EUROPEAN COMMISSION Brussels, 30.9.2020 SWD(2020) 304 Final
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EUROPEAN COMMISSION Brussels, 30.9.2020 SWD(2020) 304 final COMMISSION STAFF WORKING DOCUMENT 2020 Rule of Law Report Country Chapter on the rule of law situation in Germany Accompanying the document COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS 2020 Rule of Law Report The rule of law situation in the European Union {COM(2020) 580 final} - {SWD(2020) 300 final} - {SWD(2020) 301 final} - {SWD(2020) 302 final} - {SWD(2020) 303 final} - {SWD(2020) 305 final} - {SWD(2020) 306 final} - {SWD(2020) 307 final} - {SWD(2020) 308 final} - {SWD(2020) 309 final} - {SWD(2020) 310 final} - {SWD(2020) 311 final} - {SWD(2020) 312 final} - {SWD(2020) 313 final} - {SWD(2020) 314 final} - {SWD(2020) 315 final} - {SWD(2020) 316 final} - {SWD(2020) 317 final} - {SWD(2020) 318 final} - {SWD(2020) 319 final} - {SWD(2020) 320 final} - {SWD(2020) 321 final} - {SWD(2020) 322 final} - {SWD(2020) 323 final} - {SWD(2020) 324 final} - {SWD(2020) 325 final} - {SWD(2020) 326 final} EN EN ABSTRACT The German justice system is characterised by the country’s federal structure and the important role of the Länder in the administration of justice. The level of perceived judicial independence is high. Safeguards for the independence of prosecutors have recently been under discussion. The German justice system is mostly performing efficiently, although some indicators have been showing a decline in overall performance. Particular efforts are ongoing to further develop the digitalisation of the justice system, which would contribute to enhancing its efficiency and quality. The 2019 ‘Pact for the Rule of Law’ between the federal level and the federal states will lead to additional funding for the justice system and the creation of 2000 new posts for judges and prosecutors by end-2021. This is also relevant in view of the increasing number of judges and prosecutors who will retire in the coming years. The legal, regulatory and institutional anti-corruption framework is broadly in place, with the implementation of repressive anti-corruption policies and criminal cases prosecution lying with the Länder. A ‘revolving doors’ policy exists at the federal level and in most Länder. As regards lobbying, the mandatory registration of contacts with both members of the Federal Parliament and members of the Federal Government is missing, although reforms in this area are being considered. Whistleblowers protection in Germany relies on a system which is integrated within businesses, allowing for people to rely on a reporting channel which is additional to the institutional one. Germany has well-established regulation on media freedom and pluralism, which mostly falls under the competence of the Länder. The fourteen media regulatory authorities are public agencies, with a legal guarantee of independence from political and commercial interference. Transparency of ownership of media outlets is high and safeguards are in place to prevent political interference with the media. The constitution and secondary legislation expressly guarantee the right of journalists to protect the confidentiality of their sources and regulate the right of access to information. In recent years, some concerns about increasing attacks on journalists have arisen. The system of checks and balances is well established. An impact assessment framework and the involvement of stakeholders contribute to the quality of the legislative process. Constitutional review takes place at both the federal level as well as at the level of the Länder. An enabling framework for civil society and a policy for making information accessible to citizens are in place. Civil society organisations can operate freely in Germany. Regular discussions on rule of law topics, both from a domestic as well as an European perspective, are promoted, including through a nationwide information and publicity campaign conducted in 2019 in the context of the ‘Pact for the Rule of Law’, focussing on communicating the significance of the rule of law and the guarantees it provides for the individual citizen as well as for a democratic society. 1 I. JUSTICE SYSTEM The court system in Germany is structured in a federal manner. Jurisdiction is exercised by federal courts and by the courts of the 16 federal states (‘Länder’). The main share of competence and workload regarding the administration of justice lies with the Länder. The court structure is divided between the ordinary jurisdiction and specialised courts. The ordinary jurisdiction consists of the civil and criminal jurisdiction. The specialised courts are the administrative courts, the finance courts, the labour courts and the social courts. The courts of the Länder are generally administered by their respective ministries of justice. Appointment of judges and prosecutors, except for the federal courts, falls within the competence of the Länder. While appointment procedures differ in detail between the Länder, all share common core elements, in particular the principle of merit (Leistungsprinzip)1 and the judicial review of the process and decision relating to appointment. For the Federal Courts, a judges’ selection committee (Richterwahlausschuss) selects judges for appointment by the executive and Councils of judges (Präsidialräte) of the relevant courts have to be consulted in this process.2 There are currently 638 local courts, 115 regional courts and 24 higher regional courts as part of the ordinary jurisdiction. There are further 51 administrative courts, 15 higher administrative courts, 18 financial courts, 108 labour courts, 18 higher labour courts, 68 social courts and 14 higher social courts across the 16 Länder3. At the federal level, the Federal Minister of Justice is responsible for the Federal Court of Justice, the Federal Administrative Court and the Federal Finance Court. The Federal Ministry of Labour and Social Affairs is responsible for the Federal Labour Court and the Federal Social Court. Constitutional review is ensured by the Federal Constitutional Court and the constitutional courts of the Länder. The prosecution services in Germany are part of the executive, at federal level with the Prosecutor General at the Federal Court of Justice. At the level of the Länder, each has its own public prosecution service. There are 27 regional Bars in Germany4. The umbrella organisation of all 28 Bars in Germany is the German Federal Bar in Berlin. Independence The perceived independence of courts and judges among the general public and companies remains high. Overall, 76% of the general population and 73% of companies perceive the level of independence of courts and judges as ‘fairly or very good’5. This high level of perceived judicial independence has remained stable over the last years6. This was also confirmed by stakeholders such as the German Association of Judges and Prosecutors, 1 This is anchored in Article 33 para. 2 of the Basic Law; mainly on the basis of the grades in the two legal state exams. 2 The judges’ selection committee (Richterwahlausschuss) is composed in equal parts of the responsible ministers of the federal states and members selected by the Federal Parliament. See Law on Election of Judges (Richterwahlgesetz) and German Law on Judges (Deutsches Richtergesetz), Art. 54-55. Similar committees exist in certain Länder. Moreover, the process and decision of appointment or non-appointment is fully subject to judicial control before the administrative courts. 3 Federal Ministry of Justice and Consumer Protection (2020). 4 In addition, there is a special bar for the lawyers with rights of audience in civil matters at the Federal Court of Justice. 5 Figures 44 and 46, 2020 EU Justice Scoreboard. The level of perceived judicial independence is categorised as follows: very low (below 30% of respondents perceive judicial independence as fairly good and very good); low (between 30-39%), average (between 40-59%), high (between 60-75%), very high (above 75%). 6 2013 to 2020 EU Justice Scoreboard. 2 the German Bar Association and the German Federal Bar7. The independence of the German justice systems is ensured by multiple safeguards, which include in particular judicial control over the legality of any decision relating to the judiciary, such as appointments, professional appraisals, promotions, disciplinary sanctions and dismissals8. Furthermore, the German justice system contains a number of elements of judicial self-administration9. The right of Ministers of Justice to instruct prosecutors in individual cases is under discussion. An amendment to abolish this right had been proposed as a reaction to the judgment of the Court of Justice of the European Union concerning the application of the European Arrest Warrant10, which found that German public prosecutor’s offices do not provide a sufficient guarantee of independence from the executive for the purposes of issuing a European Arrest Warrant. This amendment was rejected by the Federal Parliament on 28 May 202011. Structurally, the prosecution services form part of the executive. Therefore and as stipulated in the relevant provisions of the Law on the Judicial System12, the Ministers of Justice of the Länder and the Federal Minister of Justice have the possibility to give instructions to prosecutors in individual cases. This power is subject to legal safeguards. In addition to the principle of legality13, which circumscribes any action of prosecution services, and the constitutional principle of the rule of law 14, there are additional safeguards at federal and Länder level15. The overall effect is to ensure that any instructions in a specific case cannot in any event exceed the limits of the law16. Moreover, both authorities and stakeholders explained that only in very rare cases this right of instruction is actually exercised17. This practice, combined with the legal safeguards in place, appears to mitigate the risk of misuse of the right of instruction18. 7 Information received in the context of the country visit and the consultation process for the report, e.g. contribution from the German Federal Bar. 8 In particular, Art. 97 Basic Law on Judicial Independence.