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Europarecht Europarecht E 21002 F EUROPARECHT EUROPARECHT Heft 4 • Juli – August 2004 4 Nomos Verlagsgesellschaft Heft • Baden-Baden 2004 Inhaltsverzeichnis Aufsätze Prof. Dr. Martin Nettesheim, Tübingen Die Kompetenzordnung im Vertrag über eine Verfassung für Europa ............. 511 Dr. Dr. Wolfgang Durner, München Die Unabhängigkeit nationaler Richter im Binnenmarkt – Zu den Loyalitätspflichten nationaler Gerichte gegenüber der EG-Kommission, insbesondere auf dem Gebiet des Kartellrechts.................... 547 Dr. Jörg Gundel, Berlin Europarechtliche Probleme der Bürgerversicherung.......................................... 575 Rechtsprechung Verpflichtung zur Rücknahme bestandskräftiger Bescheide Urteil des Gerichtshofs vom 13.01.2003 (Vorabentscheidungsersuchen des College van Beroep voor het bedrijfsleven (Niederlande)), Kühne & Heitz NV/Productschap voor Pluimvee en Eieren, Rs. C-453/00 ...... 590 Bestandskraft staatlicher Verwaltungsakte oder Effektivität des Gemeinschaftsrechts? – Anmerkung zu dem Urteil des EuGH vom 13.01.2003, Rs. C-453/00 Von Prof. Michael Potacs, Klagenfurt................................................................ 595 Eintragung ausländischer Handwerksbetriebe in die Handwerksrolle Urteil des Gerichtshofs vom 11.12.2003 (Vorabentscheidungsersuchen des Amtsgerichts Augsburg), Bruno Schnitzer, Rs. C-215/01 ............................ 603 Verlegung des steuerlichen Wohnsitzes in einen anderen Mitgliedstaat Urteil des Gerichtshofs vom 11.03.2004 (Vorabentscheidungsersuchen des Conseil d‘État), Hughes de Lasteyrie du Saillant/Ministère de l‘Économie, des Finances et de l‘Industrie, Rs. C-9/02 ............................... 608 Fortsetzung Inhaltsverzeichnis hintere Umschlagseite Inhalt_Heft 4.indd 2 23.08.2004, 11:16:38 Fortsetzung Inhaltsverzeichnis Kleinere Beiträge, Berichte und Dokumente „Bestandskraft“ von EG-Rechtsakten und Anwendungsbereich des Art. 241 EGV Von Matthias Vogt, Heidelberg............................................................................ 618 Rechtsfragen der Osterweiterung der EU unter besonderer Berücksichtigung des Beitritts der Republik Zypern Von Dr. Constantin Iliopoulos, Athen................................................................. 637 Rezensionen Gert Nicolaysen, Europarecht I (Prof. Dr. Armin Hatje, Bielefeld) ...................................................................... 649 Axel Cordewener, Europäische Grundfreiheiten und nationales Steuerrecht (Prof. Dr. Christian Waldhoff, Bonn) ................................................................. 651 Martin Selmayr, Das Recht der Wirtschafts- und Währungsunion (Prof. Dr. Ulrich Häde, Frankfurt/Oder) ........................................................... 654 Bibliographie Bücher und Zeitschriften ..................................................................................... 657 Inhalt_Heft 4.indd 3 23.08.2004, 11:16:38 EuR – Heft 4 – 2004 511 EUROPARECHT In Verbindung mit der Wissenschaftlichen Gesellschaft für Europarecht herausgegeben von Claus-Dieter Ehlermann, Ulrich Everling, Hans-J. Glaesner, Meinhard Hilf, Hans Peter Ipsen †, Joseph H. Kaiser †, Peter-Christian Müller-Graff, Gert Nicolaysen, Hans-Jürgen Rabe, Jürgen Schwarze Schriftleiter: Armin Hatje, Ingo Brinker 39. Jahrgang 2004 Heft 4, Juli – August Die Kompetenzordnung im Vertrag über eine Verfassung für Europa Von Martin Nettesheim, Tübingen I. Die fünf Dimensionen der Kompetenzdebatte Jedes System öffentlicher Herrschaft, in dem mehrere Entscheidungsebenen aufein- ander bezogen sind, wird zunächst und vor allem durch seine Kompetenzverteilung charakterisiert. Die Verteilung der Kompetenzen definiert die wesentlichen Eigen- arten des Systems, seine Aufgabenstellung und seine Finalität. Seine Problembewäl- tigungsfähigkeit und seine Effizienz sind Ausdruck dieser Verteilung. Rechtstech- nisch sind es vor allem fünf Kriterien, durch die sich eine verfassungsrechtliche Kompetenzordnung kennzeichnen lässt: – die inhaltlichen Prinzipien der Kompetenzverteilung, – der Grad der Bestimmtheit und Abgrenzungsschärfe der Kompetenzzuweisung; – der Grad der Normativität der Kompetenzausübungsregeln, – der Grad der materiellen Determiniertheit der Kompetenzen sowie – die Ausgestaltung und der Grad der Juridifizierung der Kompetenzüberwa- chung. Es liegt auf der Hand, dass den damit bezeichneten fünf Dimensionen der Kompe- tenzordnung1 eine zutiefst konstitutionelle Bedeutung zukommt. Kompetenzen de- finieren die materielle Finalität der EU – und sind immer auch Grundentscheidung über den zukünftigen Weg der EU zwischen internationaler Organisation und ver- 1 Eine leicht andere Klassifikation bei F. C. Mayer, Die drei Dimensionen der europäischen Kompetenzdebatte, ZaöRV 61 (2001), 577 (578 ff.). innen_Heft 4.indd 511 23.08.2004, 11:37:59 512 EuR – Heft 4 – 2004 Nettesheim, Die Kompetenzordnung im Vertrag über eine Verfassung für Europa fasster Staatlichkeit. Europäische Hoheitsgewalt, die nicht ihre Wurzel und ihre Le- gitimation in einer Kompetenz findet,2 hat im Verfassungsdenken Europas keinen Platz.3 Es ist daher nicht verwunderlich, dass in beinahe jedem Beitrag, der sich in den letzten Jahren mit dem Problem der Verfassungsgebung in Europa befasst hat, die Kompetenzfrage angesprochen worden ist.4 Sei es, dass in recht allgemeiner Weise eine „angemessene, föderalen Prinzipien entsprechende“ Kompetenzordnung gefordert wurde, sei es, dass konkretere materielle Vorschläge über die Verlagerung von Zuständigkeiten im Mehrebenensystem vorgelegt wurden, sei es schließlich, dass institutionelle oder prozedurale Vorkehrungen zur Durchsetzung und Überwa- chung von kompetenziellen Beschränkungen gemacht wurden – die kompetenziel- len Überlegungen stellten regelmäßig das Herz eines Diskussionsbeitrags zur Ver- fassungsdebatte dar.5 Auch in dem Auftrag, den der Europäische Rat von Laeken erteilte, stand die Überprüfung, Überarbeitung und Reform der Kompetenzordnung im Mittelpunkt.6 In der Konventsarbeit stand die Behandlung der Kompetenzfrage allerdings eher im Hintergrund. Sie erwies sich als deutlich weniger kontrovers, als es die Diskussio- nen im Vorfeld des Zusammentritts des Konvents7 erwarten ließen. Eine Rolle spiel- te dabei allerdings auch, dass die Überlegungen zur Kompetenzfrage auf immerhin vier Arbeitsgruppen zersplittert waren. So beschäftigte sich Arbeitsgruppe I (Subsi- diarität) mit der Frage nach der Fortentwicklung des Subsidiaritäts- und Verhältnis- 2 EuGH, Rs. 230/81, Luxemburg/Parlament, Slg. 1983, 255, Rn. 39; EuGH, Rs. C-57/95, Frankreich/Kommissi- on (Mitteilung zu Pensionsfonds), Slg. 1997, I-1627. Dies gilt auch für den Einsatz von Haushaltsmitteln: EuGH, Rs. C-106/96, Großbritannien/Kommission, Slg. 1998, I-2729 (hierzu A. Dashwood, The Limits of European Community Powers, ELRev. 1996, 113). 3 Zum Verhältnis von Staatlichkeit und Kompetenz grundlegend Ch. Möllers, Staat als Argument, 2000, 256 ff. 4 Zur Kompetenzstruktur allgemein etwa U. Everling, Kompetenzordnung und Subsidiarität, in: W. Weidenfeld (Hrsg.), Reform der EU, 1995, 166; T. Beyer, Die Ermächtigung der Europäischen Union und ihrer Gemein- schaften, Der Staat 1996, 189; J. Martín y Pérez de Nanclares, El sistema de competencias de la Comunidad Europea, 1997; H.-D. Jarass, Die Kompetenzverteilung zwischen der Europäischen Gemeinschaft und den Mitgliedstaaten, AöR 121 (1996), 173; P.-Ch. Müller-Graff, Kompetenzen in der Europäischen Union, in: W. Weidenfeld (Hrsg.), Europahandbuch, 1999, 779; T. Fischer/N. Schley, Europa föderal organisieren, 1999, 145 ff., I. Boeck, Die Abgrenzung der Rechtsetzungskompetenzen von Gemeinschaft und Mitgliedstaaten in der EU, 2000; G. de Búrca/B. de Witte, The Post-Nice Delimitation of Powers (Konzeptpapier v. 3. Mai 2001); Chr. Vedder, Das System der Kompetenzen der EU unter dem Blickwinkel einer Reform, in: V. Götz/J. Martínez Soria (Hrsg.), Kompetenzverteilung zwischen der EU und den Mitgliedstaaten, 2002, 9; M. Nettesheim, Kom- petenzen, in: A. von Bogdandy (Hrsg.), Europäisches Verfassungsrecht, 2003, 415. 5 Überblick bei P. Häberle, Die Herausforderung des europäischen Juristen vor den Aufgaben unserer Verfas- sungs-Zukunft: 16 Entwürfe auf dem Prüfstand, DÖV 2003, 429. 6 Fundstelle: http://european-convention.eu.int/pdf/LKNDE.pdf. Hierzu R. Wägenbaur, Die Erklärung von Lae- ken zur Zukunft der EU, EuZW 2002, 65. 7 Vgl. etwa J. Schwarze, Kompetenzverteilung in der Europäischen Union und föderales Gleichgewicht, DVBl. 1995, 1265; P. Kirchhof, Gewaltenbalance zwischen staatlichen und europäischen Organen, JZ 1998, 965; I. Pernice, Kompetenzabgrenzung im Europäischen Verfassungsverbund, JZ 2000, 866; Th. Fischer/N. Schley, Organizing a Federal Structure for Europe: An EU Catalogue of Competencies, 2000; A. von Bogdandy/J. Bast, Die vertikale Kompetenzordnung der Europäischen Union, EuGRZ 2001, 441; R. Bieber, Abwegige und zielführende Vorschläge: Zur Kompetenzabgrenzung der Europäischen Union, integration 2001, 308; I. Per- nice, Eine neue Kompetenzordnung für die Europäische Union, WHI-Paper 15/02 (www.whi-berlin.de); Euro- pean Public Law Group, Proposal on the Debate on the European Constitution, European Papers Nr. 2, 2003; E. Teufel, Leitlinien für die Ordnung der Kompetenzen zwischen der Europäischen Unin und den Mitgliedstaa- ten im künftigen Verfassungsvertrag (Fundstelle: http://register.consilium.eu.int); J. Shaw, Flexibility in a „Reorganized“ and „Simplified“ Treaty, CMLRev. 2003, 279. innen_Heft 4.indd 512 23.08.2004, 11:37:59 Nettesheim, Die Kompetenzordnung im Vertrag über eine Verfassung für Europa EuR – Heft 4
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