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Interlocking Legal Orders in the European Union and Comparative Law

Published online by Cambridge University Press:  17 January 2008

Extract

Even if an external observer who takes an interest in the case-law of the Court of Justice of the European Communities and of the Court of First Instance of the European Communities may not have such an impression at first sight, comparative law plays a central role in the activities of these courts. It means much more than simply looking at solutions given to certain problems in the legal orders of the Member States. As a former president of the Court of Justice rightly observed, recourse to comparative law is for the Court of Justice essentially a method of interpretation of Community law itself.1 For the Court of Justice and the CFI (below often referred to as ‘Community judge’ or ‘Community courts’), it is one method amongst other methods of interpretation of the law (such as literal, exegetic, historical, systematic interpretation) and it constitutes a tool for establishing the law.2

Type
Research Article
Copyright
Copyright © British Institute of International and Comparative Law 2003

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References

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44 The recent case law of the Bundesverfassungsgericht (German Constitutional Court) shows that the Community legal order, since it draws its inspiration from the constitutional traditions common to the Member States, is considered to confer upon the individual a high level of judicial protection. Thus, by order of 7 June 2000, the Bundesverfassungsgericht dismissed as inadmissible a reference for a preliminary ruling made by the Administrative Court of Frankfurt/Main concerning the compatibility of a Community scheme relating to the imports of bananas with the German Basic Law. At the moment the Administrative court made its referral to the Bundesverfassungsgericht, the Court of Justice had already ruled in its Atlanta judgment of 9 Nov 1995 (Case C-466/93, Atlanta [1995] ECR 1–3799) that the Community scheme in question was valid. The Bundesverfassungsgericht ruled that a reference for a preliminary ruling concerning the constitutionality of an act of secondary Community legislation is inadmissible if the reasons set forth in the referral do not clearly explain why Community law, including the case law of the Court of Justice, no longer affords an acceptable level of protection of fundamental rights.Google Scholar

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46 The case law concerning the direct effect of Community directives illustrates particularly well the importance the Court of Justice attaches to national sensitivities in its quest to find a Community law solution for a novel issue. In this respect, it should be recalled that Art 249 EC (ex-Art 189 of the EC Treaty) makes a distinction between regulations and directives. A regulation is directly applicable in all the Member States. By contrast, a directive is binding, as to the result to be achieved, upon each Member State to which it is addressed, but leaves to the national authorities the choice of form and method. A directive prescribes a time period during which the Member States have to implement its provisions into their national legal orders. In its Van Duyn judgment of 4 Dec 1974 (Case 41/74, van Duyn [1974] ECR 1337) the Court of Justice ruled that provisions of a directive which impose a precise and unconditional obligation on the Member States have direct effect in the national legal orders, just like the provisions of a regulation. This case law was not well received in some legal orders. Thus, in its ‘Cohn-Bendit’ judgment of 22 Dec 1978, the French Conseil d'État ruled that it follows clearly from Art 249 EC (which constitutes an ‘acte clair’) that whatever the degree of precision the provisions of a directive may have, such provisions cannot be relied upon before the national courts against an administrative act of a Member State. Aware of the fact that a too ambitious position with respect to the question of direct effect of Community directives could undermine the credibility of its judgments, the Court of Justice later ‘specified’ its van Duyn case-law. Thus, in its judgment of 5 Apr 1979 in the Ratti case (Case 148/78, Ratti [1979] ECR 1629) the Court of Justice based the direct effect no longer on a broad interpretation of Art 249 EC but on a general principle of law common to the Member States, namely the principle ‘nemo auditur qui suam propriam turpitudinem allegat’ or the ‘estoppel’ principle. On this basis the Court of Justice ruled that a Member State, which has not adopted the implementing measures required by a directive in the prescribed period, may not rely, as against individuals, on its own failure to respect Art 249 EC. In other words, if in litigation opposing an individual and a ‘failing’ Member State, the individual requests the national court not to apply a provision of national law incompatible with the directive, that court must uphold such request if the provision of the directive is unconditional and sufficiently precise. The Court, however, stressed that as long as the period prescribed for the Member States to incorporate the provisions of a directive into their national legal orders has not yet expired, the directive cannot have direct effect. This readjustment of the Court's case-law was confirmed in the Faccini Dori judgment of 14 July 1994 (Case C91/92, Faccini Dore [1994] ECR I-3325). In this case the Court of Justice reiterated that the possibility of relying on directives against State entities is based on the binding character of directives under Art 249 EC. The direct effect thus aims at avoiding that a Member State takes advantage of its own breach of Community law constituted by the fact that it has failed to implement the directive in its national legal order within the time limit stated. However, in contrast to what Advocate-General CO Lenz had proposed in this case, the Court of Justice ruled that, even in such circumstances, directives do not have direct effect as between individuals (horizontal direct effect), such effect being reserved as their distinctive feature to regulations. Without any doubt, the position expressed by many governments against such horizontal direct effect in the course of the proceedings influenced the Court's choice. The Court clearly preferred to play it prudently instead of imposing a solution which would have been more in the interest of Community law but which risked to be unacceptable in the Member States. See also the judgment of the Bundesfinanzhof of 16 July 1981 (Europarecht, 1981, 442–4) which expresses resistance within the German legal order against the direct effect of tax directives.Google Scholar

47 See, in particular, Kakouris, CN, ‘Do the Member States possess judicial procedural “autonomy”?’, Common Market Law Review (1997) 13891412; Lenaerts and Arts, op cit, 3–4;CrossRefGoogle ScholarStrays, M, ‘Le droit communautaire et l' application des régies procédurales nationales’, Journal des tribunaux—Droit européen (2000) 4953.Google Scholar

48 This obligation of sincere cooperation imposed on the national authorities (notably judicial authorities) is, in fact, the counterpart of the ‘federal loyalty’ obligation which the Community authorities have under Art 10 EC vis-à-vis the national legal orders (see order of the Court of Justice of 13 July 1990, in Case C-2/88 Imm, Zwartveld and Others [1990] ECR 13365, paras 16–18).Google Scholar

49 See on this subject Lenaerts and Van Nuffel, op cit, 518.Google Scholar

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53 The Bundesverfassungsgericht confirmed its ‘conditional acceptance’ of the primacy of Community law in its judgment of 12 10 1993 concerning the constitutionality of the Maastricht Treaty (see, for the English version of this judgment, Common Market Law Reports (1994) vol 1, 57108); See also, Lenaerts and Van Nuffel, op cit, 519.Google Scholar

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69 Opinion of Advocate-General G Tesauro in Brasserie du Pêcheur and Factortame, cited in n 22 above, I-1066, para 12.Google Scholar

70 Joined Cases 83 and 94/76, 4, 15 and 40/77, HNL and Others v Council and Commission [1978] ECR 1209, para 5. See also Brasserie du Pêcheur and Factortame, cited in n 22 above, para 45, and the Opinion of Advocate-General N Fennelly in Case C352/98 P, Bergaderm and Goupil v Commission, 2000 ‘ECR‘ I-5291, I-5294, para 29.Google Scholar

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73 Case 5/71, Zuckerfabrik Schöppenstedt v Council [1971] ECR 975.Google Scholar

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86 Ibid, para 30.

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91 Ibid, cited in n 22 above, para 80.

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94 Case T-184/95, Dorsch Consult v Council and Commission [1998[ ECR II-667.Google Scholar

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96 Ibid, paras 76–9.

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104 Case C-249/96, Grant [1998] ECR I-621.Google Scholar

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113 AM & S v Commission, cited in n 18 above.Google Scholar

114 Arts 81 and 82 EC (ex-Arts 85 and 86 of the EC Treaty).Google Scholar

115 Council Regulation No 17 of 6 Feb 1962. First regulation implementing Arts 85 and 86 (now Arts 81 and 82) of the Treaty, OJ Special Edition [19591962], p 87.Google Scholar

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119 See, on this judgment, Galmot, op cit, p 256–7.Google Scholar

120 Case 59/85, Reed [1986] ECR 1283.Google Scholar

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125 de Wilmars, Mertens, op cit, 39.Google Scholar

126 See, on this subject, Pescatore, op cit, cited in n 3 above, 354.Google ScholarSee also Dehousse, R, ‘Comparing National and EC Law: The Problem of the Level of Analysis’, Working Paper of the European University Institute at Firenze (1994/1993), 2.Google Scholar

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129 Ibid, para 45.

130 Ibid, para 46.

131 Ibid, paras 47 and 48.

132 Opinion of Advocate-General A Saggio in Case C-126/97, Eco Swiss [1999] ECR I-3055, I-3057, para 48.Google Scholar

133 Case 106/77, Simmenthal [1978] ECR 629.Google Scholar

134 Case 35/76, Simmenthal [1976] ECR 1871.Google Scholar

135 Simmenthal II, cited in n 133 above, para 22.Google Scholar

136 Ibid, para 24.

137 Ibid.

138 Case C-213/89, Factortame and Others [1990] ECR I-2433.Google Scholar

139 Ibid, para 18.

140 Ibid, para 19.

141 Ibid, paras 18–21.

142 Ibid, para 23.

143 Opinion of Advocate-General G Tesauro in Factortame, cited in n 138 above, I-2450, para 23 of Opinion.Google Scholar

144 Struys, M, op cit, 49.Google Scholar

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146 See case law referred to by Struys, M, op cit, 50.Google ScholarWith respect to the difficulties of putting these principles into operation, see Hoskins, M, ‘Tilting the Balance: Supremacy and National Procedural Rules’, European Law Review (1996) 365–77.Google Scholar

147 Joined Cases C-430/93 and C-431/93, Van Schijndel and Van Veen [1995] [ECR] I-4705.Google Scholar

148 Ibid, para 10.

149 Ibid, para 13.

150 Ibid, para 14.

151 Ibid, para 15.

152 Ibid, para 20.

153 Ibid, para 21.

154 Joined Cases C-430/93 and C-431/93, Van Schijndel and Van Veen [1995] [ECR] I-4705, para 22.Google Scholar

155 Case C-72/95, Kraaijeveld and Others [1996] ECR I-5403.Google Scholar

156 Ibid, para 60.

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158 Eco Swiss, cited in n 132 above.Google Scholar

159 Cited in n 147 above.Google Scholar

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161 Ibid, paras 36 and 37.