt toegekend, blijft deze tot het actiegebied van de lidstaten behoren. Het omgekeerde geldt echter ook: van zodra een internationale taak op de lijst voor de EU alleen staat, mogen de lidstaten zich hier niet meer in mengen. Het is hier dat het schoentje wringt: een vaste lijst van taken voor de EU zoals, bijvoorbeeld, ‘de gemeenschappelijke handelspolitiek regelen’, houdt geen rekening met de evolutie van het Europese project en de wereld in het algemeen. Een bevoegdheid als ‘de gemeenschappelijke handelspolitiek’ enkel en alleen toekennen aan de EU, kan op termijn een zeer ruime taak voor de EU impliceren. Het gevolg is dat lidstaten hun vat verliezen op deze internationale relaties en niet meer zichtbaar zijn op het internationale toneel. De EU spreekt voor hen.

 

DE (MISLUKTE) POGINGEN VAN DE EU-LIDSTATEN OM DE CONTROLE TERUG TE WINNEN VOOR HET HOF VAN JUSTITIE

De evolutie van die vaste lijst van internationale taken van de EU was niet voorzien door de lidstaten. Dit leidt tot allerlei discussies voor het Hof van Justitie van de EU. Lidstaten proberen op allerlei manieren de controle over de internationale relaties van de EU terug te winnen. Zo argumenteren ze bijvoorbeeld dat ‘de gemeenschappelijke handelspolitiek’ als exclusieve taak voor de EU minder ruim moet geïnterpreteerd worden. Daarnaast proberen de EU-lidstaten via hun argumentatie voor het Hof van Justitie de rol van de Europese Commissie en van het Europees Parlement in de internationale relaties van de EU te beperken. Zo willen ze bijvoorbeeld de Europese Commissie kunnen sturen bij onderhandelingen met niet-EU landen en vermijden dat het Europees Parlement haar goedkeuring moet geven voor bepaalde internationale acties. De Raad van Ministers, het orgaan waarin de vertegenwoordigers van de EU-lidstaten zetelen, proberen ze dan weer meer macht te geven. Het Hof van Justitie blijkt in het algemeen echter weinig gehoor te geven aan de argumentaties van de lidstaten. Het Hof blijft de internationale bevoegdheid van de EU breed interpreteren in overeenstemming met de tekst van de vaste lijst van internationale taken. Daardoor worden de pogingen van de lidstaten om de controle erover terug te winnen teniet gedaan.  

 

HET PRINCIPE VAN LOYALE SAMENWERKING

Een andere belangrijke factor in deze context is de verplichting voor de EU-lidstaten om ‘loyaal samen te werken’ met de EU. Dit impliceert dat van de lidstaten verwacht wordt dat ze enerzijds de EU helpen bij het uitvoeren van haar internationale taken en anderzijds niets doen wat deze taken in de weg kan staan. Dit principe blijkt via de rechtspraak van het Hof van Justitie van de EU eerder verregaande gevolgen te krijgen. Indien lidstaten en EU volgens de vaste lijst van internationale taken voor de EU samen moeten optreden om een bepaalde taak uit te voeren, kan de verplichting om loyaal samen te werken ertoe leiden dat een lidstaat internationaal haar stem niet meer kan laten horen. Zweden kon bijvoorbeeld een bepaalde schadelijke stof niet laten toevoegen aan de zwarte lijst bij het Verdrag van Stockholm, dat gericht is op het tegengaan van de klimaatopwarming, omdat de EU nog aan het beslissen was of ze die stof wel toegevoegd wou zien.

 

OP NAAR EEN VERENIGING VAN BELANGEN?

Dit getouwtrek tussen de EU-lidstaten en de instellingen van de EU zelf is niet bevorderlijk voor de efficiëntie van het gezamenlijk buitenlands beleid. Er mag echter vanuit gegaan worden dat een goede internationale reputatie voor de EU en haar lidstaten in ieders belang is. Bovendien mag men niet vergeten dat de EU juist is opgericht door de lidstaten om meer invloed te kunnen uitoefenen op het internationale toneel. Er kan daarom besloten worden dat het belangrijk is om pragmatische oplossingen te zoeken voor deze conflicten en sages zoals te ‘CETA-sage’ in de toekomst te vermijden.

 

Bibliografie

BIBLIOGRAPHY

  1. Legislation (in chronological order)
  1. European legislation

Consolidated version of the Treaty on European Union, OJ C 326, 26 October 2012, p. 13.

 

Consolidated version of the Treaty on the Functioning of the European Union, OJ C 326, 26 October 2012, p. 47.

 

Directive 2001/29/EC of the European Parliament and of the Council of 22 May 2001 on the harmonisation of certain aspects of copyright and related rights in the information society, OJ L 167, 22 June 2001, p. 10.

 

  1. International legislation

Multilateral Vienna Convention on the law of treaties, concluded at Vienna on 23 May 1969, No. 18232.

 

Trade-Related Aspects of Intellectual Property Rights (TRIPs), Annex 1C of the Marrakesh Agreement Establishing the World Trade Organisation, concluded at Marrakesh on 15 April 1994.

 

  1. Case-law (in chronological order)
  1. Case-law of the Court of Justice
  1. Judgments and Opinions

 

Judgment of 15 July 1964, Costa v E.N.E.L., 6/64, EU:C:1964:66.

 

Judgment of 31 March 1971, Commission v Council (ERTA), 22/70, EU:C:1971:32.

 

Opinion of 11 November 1975, OECD Understanding on a Local Cost Standard, 1/75, EU:C:1975:145.

 

Ruling of 14 November 1978, Draft Convention of the International Atomic Energy Agency on the Physical Protection of Nuclear Materials, Facilities and Transports, 1/78, EU:C:1978:202.

 

Judgment of 29 October 1980, Roquette Frères v Council, 138/79, EU:C:1980:249.

 

Judgment of 26 March 1987, Commission v Council, 45/86, EU:C:1987:163.

 

Judgment of 11 June 1991, Commission v Council (Titanium Dioxide), C-300/89, EU:C:1991:244.

 

Opinion of 19 March 1993, Convention Nº 170 of the International Labour Organization concerning safety in the use of chemicals at work, 2/91, EU:C:1993:106.

 

Opinion of 15 November 1994, Competence of the Community to conclude international agreements concerning services and the protection of intellectual property, 1/94, EU:C:1994:384.

 

Judgment of 19 March 1996, Commission v Council (FAO fisheries agreement case), C-25/94, EU:C:1996:114.

 

Judgment of 3 December 1996, Portugal v Council, C‑268/94, EU:C:1996:461.

 

Judgment of 23 February 1999, Parliament v Council, C-42/97, EU:C:1999:81.

 

Judgment of 4 April 2000, Commission v Council (Beef Products Regulation), C-269/97, EU:C:2000:183.

 

Judgment of 14 December 2000, Christian Dior, Joined Cases C-300/98 and C-392/98, EU:C:2000:688.

 

Judgment of 30 January 2001, Spain v Council, C-36/98, EU:C:2001:64.

 

Opinion of 6 December 2001, Cartagena Protocol, 2/00, EU:C:2001:664.

 

Judgment of 23 March 2004, France v Commission, C-233/02, EU:C:2004:173.

 

Judgment of 29 April 2004, Commission v Council, C-338/01, EU:C:2004:253.

 

Judgment of 2 June 2005, Commission v Luxembourg, C-266/03, EU:C:2005:341.

 

Judgment of 14 July 2005, Commission v Germany, C-433/03, EU:C:2005:462.

 

Judgment of 10 January 2006, Commission v Council, C-94/03, EU:C:2006:2.

 

Judgment of 10 January 2006, Commission v Parliament and Council, C-178/03, EU:C:2006:4.

 

Opinion of 7 February 2006, Competence of the Community to conclude the new Lugano Convention on jurisdiction and the recognition and enforcement of judgments in civil and commercial matters, 1/03, EU:C:2006:81.

 

Judgment of 30 May 2006, Commission v Ireland (MOX Plant), C-459/03, EU:C:2006:345.

 

Judgment of 12 September 2006, Reynolds Tobacco and Others v Commission, C-131/03 P, EU:C:2006:541.

 

Judgment of 20 May 2008, Commission v Council (ECOWAS), C‑91/05, EU:C:2008:288.

 

Judgment of 12 February 2009, Commission v Greece, C-45/07, EU:C:2009:81.

 

Judgment of 1 October 2009, Commission v Council (CITES), C‑370/07, EU:C:2009:590.

 

Opinion of 30 November 2009, Agreements modifying the Schedules of Specific Commitments under the GATS, 1/08, EU:C:2009:739.

 

Judgment of 10 April 2010, Commission v Sweden (PFOS), C‑246/07, EU:C:2010:203.

 

Judgment of 8 March 2011, Lesoochranárske zoskupenie VLK (VLK), C‑240/09, EU:C:2011:125.

 

Judgment of 19 July 2012, Parliament v Council (Financial Sanctions), C-130/10, EU:C:2012:472.

 

Judgment of 18 July 2013, Daiichi Sankyo, C‑414/11, EU:C:2013:520.

 

Judgment of 26 September 2013, United Kingdom v Council (EEA Agreement), C‑431/11, EU:C:2013:589.

 

Judgment of 22 October 2013, Commission v Council (Conditional Access Services), C‑137/12, EU:C:2013:675.

 

Judgment of 27 February 2014, United Kingdom v Council (Swiss Agreement), C‑656/11, EU:C:2014:97.

 

Judgment of 11 June 2014, Commission v Council (Philippines Agreement), C‑377/12, EU:C:2014:1903.

 

Judgment of 24 June 2014, Parliament v Council (Mauritius Agreement), C‑658/11, EU:C:2014:2025.

 

Judgment of 4 September 2014, Commission v Council (Broadcasting Organisations), C-114/12, EU:C:2014:2151.

 

Judgment of 7 October 2014, Germany v Council (OIV recommendations), C-399/12, EU:C:2014:2258.

 

Opinion of 14 October 2014, Convention on the civil aspects of international child abduction, 1/13, EU:C:2014:2303.

 

Judgment of 26 November 2014, Parliament and Commission v Council, Joined Cases C-103/12 and C-165/12, EU:C:2014:2400.

 

Judgment of 26 November 2014, Green Network SpA, C-66/13, EU:C:2014:2399.

 

Opinion of 18 December 2014, Accession of the European Union to the European Convention for the Protection of Human Rights and Fundamental Freedoms, 2/13, EU:C:2014:2454.

 

Judgment of 18 December 2014, United Kingdom v Council (Turkey Agreement), C‑81/13, EU:C:2014:2449.

 

Judgment of 28 April 2015, Commission v Council (Mixed International Agreements), C-28/12, EU:C:2015:282.

 

Judgment of 16 July 2015, Commission v Council (Negotiating Directives), C-425/13, EU:C:2015:483.

 

Judgment of 6 October 2015, Council v Commission (ITLOS), C-73/14, EU:C:2015:663.

 

Judgment of 15 October 2015, Grupo Itevelesa and Others, C-168/14, EU:C:2015:685.

 

Judgment of 14 June 2016, Parliament v Council (Tanzania Agreement), C‑263/14, EU:C:2016:435.

 

Judgment of 14 June 2016, Commission v McBride and Others, C-361/14 P, EU:C:2016:434.

 

Judgment of 28 July 2016, Council v Commission, C‑660/13, EU:C:2016:616.

 

Judgment of 21 December 2016, Swiss International Air Lines, C-272/15, EU:C:2016:993.

 

Opinion of 14 February 2017, Marrakesh Treaty, 3/15, EU:C:2017:114.

 

Opinion of 16 May 2017, EU-Singapore Free Trade Agreement, 2/15, EU:C:2017:376.

 

Opinion of 26 July 2017, EU-Canada PNR Agreement, 1/15, EU:C:2017:592.

 

Judgment of 25 October 2017, Commission v Council (Lisbon Appellations), C‑389/15, EU:C:2017:798.

 

Judgment of 25 October 2017, Commission v Council (WRC-15), C-687/15, EU:C:2017:803.

 

Judgment of 5 December 2017, Germany v Council (OTIF), C-600/14, EU:C:2017:935.

 

  1. Pending

 

Action brought on 23 November 2015, Commission v Council, C-626/15.

 

Action brought on 20 December 2016, Commission v Council, C-659/16.

 

  1. Opinions of Advocate Generals

 

Opinion of Advocate General Cruz Villalón delivered on 31 January 2013, Daiichi Sankyo, C‑414/11, EU:C:2013:49.

 

Opinion of Advocate General Bot delivered on 30 January 2014, Parliament v Council (Mauritius Agreement), C‑658/11, EU:C:2014:41.

 

Opinion of Advocate General Sharpston delivered on 3 April 2014, Commission v Council (Broadcasting Organisations), C-114/12, EU:C:2014:224.

 

Opinion of Advocate General Kokott delivered on 17 July 2014, United Kingdom v Council (Turkey Agreement), C‑81/13, EU:C:2014:2114.

 

Opinion of Advocate General Wahl delivered on 8 September 2016, Marrakesh Treaty, 3/15, EU:C:2016:657.

 

Opinion of Advocate General Sharpston delivered on 21 December 2016, EU-Singapore Free Trade Agreement, Opinion 2/15, EU:C:2016:992.

 

  1. National jurisprudence

Kloppenburg-Beschluß, BVerfGE 75, 223, http://www.servat.unibe.ch/dfr/bv075223.html.

Maastricht, BVerfGE 89, 155, http://www.servat.unibe.ch/dfr/bv089155.html.

Lissabon, BVerfGE 123, 267, http://www.servat.unibe.ch/dfr/bv123267.html.

 

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  • Van Elsuwege Peter and Jan Orbie, ‘The EU’s Humanitarian Aid Policy after Lisbon: Implications of a New Treaty Basis’ in Inge Govaere and Sara Poli (eds), EU Management of Global Emergencies Legal Framework for Combating Threats and Crises (Koninklijke Brill, Leiden 2014).
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  • Van Elsuwege Peter, ‘Securing the Institutional Balance in the Procedure for Concluding International Agreements: European Parliament v. Council (Pirate Transfer Agreement with Mauritius)’ (2015) 52 Common Market Law Review 1379.
  • Van Elsuwege Peter, ‘Legal Creativity in EU External Relations: The Stabilization and Association Agreement between the EU and Kosovo’ (2017) 22 European Foreign Affairs Review 393.
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  • Verellen Thomas, ‘Opinion 3/15 on the Marrakesh Treaty: The ECJ Reaffirms ‘Minimum Harmonisation’ Exception to ERTA Principle. Note under Opinion 3/15 (‘Marrakesh Treaty’)’ (2017) 42 Revista General de Derecho Europeo 160.
  • Von Bogdandy Armin and Jürgen Bast, ‘The Federal Order of Competences’ in Armin von Bogdandy and Jürgen Bast (eds), Principles of European Constitutional Law (Hart Publishing/CH Beck, Oxford 2010).
  • Zwingmann Beke, ‘The Continuing Myth of Euro-Scepticism? The German Federal Constitutional Court Two Years After Lisbon’ (2012) 61 International and Comparative Law Quarterly 665.

 

  1. Others (in alphabetical order)

 

 

 

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Universiteit of Hogeschool
Universiteit Gent
Master in de Rechten
Publicatiejaar
2018
Promotor(en)
Professor Dr. Inge Govaere
Kernwoorden
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