Abstract
As from the Treaty of Amsterdam and the so-called communitarization of private international law (PIL), the European legislator has been very prolific in the area of civil judicial cooperation and considerably reduced the scope of national legislations, in some cases replacing it altogether, toward a gradual unification of PIL at the European level. However, the still predominant Euro-centric character of European PIL is difficult to reconcile with the requirements and objectives of the European Union (EU) civil judicial cooperation and limits excessively the scope of European PIL. Against this background, this chapter investigates the state of EU external action in the area of PIL and the possible approaches to extend the scope of European PIL towards a complete system applicable erga omnes. The relationship between European PIL and the outer world will be tackled by considering pros and cons of two different approaches: multilateralism and unilateralism. The conclusion in favour of unilateralism is eventually put to the test in the Brexit scenario and the future of UK/EU27 civil judicial cooperation.
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- 1.
Alighieri (1472) XXVI, 108–109: ‘dov’Ercule segnò li suoi riguardi, acciò che l’uom più oltre non si metta’.
- 2.
- 3.
European Council, ‘Hague Pogramme: Strengthening Freedom, Security and Justice in the European Union’ [2005] OJ C53/14, referring to the ‘the Union’s special relations with third countries, groups of countries and regions’.
- 4.
The EU Convention on Insolvency Proceedings of 23 November 1995, 35 ILM 1223 (1996), which became Council Regulation (EC) No. 1346/2000 of 29 May on insolvency proceedings [2000] OJ L160/1; the Convention on Jurisdiction and the Recognition and Enforcement of Judgments in Matrimonial Matters of 28 May 1998 [1998] OJ C221/2, which became Council Regulation (EC) No. 1347/2000 of 29 May 2000 on jurisdiction and the recognition and enforcement of judgments in matrimonial matters and in matters of parental responsibility for children of both spouses [2000] OJ L160/19; and Convention on the service in the Member States of the European Union of judicial and extrajudicial documents in civil or commercial matters of 26 May 1997 [1997] OJ C261/2, which became Council Regulation (EC) No. 1348/2000 of 29 May 2000 on the service in the Member States of judicial and extrajudicial documents in civil or commercial matters [2000] OJ L160/37.
- 5.
Bonomi (2009).
- 6.
On this requirement, see Hess (2016b), stressing that a general policy definition of cross-border implications has never been formulated by the European institutions and that each legislative act has been devised separately. For a recent analysis of when and how such cross-border implications can be assumed, see Magnus (2018). See also Lopes Pegna (2018) with regard to the PIL instruments adopted for the harmonization of civil procedures.
- 7.
The issue has been intensively debated during the preparatory works of the Rome II Regulation on the law applicable to non-contractual obligations: see Malatesta (2006).
- 8.
- 9.
Case C-281/02 Owusu v Jackson [2005] ECLI:EU:C:2005:120.
- 10.
Opinion No 1/03 [2006] ECLI:EU:C:2006:81, para 144, on which see Pocar (2007). The same reasoning has been adopted by the CJEU also with regard to the Council regulation (EC) No 1346/2000 of 29 May 2000 on insolvency proceedings in Case C-328/12 Schmid v Hertel [2014] ECLI:EU:C:2014:6.
- 11.
The current text provides that measures may be adopted ‘particularly when necessary for the proper functioning of the internal market ’. See Clerici (2014).
- 12.
The link to the internal market, however, did not disappear altogether: Fallon and Kruger (2012/2013), p. 5.
- 13.
In agreement Domej (2016), pp. 90–91.
- 14.
See, respectively, art 20 of Regulation (EU) 2016/1103 of 24 June 2016 implementing enhanced cooperation in the area of jurisdiction, applicable law and the recognition and enforcement of decisions in matters of matrimonial property regimes [2016] OJ L183/1; and art 20 of Regulation (EU) 2016/1104 of 24 June 2016 implementing enhanced cooperation in the area of jurisdiction, applicable law and the recognition and enforcement of decisions in matters of the property consequences of registered partnerships [2016] OJ L183/30. See also art 2 of Council Regulation (EC) No 4/2009 of 18 December 2008 on jurisdiction, applicable law, recognition and enforcement of decisions and cooperation in matters relating to maintenance obligations [2009] OJ L7/1; art 4 of Council Regulation (EU) No 1259/2010 of 20 December 2010 implementing enhanced cooperation in the area of the law applicable to divorce and legal separation [2010] OJ L343/10; art 20 of Regulation (EU) No 650/2012 of 4 July 2012 on jurisdiction, applicable law, recognition and enforcement of decisions and acceptance and enforcement of authentic instruments in matters of succession and on the creation of a European Certificate of Succession [2012] OJ L201/107.
- 15.
Very interestingly, Francq (2016), pp. 71–72, observes that ‘there is a sharp contrast between the way in which external relations are dealt with in these two regulations, on the one hand, and in other instances of EU law, on the other hand’.
- 16.
- 17.
Art 4 of Regulation (EU) No 1215/2012 of 12 December 2012 on jurisdiction and the recognition and enforcement of judgments in civil and commercial matters [2012] OJ L351/1. For a critical appraisal of this criterion, see Pfeiffer (2007), paras 115–165; Pataut (2003). On the Commission’s proposal of extension of the scope of the regulation to third-country defendants, see Luzzatto (2012).
- 18.
As per the Lugano Opinion, the uniform system of jurisdiction rules has a ‘uniform and coherent nature’, so that current Article 6 ‘forms part of the system implemented by that regulation, since it resolves the situation envisaged by reference to the legislation of the Member State before whose court the matter is brought’. Such reference is deemed to have adverse consequences on access to justice and on the functioning of the internal market by Pocar (2008a).
- 19.
Often complained of being discriminatory towards individuals domiciled in third countries: see Juenger (1983).
- 20.
- 21.
Council Regulation (EC) No 2201/2003 of 27 November 2003 concerning jurisdiction and the recognition and enforcement of judgments in matrimonial matters and the matters of parental responsibility [2003] OJ L338/1. This regulation is currently undergoing a recasting process following the Commission’s proposal COM (2016) 411 def released in June 2016. However, contrary to some proposals—e.g. Kruger and Samyn (2016)—the spatial scope of application of the regulation is not under review.
- 22.
Case C-68/07 Sundelind Lopez v Lopez Lizazo [2007] ECLI:EU:C:2007:740, para 18.
- 23.
Bonomi (2011).
- 24.
Regulation No 650/2012 (n 14).
- 25.
On the application of the regulation to successions with links to third States, see Marongiu Buonaiuti (2016), Majer (2011), and Hellner (2010). The residual applicability of national PIL rules is limited to two situations: (1) when the case falls outside the material scope of the regulation; and (2) when the regulation expressly refers to national laws (e.g. art 33 concerning the estate without a claimant). In this sense, Fumagalli (2015).
- 26.
For a critical appraisal of these rules, see Leandro (2013), Davì and Zanobetti (2014), and Feraci (2013). Similar provisions may also be found in Articles 10 and 11 of Regulation 2016/1103 (n 14) and Regulation 2016/1104 (n 14) concerning, respectively, matrimonial property regimes and property consequences of registered partnerships.
- 27.
- 28.
- 29.
For example, Italian courts seised as second have to verify that the judgment is recognisable in Italy pursuant to Article 64 of Italian PIL Statute (Law No 218/1995).
- 30.
See notably Vitellino (2008) for family matters.
- 31.
Marongiu Buonaiuti (2016), pp. 556–562.
- 32.
- 33.
- 34.
Case C-514/10 Wolf Naturprodukte v SEWAR spol. [2012] ECLI:EU:C:2012:367, para 25.
- 35.
Recital 27 of Regulation No 1215/2012 (n 17).
- 36.
- 37.
Virgos and Garcimartín (2004), p. 53.
- 38.
This point is stressed by Franzina (2006), pp. 962–963.
- 39.
- 40.
- 41.
- 42.
Opinion No 1/13 [2014] ECLI:EU:C:2014:2303. For a critical appraisal of the Court’s reasoning, see Beaumont (2017a).
- 43.
Franzina (2017), pp. 187–189.
- 44.
Mills (2016), p. 450.
- 45.
- 46.
European Parliament, ‘Resolution of 23 November 2010 on civil law, commercial law, family law and private international law aspects of the Action Plan Implementing the Stockholm Programme’, 2010/2080(INI), para 35; and Commission, ‘Report from the Commission to the European Parliament, the Council and the European Economic and Social Committee on the application of Council Regulation (EC) No 1346/2000 of 29 May 2000 on insolvency proceedings’ COM (2012) 743 final, 18.
- 47.
Mills (2016), p. 454.
- 48.
Within the EU, a major example of how difficult it may be to use the tool of an international convention is represented by the Rome Convention of 18 June 1980 on the law applicable to contractual obligations, which took more than ten years to come into force. See Pocar (2008b), p. 6.
- 49.
Franzina (2017), p. 190, stresses that, within the Hague Conference, only few conventions were ratified or accessed to by a significant number of States: of the 38 concluded in total, only nine reached the minimum number of ratification and ten entered into force for less than 15 States. “Cemetery of nascituri” is the expression used by Alfonso-Luis Calvo Caravaca and cited by Thomale (2017), p. 144.
- 50.
The last version of the project (May 2018) is available at www.hcch.net/en/projects/legislative-projects/judgments/special-commission accessed 24 September 2018. A revised Draft Explanatory Report prepared by Francisco Garcimartín and Geneviève Saumier was released in December 2018. For references on the historical evolution since the first draft delivered in 1992, see Beaumont (2014).
- 51.
For a very recent assessment of the ongoing work of the Hague Conference on the Judgments Convention, including its limits and possible drawbacks, see de Miguel Asensio et al. (2018).
- 52.
- 53.
Pretelli et al. (2014), p. 43.
- 54.
- 55.
Mills (2016), pp. 567–568.
- 56.
This would entail, for instance, that the criterion of place of performance of contractual obligation adopted by Article 7(1) of Regulation No 1215/2012, if located in a Member State, would also apply in the case where both parties are domiciled outside the EU.
- 57.
Article 3(2) of Italian PIL Statute (Law No 218/1995).
- 58.
Nuyts (2007), para 18.
- 59.
For a critical appraisal of exorbitant fora, see Fernandez Arroyo (2014).
- 60.
Bonomi (2017), pp. 186–188; Pretelli et al. (2014), pp. 40–42. This approach, already followed in maintenance and succession matters, could be extended also to other areas: for instance, with regard to Regulation 2015/848 (n 39), see Nisi (2017). A similar outcome is also welcomed by Miglio (2018), p. 686, who uses as reference the jurisdictional rules applicable to the Unified Patent Court.
- 61.
See, e.g., Article 45(1)(d) of Regulation No 1215/2012 (n 17) or Article 40(d) of the Succession Regulation (n 14).
- 62.
In this sense, Bonomi (2017), pp. 190–191; Carbone (2012), pp. 301–302; Weber (2011), p. 643. See also Commission, ‘Green Paper on the review of Council Regulation (EC) No 44/2001 on jurisdiction and the recognition and enforcement of judgments in civil and commercial matters’ COM(2009) 175 final, 4. In the realm of insolvency, see the proposal presented by INSOL Europe (2012), p. 110: ‘a unified approach to insolvency proceedings opened outside the European Union will enhance the proper functioning of the internal market ’.
- 63.
On 28 February 2018, the European Commission published the draft Withdrawal Agreement between the EU and the UK (Draft Withdrawal Agreement), based on the Joint Report from the negotiators of the two parties on the progress achieved during the first phase of negotiations. The latest version of the agreement has been released on 14 November 2018 and is available at https://ec.europa.eu/commission/sites/beta-political/files/draft_withdrawal_agreement_0.pdf. Accessed 5 April 2019.
- 64.
On the special status of UK, see Sonnentag (2017), pp. 19–25.
- 65.
HM Government, ‘Review of the Balance of Competences between the United Kingdom and the European Union: Civil Judicial Cooperation’ https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/279228/civil-judicial-cooperation-report-review-of-balance-of-competences.pdf accessed 24 September 2018, para 1.17.
- 66.
Recital 82 of the Succession Regulation (n 14). See Crawford and Carruthers (2014).
- 67.
Recital 50 of Regulation (EU) No 655/2014 of the European Parliament and of the Council of 15 May 2014 establishing a European Account Preservation Order procedure to facilitate cross-border debt recovery in civil and commercial matters [2014] OJ L189/59. For the reasons behind the UK’s opt-out, see Kyriakides (2014).
- 68.
- 69.
Regulation No 1259/2010 (n 14); Regulation No 2016/1103 (n 14); and Regulation No 2016/1104 (n 14). As mentioned supra (Sect. 3), these instruments provide for universal conflict of law rules, so that the courts of a participating Member State apply them also when they designate UK law. In contrast, there is no guarantee that UK courts will apply similar standards to situations with a close connection with the territory of a participating Member State.
- 70.
Regulation No 4/2009 (n 14).
- 71.
On the two-track mechanism of the regulation, see notably Pesce (2013), ch 4.
- 72.
In this sense, Franzina (2011), p. 128.
- 73.
On the difficulties that such an option would raise, see Graver (2016).
- 74.
Vahl and Grolimund (2006). In fact, the UK has entered into a post-Brexit trade agreement with Switzerland on 11 February 2019 in order to preserve trade relations between the two countries even in case the UK leaves the EU without a withdrawal agreement.
- 75.
Department for Exiting the European Union, ‘UK government’s preparation for a no deal scenario’ www.gov.uk/government/publications/uk-governments-preparations-for-a-no-deal-scenario/uk-governments-preparations-for-a-no-deal-scenario accessed 24 September 2018.
- 76.
From the UK’s side, see in particular the Civil Jurisdiction and Judgments (Amendment) (EU Exit) Regulations 2019 and the Law Applicable to Contractual Obligations and Non-Contractual Obligations (Amendment etc) (EU Exit) Regulations 2019, with a brief comment by Dickinson (2019). In view of such outcome, with no surprise, on 28 December 2018 the UK signed and ratified the 2005 Hague Convention on Choice of Court Agreements and the 2007 Hague Convention on the International Recovery of Child Support and other Forms of Family Maintenance (in both cases, contingent upon the withdrawal agreement not be signed). From the EU’s side, see the European Commission, ‘Notice to stakeholders. Withdrawal of the United Kingdom and EU rules in the field of civil justice and private international law’. https://ec.europa.eu/info/sites/info/files/notice_to_stakeholders_brexit_civil_justice_rev1_final.pdf. Accessed 5 April 2019.
- 77.
- 78.
House of Lords, EU Committee, ‘Brexit: justice for families, individuals and businesses?’ (17th Report of Session 2016–2017) https://publications.parliament.uk/pa/ld201617/ldselect/ldeucom/134/134.pdf accessed 24 September 2018 (House of Lords, ‘Brexit: justice for families, individuals and businesses?’) paras 23, 37–38; House of Commons, Justice Committee, ‘Implications of Brexit for the justice system’ (9th Report of Session 2016–2017), https://publications.parliament.uk/pa/cm201617/cmselect/cmjust/750/750.pdf accessed 24 September 2018 (House of Commons, ‘Implications of Brexit for the justice system’), paras 19–32. An EU-UK arrangement of this kind, may take different forms: see Dickinson (2017), p. 542.
- 79.
HM Government, ‘Providing a cross-border civil judicial cooperation framework. A future partnership paper’, https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/639271/Providing_a_cross-border_civil_judicial_cooperation_framework.pdf accessed 24 September 2018 (HM Government, ‘Providing a cross-border civil judicial cooperation framework. A future partnership paper’) para 22. This solution, for instance, is envisaged in Association Agreement (EU-Georgia) (adopted 17 June 2014, entered into force 1 July 2016) OJ L261/4, art 21 and Association Agreement (EU-Moldova) (adopted 27 June 2014, entered into force 1 July 2016) OJ L260/4, art 20, where the parties manifested a declaration of intent to accede to the core Hague instruments on judicial cooperation.
- 80.
The consequences in the different areas of civil justice are summarily illustrated by European Commission, ‘Notice to stakeholders’ (n 76).
- 81.
In general, on the transitional problems arising out of Brexit, see the in-depth analysis by Fitchen (2017).
- 82.
On the other side, the UK would come back to the default application of common law rules, thus reawakening procedural mechanisms dismantled by the CJEU (i.e. anti-suit injunctions and forum non conveniens). On the problems raised by the prospect of returning to common law rules, see House of Lords, ‘Brexit: justice for families, individuals and businesses?’ (n 78), paras 39–55, 84–93, 114–115.
- 83.
The formal title of this measure is European Union (Withdrawal) Bill and has been introduced to the House of Commons on 13th July 2017. Following agreement by both Houses on the text of the Bill, it received Royal Assent on 26 June 2018 and is now an Act of Parliament.
- 84.
In this regard, the revival of old instruments such as the 1968 Brussels Convention, albeit considered in the literature, seems politically very unlikely and not credible: see the authors cited supra in footnote 77. Arguments have been made in favour and against the revival of old instruments, based on different interpretations of the 1969 Vienna Convention on the Law of Treaties.
- 85.
House of Lords, ‘Brexit: justice for families, individuals and businesses?’ (n 78), paras 56–58 (reporting the opinions of Richard Fentiman and Adrian Briggs) and paras 60, 94–98. In this sense, among many, Ungerer (2019), pp. 7–8 and 12; Crawford and Carruthers (2018), pp. 195–196; Fitchen (2017), p. 417.
- 86.
This is the so-called ‘Danish model’, on which see Nielsen (2016).
- 87.
An amendment of the Lugano Convention to bring it into line with Regulation No 1215/2012 is not on the agenda. However, according to a shared opinion, the Lugano Convention does not represent an appropriate instrument to bridge judicial cooperation between the EU and the UK: see Hess (2018) and Thomale (2017), pp. 141–145.
- 88.
In general terms, concerning bilateral PIL harmonisation, Mills (2016), pp. 557–561.
- 89.
HM Government, ‘Providing a cross-border civil judicial cooperation framework. A future partnership paper’, para 19. More recently, see also HM Government, ‘The future relationship between the United Kingdom and the European Union’ https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/725288/The_future_relationship_between_the_United_Kingdom_and_the_European_Union.pdf accessed 24 September 2018, para 148.
- 90.
Doubts are raised by Dickinson (2017), pp. 555–566, as to whether the conditions for continued close cooperation on a Brussels I model will exist in absence of the single market integration. Indeed, the spirit and purpose of the individual regulations could be distorted if considered outside the context of the progressive establishment of a genuine European judicial area.
- 91.
HM Government, ‘The United Kingdom’s exit from and new partnership with the European Union’ https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/589191/The_United_Kingdoms_exit_from_and_partnership_with_the_EU_Web.pdf accessed 24 September 2018, para 2.3.
- 92.
House of Commons, ‘Implications of Brexit for the justice system’ (n 78), para 35: ‘a role for the CJEU in respect of procedural legislation […] is a price worth paying to maintain the effective cross-border tools of justice’.
- 93.
House of Lords, ‘Brexit: justice for families, individuals and businesses?’ (n 78), para 4, defines it as ‘a workable but inferior solution’. This is also the recommendation of the Bar Council Brexit Working Group, ‘Civil Jurisdiction and Judgments. Paper 4’ https://www.barcouncil.org.uk/media/575175/brexit_paper_4_-_civil_jurisidiction_and_judgements.pdf accessed 24 September 2018, 7. See also Crawford and Carruthers (2018), pp. 198–199.
- 94.
House of Commons, ‘Implications of Brexit for the justice system’ (n 78), para 127.
- 95.
The same formula is used by s. 2(1) of the UK Human Rights Act 1998, where it raised serious doubts as to its correct meaning. According to Lord Slynn’s statement in R (on the application of Alconbury Developments Ltd) v Secretary of State for the Environment, Transport and the Regions [2003] 2 AC 295, in the absence of some special circumstances, the court should follow any clear and constant jurisprudence of the European Court of Human Rights (ECtHR) . According to a more nuanced interpretation, there is space for UK courts to decline following Strasbourg only in certain narrowly-defined circumstances, e.g. when a ECtHR’s decision is inconsistent with some fundamental feature of UK domestic law (Pinnock v Manchester City Council [2010] 3 WLR 1441). For a critical reading of these views, see Lord Irvine of Lairg (2011), who suggest a broad interpretation: ‘Section 2 of the HRA means that it is our Judges’ duty to decide the cases for themselves and explain clearly to the litigants, Parliament and the wider public why they are doing so’.
- 96.
Briggs (2017): ‘[w]hile the demise without replacement of the Brussels I and Lugano II would be a measurable loss, it will not be the United Kingdom which suffers it: its impact will be felt by enterprises established in the other Member States, much more than it will be felt in England’.
- 97.
Danov (2018), pp. 165–166.
- 98.
- 99.
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Further Reading
Bonomi, A. (2017). European private international law and third states. Praxis des Internationalen Privat- und Verfahrensrechts, 37, 184–193.
Domej, T. (2016). Das Verhältnis nach »außen«: Europäische v. Drittstaatensachverhalt. In J. von Hein & G. Rühl (Eds.), Kohärenz im internationalen Privat- und Verfahrensrecht der Europäischen Union (pp. 90–109). Tübingen, Germany: Mohr Siebeck.
Mills, A. (2016). Private international law and EU external relations: think local act global, or think global act local. International and Comparative Law Quarterly, 65, 541–579.
Pataut, E. (2008). International jurisdiction and third states: A view from the EC in family matters. In A. Malatesta, S. Bariatti, & F. Pocar (Eds.), The external dimension of EC private international law in family and succession matters (pp. 123–148). Padua, Italy: Cedam.
Rühl, R. (2018). Judicial cooperation in civil and commercial matters after Brexit: Which way forward? International and Comparative Law Quarterly, 67, 99–127.
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Nisi, N. (2019). The Pillars of Heracles of European Private International Law: The Frontiers with Third States and Brexit. In: Natoli, T., Riccardi, A. (eds) Borders, Legal Spaces and Territories in Contemporary International Law. Springer, Cham. https://doi.org/10.1007/978-3-030-20929-2_4
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