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The Universal Declaration of Human Rights and the Place of the Charter in Europe: Common Values

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Abstract

The Charter of Fundamental Rights of the European Union (hereinafter: Charter) lacks a distinct identity as a legal instrument. Almost every detail is known about the process from which it emerged. It is also a matter of common knowledge that it was adopted at a meeting of the European Council in Nice on 7 December 2000, where it was signed and proclaimed by the Presidents of the European Parliament, the Council and the Commission.1 But it cannot easily be classified as a legal act to which secondary rules2 attribute a specific connotation. Since neither of the institutions of the European Union (hereinafter: Union) enjoys a power to amend the treaties on European integration, it does not form part and parcel of the treaty system on which the Union is predicated. On the other hand, it does not constitute an act of secondary law of the European Community since the Community3 has not been empowered to set forth or codify human rights law in genera1.4

Born 1936; Studies of Law, Heidelberg and Montpellier 1955–1959; Professor of constitutional and international law, University of Bonn, 1972–1995; Humboldt University Berlin, since 1995; Member, UN Human Rights Committee, 1977–1986; Member, UN International Law Commission, 1985–1996; Coordinator, Historical Clarification Commission, Guatemala, 1997–1999; President, German Association of International Law, 1993–1997; Associate Member, Institute of International Law, since 1997.

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Zusammenfassung

  1. Official Journal of the European Communities C 364/1, 18 December 2000.

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  2. See H.L.A. Hart, The Concept of Law, 2nd ed., Oxford 1994, p. 94.

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  3. See opinion 2/94, Accession of the Community to the ECHR, (1996) ECR I-1759.

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  4. For the reasons set out by S. Alber, Die Selbstbindung der europäischen Organe an die EU-Charta der Grundrechte, 2001 EuGRZ, pp. 349–353, we do not share the view that the concerted proclamation of the Charter by the Presidents of the three main political institutions of the Communities can be characterized as an interinstitutional agreement, as suggested by F. Benoît-Rohmer, La Charte des droits fondamentaux de l’Union européenne, 2001 Dalloz, pp. 1483–1492, at 1492; E. Bribosia, O. De Schutter, La Charte des droits fondamentaux de l’Union européenne, 2001 Journal des tribunaux, pp. 281–293, at 283 (who follow a suggestion by the Belgian judge M. Wathelet, La Charte des droits fondamentaux: un bon pas dans une course qui reste longue, 36 (2000) Cahiers de droit européen, pp. 585–593, at 591).

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  5. The Universal Declaration has also been recalled in this connection by N.F. Sola, A quelle nécessité juridique répond la négociation d’une Charte des droits fondamentaux de l’Union européenne?, 2000 Revue du Marché commun et de l’Union européenne, pp. 595–600, at 596; J. Smith, EU Charter of Fundamental Rights — A Local Government Perspective, in: K. Feus (ed.), The EU Charter of Fundamental Rights, London 2000, pp. 59–76, at 64, 70; H. Tretter, Die Charta der Grundrechte der Europäischen Union — vergebene Chance oder Hoffnung?, 1/01 (2001) Die Union (Wien), pp. 44–59, at 48.

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  6. Adopted by GA Res. 217 A (III), 10 December 1948; on the issue of the Universal Declaration of Human Rights see, in particular, PJ. Opitz, Entwicklung des intemationalen Menschenrechtsschutzes im 20. Jahrhundert, München 2002, at 63.

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  7. See also I. Pernice, Eine Grundrechte-Charta für die Europäische Union, 2000 DVBI, pp. 847–859, at 853.

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  8. See ultimately Advocate-General Geelhoed, opinion in: Baumbast and ‚R, case C-413/99, 5 July 2001, para. 58; Advocate-General Léger, opinion in Council v. Hautala, case C-353/99 P, 10 July 2001, para. 67; Advocate-General Mischo, opinion in Booker Aquaculture, cases C-20/00 and 64/00, 20 September 2001, para. 102 (but trying to apply the relevant provisions of the ECHR as if they were directly binding). See also the cogent comment by D. Curtin, The EU Human Rights Charter and the Union Legal Order: The ‚Banns ‘before the Marriage?, in: D.O’Keeffe (ed.), Liber Amicorum in Honour of Lord Slynn of Hadley. Judicial Review in European Union Law, The Hague et al. 2000, pp. 303–318, at 311.

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  9. Die Selbstbindung der europäischen Organe an die EU-Charta der Grundrechte, 2001 EuGRZ Loc. cit. (note 5), p. 1484.

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  10. D. Curtin, The EU Human Rights Charter and the Union Legal Order: The ‚Banns ‘before the Marriage?, in: D. O’Keeffe (ed.), Liber Amicorum in Honour of Lord Slynn of Hadley. Judicial Review in European Union Law, The Hague et al. 2000 loc. cit. (note 11), p. 310; J. Schwarze, Der Grundrechtsschutz für Untemehmen in der Europäischen Grundrechtecharta, 2001 EuZW, pp. 517–524, at 522. Criticism of this restrictive approach by J. Cooper, R. Pillay, Through the Looking Glass: Making Visible Rights Real, in: The EU Charter of Fundamental Rights, A Local Government Perspective, in: K. Feus (ed.), The EU Charter of Fundamental Rights, London 2000, pp. 59–76, at 64, 70; H. Tretter, op. cit. (note 6) Die Charta der Grundrechte der Europäischen Union — vergebene Chance oder Hoffnung?, 1/01 (2001) Die Union (Wien), pp. 111–128, at 119.

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  11. See the landmark decisions Stauder, (1969) ECR, p. 419, para. 7; Intemationale Handelsgesellschaft, (1970) ECR, p. 1125, para. 4; Nold, (1974) ECR, p. 491, para. 13. An overview is given, e.g., by P. Oliver, Fundamental Rights in European Union Law after the Treaty of Amsterdam, in: Judicial Review in European Union Law, op. cit. (note 11), pp. 319–342.

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  12. Voices in legal doctrine are in full agreement that the quest for legitimacy was one of the primary motives of the drafting exercise, see, e.g., E. Bribosia, O. De Schutter, La Charte des droits fondamentaux de l’Union européenne, 2001 Journal des tribunaux loc. cit. (note 5), p. 293; G. de Búrca, The drafting of the European Union Charter of fundamental rights, 26 (2001) E.L.Rev., pp. 126–138, at 131. In its Cologne decision on the drawing up of the Charter (note 9) the European Council said explicitly: “Protection of fundamental rights is a founding principle of the Union and an indispensable prerequisite for her legitimacy”.

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  13. Editorial: Does the European Union Truly Need a Charter of Rights, 6 (2000) European Law Journal, pp. 95–97, at 96.

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  14. M. Zuleeg, Zum Verhältnis nationaler und europäischer Grundrechte, 2000 EuGRZ, pp. 511–517, at 512: „Eine Nachbesserung durch eine Charta der Grundrechte in der EU ist daher nicht notwendig“.

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  15. Baroness Scotland, House of Lords, Hansard, 16 June 2000, col. 1906.

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  16. S. Alber, U. Widmaier, Die EU-Charta der Grundrechte und ihre Auswirkungen auf die Rechtsprechung, 2000 EuGRZ, pp. 497–510, at 499: „... als Zeichen dafür, dass die Union über die Wirtschaftsgemeinschaft hinaus auch eine Rechtsgemeinschaft ist, und andererseits zur besseren Akzeptanz Europas durch den Bürger“.

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  17. K. Ritgen, Grundrechtsschutz in der Europäischen Union, 2000 ZRP, pp. 371–375, at 372; M. Kenntner, Die Schrankenbestimmungen der EU-Grundrechtecharta — Grundrechte ohne Schutzwirkung?, 2000 ZRP, pp. 423–425, at 424. Similar concerns are voiced by C. Calliess, Die Charta der Grundrechte der Europäischen Union — Fragen der Konzeption, Kompetenz und Verbindlichkeit, 2001 EuZW, pp. 261–268, at 262; E. Pache, Die Europäische Grundrechtscharta — ein Rückschritt für den Grundrechtsschutz in Europa?, 36 (2001) EuR, pp. 475–494, at 488.

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  18. See E. Bribosia, O. De Schutter, La Charte des droits fondamentaux de l’Union européenne, 2001 Journal des tribunaux loc. cit. (note 5), p. 287; J. Cooper, R. Pillay, loc. cit.(note 11) pp. 114–115; D. Curtin, loc. cit. (note 13) The EU Human Rights Charter and the Union Legal Order: The ‚Banns ‘before the Marriage?, in: D. O’Keeffe (ed.), Liber Amicorum in Honour of Lord Slynn of Hadley. Judicial Review in European Union Law, The Hague et al. 2000, 303 et seq.; T. Eicke, The European Charter of Fundamental Rights — unique opportunity or unwelcome distraction, 2000 European Human Rights Law Review, pp. 280–296, at 287.

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  19. G. de Kerchove, discussion statement, 12 (2000) RUDH, p. 13.

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  20. S. Baer, Grundrechtecharta ante portas, 2000 ZRP, pp. 361–364, at 361; J. Meyer, M. Engels, Aufnahme von sozialen Grundrechten in die Europaische Grundrechtecharta, 2000 ZRP pp. 368–371, at 370.

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  21. G. Häfner, Ch. Strawe, R. Zuegg, In der Auseinandersetzung um eine Charta der Grundrechte der Europäischen Union, 2000 ZRP, pp. 365–368, at 365.

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  22. 37 Entscheidungen des Bundesverfassungsgerichts (BVerfGE), p. 271, 29 May 1974.

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  23. On this issue see, in particular, J. Dutheil de la Rochère, La Charte des droits fondamentaux de l’Union européenne: Quelle valeur ajoutée, quel avenir?, 2000 Revue du Marché commun et de I’Union européenne, pp. 674–680, at 677; P.J. Tettinger, Die Charta der Grundrechte der Europäischen Union, 2001 NJW, pp. 1010–1015, at 1011.

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  24. Skepticism about the strength of the common value basis has been expressed by A. von Bogdandy, Grundrechtsgemeinschaft als Integrationsziel?, 2001 JZ, pp. 157–171, at 167.

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  25. See C. Calliess, Die Charta der Grundrechte der Europäischen Union — Fragen der Konzeption, Kompetenz und Verbindlichkeit, 2001 EuZW, loc. cit. (note 21), p. 263; P.J. Tettinger, loc. cit. (note 27) Die Charta der Grundrechte der Europäischen Union, 2001 NJW, pp. 1012–1013.

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  26. See F. Benoît-Rohmer, La Charte des droits fondamentaux de l’Union européenne, 2001 Dalloz, loc. cit. (note 5), p. 1485.

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  27. An earlier version of Art. 53 where an explicit reference was made to the case-law of the Strasbourg Court in the text of that provision itself was amended in order to “set the record straight”, i.e. to make clear that judges have no mandate to create new law, see in favour of the earlier version M. Fischbach, Le Conseil de l’Europe et la Charte des droits fondamentaux de l’Union européenne, 12 (2000) RUDH, pp. 7–9, at 8; O. De Schutter, Discussion statement, ibid. 12 (2000) RUDH, p. 12; P. Wachsmann, ibid. Les droits civils et politiques, 12 (2000) RUDH, pp. 15–21, at 16–17; support for the eventual drafting decision has been signalled by J.-P. Jacque, ibid. discussion statement, 12 (2000) RUDH, pp. 13–14; G. Braibant, Conclusions, ibid. 12 (2000) RUDH, pp. 66–69, at 68.

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  28. See the learned discussion on this issue by K. Lenaerts, E. de Smijter, A ‘Bill of Rights’ for the European Union, 38 (2001) Common Market Law Review, pp. 273–300, at 282–289.

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  29. See Parliamentary Assembly of the Council of Europe, Res. 1253 (2001), 25 June 2001, on “Abolition of the death penalty in Council of Europe Observer states”.

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  30. Document Charte 4473/00, 11 October 2000.

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  31. See F. Benoît-Rohmer, Die Selbstbindung der europäischen Organe an die EU-Charta der Grundrechte, 2001 EuGRZ, loc. cit. (note 5), p. 1486. This was the solution recommended by I. Pernice, loc. cit. (note 8) Eine Grundrechte-Charta für die Europäische Union, 2000 DVBI, p. 854. It will be recalled that in Society for the Protection of Unborn Children Ireland (1991) ECR 1-4733, paras. 23–27, the ECJ avoided to deal with the issue.

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  32. See, for instance, E. Pache, loc. cit. (note 21), pp. 489–490. The model of a uniform restriction clause has been defended, however, by A. von Bogdandy, loc. cit. (note 28) Grundrechtsgemeinschaft als Integrationsziel?, 2001 JZ, p. 168.

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  33. See the judgment in Internationale Handelsgesellschaft, (1970) ECR, p. 1125, para. 4: “The protection of such rights ... must be ensured within the framework of the structure and objectives of the Community”.

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  34. Constant jurisprudence since the Handyside judgment, 7 December 1976, Ser. A, vol. 24, p. 23, para. 49.

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  35. For an overview of the relevant case law see S. Alber, Die Selbstbindung der europäischen Organe an die EU-Charta der Grundrechte, 2001 EuGRZ, pp. 349–353, loc. cit. (note 5). Within the Court, a tacit agreement seems to exist according to which the decision about the future of the Charter should be left to the responsible political bodies. For that reason, until that time, the case law should not prejudge the issue.

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  36. ETS No. 163.

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  37. As far as its approach to social and economic rights is concerned, Germany is of course not a homogeneous ideological community. Regarding the Charter, for instance, reluctance has been expressed by constitutional judge U. Di Fabio, Eine europäische Charta, 1999 JZ, pp. 737–743, at 740, whereas the necessity of such rights has been emphasized by the former member of the ECJ M. Zuleeg, loc. cit. (note 18) Zum Verhältnis nationaler und europäischer Grundrechte, 2000 EuGRZ, p. 516.

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  38. Lord Goldsmith, Consolidation of Fundamental Rights at EU Level–the British Perspective, in: op. cit. (note 6), pp. 27–38, at 37.

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  39. For the construction of the right to education under the ECHR see the judgment in Certain Aspects of the Laws on the Use of Languages in Education in Belgium, 23 July 1968, Ser. A, vol. 6, pp. 30–35.

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  40. However, many authors find this classification erroneous or even “irritating”, see C. Calliess, Die Charta der Grundrechte der Europäischen Union — Fragen der Konzeption, Kompetenz und Verbindlichkeit, 2001 EuZW, loc. cit. (note 21), p. 264; I. Pernice, loc. cit. (note 8), p. 853; T. Schmitz, Die EU-Grundrechtecharta aus grundrechtsdogmatischer und grundrechtstheoretischer Sicht, 2001 JZ, pp. 833–843, at 840; H. Tretter, loc. cit. (note 6) Die Charta der Grundrechte der Europäischen Union — vergebene Chance oder Hoffnung?, 1/01 (2001) Die Union (Wien), p. 49.

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  41. Rightly observed by P. Eeckhout, The Proposed EU Charter of Fundamental Rights: Some Reflections on Its Effects in the Legal Systems of the EU and of Its Member States, in: op. cit. (note 6), pp. 97–110, at 105.

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  42. Of 5 November 1992, ETS No. 148.

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  43. Of 1 February 1995, ETS No. 157.

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  44. Declaration on the Right of Peoples to Peace, GA Res. 39/11, 12 November 1984.

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  45. For a recent discussion see G. Handl, “Human Rights and Protection of the Environment”, in: A. Eide, C. Krause, A. Rosas (eds.), Economic, Social and Cultural Rights, Dordrecht et al. 2001, pp. 303–328.

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  46. For an outright negative response to this decision see H. Tretter, Die Charta der Grundrechte der Europäischen Union — vergebene Chance oder Hoffnung?, 1/01 (2001) Die Union (Wien), loc. cit. (note 6), p. 49; welcoming it: E. Bribosia, O. De Schutter, loc. cit. (note 5) La Charte des droits fondamentaux de l’Union européenne, 2001 Journal des tribunaux, p. 291.

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  47. C. Calliess, Die Charta der Grundrechte der Europäischen Union — Fragen der Konzeption, Kompetenz und Verbindlichkeit, 2001 EuZW, loc. cit. (note 21), p. 265; C. Coffey, op. cit. (note 6) The EU Charter on Fundamental Rights — The Place of the Environment, in: The EU Charter of Fundamental Rights, London 2000, pp. 129–145, at 144.

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  48. Authors are in agreement that these criteria are difficult to understand, see S. Alber, Die Selbstbindung der europäischen Organe an die EU-Charta der Grundrechte, 2001 EuGRZ, loc. cit. (note 5), p. 349; G. de Búrca, loc. cit. (note 16) The drafting of the European Union Charter of fundamental rights, 26 (2001) E.L.Rev., pp. 136–137; P. Eeckhout, loc. cit. (note 50) The Proposed EU Charter of Fundamental Rights: Some Reflections on Its Effects in the Legal Systems of the EU and of Its Member States, in: The EU Charter of Fundamental Rights, London 2000, pp. 108–110; S. Koukoulis-Spiliotopoulos, De Biarritz à Nice: le projet de Charte des droits fondamentaux est-il bien articulé avec Ie droit de l’Union?, Gazette du Palais, 29 to 31 October 2000, pp. 18–23, at 20–21.

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  49. See the judgments in Wachauf, (1989) ECR, p. 2633, para. 19; M. Sala, (1998) ECR I-2708, paras. 61–63; K. Karlsson, 13 April 2000, (2000) ECR I-2737, paras. 35–38.

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  50. In this regard, E. Pache, loc. cit. (note 21), p. 491, is too naïve.

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  51. Many issues remain open with regard to this prohibition, see T. Schmitz, Die EU-Grundrechtecharta aus grundrechtsdogmatischer und grundrechtstheoretischer Sicht, 2001 JZ, loc. cit. (note 49), p. 842.

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  52. K. Lenaerts, E. de Smijter, loc. cit. (note 32), p. 288.

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  53. S. Alber, U. Widmaier, Die EU-Charta der Grundrechte und ihre Auswirkungen auf die Rechtsprechung, 2000 EuGRZ, loc. cit. (note 20), p. 500, mention additionally the right to free compulsory education (Art. 14 (2)), the right of a child to maintain on a regular basis a personal relationship and direct contact with both parents (Art. 24 (3)), and the right of access to a free placement service (Art. 29).

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  54. This was the approach („kompetenzakzessorisch“) advocated by I. Pernice, Eine Grundrechte-Charta für die Europäische Union, 2000 DVBI, loc. cit. (note 8), p. 852.

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  59. See A. von Bogdandy, Grundrechtsgemeinschaft als Integrationsziel?, 2001 JZ, loc. cit. (note 28), p. 169; H.D. Jarass, „Die Grundrechte: Abwehmechte und objektive Grundsatznormen. Objektive Grundrechtsgehalte, insbes. Schutzpflichten und privatrechtsgestaltende Wirkung“, in: P. Badura, H. Dreier (eds.), Festschrift 50 Jahre Bundesverfassungsgericht, Tübingen 2001, pp. 35–53, at 40 et seq.

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  60. Of 15 January 1958, BVerfGE 7, p. 198.

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  61. A. von Bogdandy, Grundrechtsgemeinschaft als Integrationsziel?, 2001 JZ, loc. cit. (note 28), pp. 162–163, has indeed made the stimulating suggestion that three levels of human rights protection should be distinguished: at the lowest level demands addressed to foreign States within a dimension of foreign policy, at a second level requirements under Art. 6 (1) TEU meant to ensure a sufficient degree of homogeneity within the Union, and on a third — the strictest — level the requirements of full compliance with the law in force within the domestic legal order of the Union.

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  62. W. Dix, Charte des droits fondamentaux et Convention: De nouvelles voies pour reformer l’UE?, 2001 Revue du Marché commun et de l’Union européenne, pp. 305–310, at 306, thinks that the Charter may be considered as an authentic interpretation of the Charter. See also C. Calliess, loc. cit. (note 21) Die Charta der Grundrechte der Europäischen Union — Fragen der Konzeption, Kompetenz und Verbindlichkeit, 2001 EuZW, p. 267; C. Grabenwarter, Die Charta der Grundrechte für die Europäische Union, 2001 DVB1., pp. 1–13, at 11; H.Ch. Krüger, J. Polakiewicz, Vorschläge für ein kohärentes System des Menschenrechtsschutzes in Europa, 2001 EuGRZ, pp. 92–105, at 93; 1. Schwarze, loc. cit. (note 13), p. 517.

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  63. See J. Smith, EU Charter of Fundamental Rights — A Local Government Perspective, in: K. Feus (ed.), The EU Charter of Fundamental Rights, London 2000, loc. cit. (note 6), pp. 71, 74.

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  64. For a devastating assessment, which says more about the author than about the Charter itself, see K.A. Schachtschneider, Eine Charta der Grundrechte für die Europäische Union, 2001 Vierteljahreshefte für Rechts-und Verwaltungspolitik, pp. 16–29.

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  65. J. Schwarze, Der Grundrechtsschutz für Untemehmen in der Europäischen Grundrechtecharta, 2001 EuZW, loc. cit. (note 13), pp. 521–522.

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  66. According to J. Dutheil de la Rochère, La Charte des droits fondamentaux de l’Union européenne: Quelle valeur ajoutée, quel avenir?, 2000 Revue du Marché commun et de I’Union européenne, loc. cit. (note 27), p. 679, in December 2000 only a third of the Member States of the Union were in favour of establishing the Charter as binding law.

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  67. In fact, in legal doctrine almost all authors agree that the Charter must be enacted as truly binding treaty law, see S. Alber, Die Selbstbindung der europäischen Organe an die EU-Charta der Grundrechte, 2001 EuGRZ, loc. cit. (note 5), p. 353; D. Curtin, loc. cit. (note 11) The EU Human Rights Charter and the Union Legal Order: The ‚Banns ‘before the Marriage?, in: D.O’Keeffe (ed.), Liber Amicorum in Honour of Lord Slynn of Hadley. Judicial Review in European Union Law, The Hague et al. 2000, p. 313; A. Duff, Towards a European Federal Society, in: The EU Charter of Fundamental Rights, op. cit. (note 6) London 2000, pp. 13–26, at 20 (advising against “yet another piece of Eurorhetoric”); T. Eicke, loc. cit. (note 22), p. 283; C. Grabenwarter, loc. cit. (note 72) Die Charta der Grundrechte für die Europäische Union, 2001 DVB1., pp. 12–13; E. Pache, loc. cit. (note 21) Die Europäische Grundrechtscharta — ein Rückschritt für den Grundrechtsschutz in Europa?, 36 (2001) EuR, pp. 486–487; T. Schmitz, loc. cit. (note 49), p. 843; H. Tretter, loc. cit. (note 6) Die Charta der Grundrechte der Europäischen Union — vergebene Chance oder Hoffnung?, 1/01 (2001) Die Union (Wien), pp. 57–58; A. Vitorino, La Charte des droits fondamentaux de I’Union européenne, 2001 Revue du Droit de I’Union Européenne, pp. 27–64, at 63; caution is however advocated by R. Knöll, Die Charta der Grundrechte der Europäischen Union, 2001 ZRP, pp. 392–394, at 394. In its resolution of 14 December 2000 on the outcome of the European Council meeting of 7–10 December 2000 in Nice the European Parliament has regretted the fact that the Charter was neither incorporated nor even referred to in the new Treaty (para. 3).

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    Christian Tomuschat

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    Sabine von Schorlemer

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Tomuschat, C. (2003). The Universal Declaration of Human Rights and the Place of the Charter in Europe: Common Values. In: von Schorlemer, S. (eds) Praxishandbuch UNO. Springer, Berlin, Heidelberg. https://doi.org/10.1007/978-3-642-55674-6_17

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