U-I-313/13-91 27 March 2014 Concurring Opinion of Judge Jan
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U-I-313/13-91 27 March 2014 Concurring Opinion of Judge Jan Zobec 1. Although I voted for the Decision in its entirety and also concur to a certain degree with its underlying reasons, I wish to express, in my concurring opinion, my view on property taxes from the viewpoint of the constitutional guarantee of private property, especially the private property of residential real property. The applicants namely also referred to the fact that the real property tax excessively interferes with the constitutional guarantee of private property, and the Decision does not contain answers to these allegations. A few brief introductory thoughts on the importance of private property in the circle of civilisation to which we belong 2. Private property entails one of the central constitutional values and one of the pillars of western civilisation. Already the Magna Carta Libertatum or The Great Charter of the Liberties of England of 1215, which made the king's power subject to law and which entails the first step towards the implementation of the idea of the rule of law, contained numerous important safeguards of ownership – e.g. the principle that in order to increase the budget of the state it is necessary to obtain the approval of the representative body; the provision that the crown's officials must not seize anyone's movable property without immediate payment – unless the seller voluntarily agrees that the payment be postponed; it also ensured protection from unlawful deprivation of possession or (arbitrary) deprivation without a judicial decision.[1] The theory on property rights also occupies the central position in the political philosophy of John Locke, which inspired the American Revolution and was reflected in the Declaration of Independence. In the opinion of this thinker of the Age of Enlightenment, whose philosophy profoundly influenced modern liberalism, private property already exists on the basis of natural law and before political power is formed. The true and real meaning of governing is the protection of these natural property rights, which Locke connected with freedom. For such reason, he claimed that people created and appointed the government in order to thereby protect their lives, freedoms, and possessions. And since ownership is a natural right, also the authorisations of the government are, according to him, necessarily limited by the duty to protect private property. He firmly stood by the position that the legislature is not authorised to arbitrarily interfere with private property and that the imposition of taxes without the people's consent is arbitrary, hinders the fundamental law of private property, and undermines the objective and meaning of governing.[2] Both of these – the Magna Carta Libertatum and Locke's view on private property – had a strong influence on the Anglo-American political- philosophical and legal identity. Locke's concept of private property percolated into English common law and in the famous work Commentaries on the Laws of England, William Blackstone built specifically on Locke's formulation.[3] Throughout the entire Revolutionary period, the Americans stressed that real property must occupy a central place in constitutional regulation. And as Arthur Lee stated, private property is the guardian of every other right – to take it away from people is the same as if their liberty were taken away.[4] The Fifth Amendment to the American Constitution (due process of law) explicitly includes Locke's concept, according to which the protection of private property is the principal objective of government, and places private property parallel to life and freedom. 3. Also Article 2 of the French Declaration of the Rights of Man and of the Citizen of 1789 states that the aim of every political association is the preservation of the natural and imprescriptible human rights of man – and these rights are liberty, property, security, and resistance to oppression. Article 17 continues: "Property being an inviolable and sacred right, no one can be deprived of it, unless demanded by public necessity, legally constituted, and under the condition of a just and prior indemnity.” 4. On the other hand, taxes are an inevitable necessity and already by the nature of the matter, the state can only collect them by interfering with the property of its citizens and legal entities, i.e. by nationalising a part of their private property. Therefore, in order to actually be able to protect the private property of its citizens and ensure the implementation and protection of other human rights (and thus fulfil the fundamental objective of its existence), it has to interfere with what it is obliged to protect. This entails the paradox of property, which is expressed through its social, economic, and environmental function. Therefore, the question is whether what is at issue is an internal paradox (of property) or just an external conflict between what is private and what is public. The answer to this question determines how (by what criteria) this paradox or conflict should be resolved and who should supervise it, how, and in what scope. Or more precisely: what is at issue is the question of whether the obligation to pay taxes and other public charges is an internal characteristic of private property, an integral part thereof, or whether it entails an interference therewith, i.e. an outward interference with the human right. Real property tax is an interference with private property 5. Let me say right from the beginning that I concur with the starting point of the applicants' thesis that a real property tax, especially regarding residential real property, is already by itself an interference with the constitutional guarantee of property and should therefore be subject to the strict test of proportionality. It is true that the first paragraph of Article 67 of the Constitution defines the economic, social, and environmental function of property by stating that the manner in which property is acquired and enjoyed shall be established by law so as to ensure its economic, social, and environmental function. It is also true that the Constitutional Court has already taken a position thereon, namely that "the right to private property also includes as an integral part thereof – and not perhaps a limitation – the duty to contribute for the needs of the public" and that "already on the basis of the Constitution, also certain property burdens that are carried by those having (the right to) private property are an integral part of the content of private property." The Constitutional Court therefore decided that a tax determined in the framework of the economic, social, and environmental function of private property "still does not entail an interference (limitation) with the constitutionally protected right to private property."[5] 6. I find the position that tax burdens in themselves are still not an interference with the constitutional guarantee of private property, as long as they are not excessive, to be highly disputable, which in other terms entails that the state has in this part "a free hand" to interfere, "if necessary", with the property of its citizens and legal entities. Such namely entails that as long as the tax is not excessive, the owner is also not constitutionally protected from tax burdens and that therefore in this part there is no constitutional protection of property from the state. Namely, the latter can then, by law (that is adopted by any governing majority) and "if necessary", take what it deems to belong to it (provided that the law does not violate some other constitutional principles and orders – e.g. [the principles of] legality, clarity, and the precision of tax legislation, equality, the prohibition of retroactivity)[6] – the state is in this respect namely only bound by the Constitution. And where the Constitution does not impose limits on the state, where there is no constitutional protection from its measures, is where the state has "a free hand". 7. In such circumstances, property, especially when what is at issue is property that is subject to property tax, i.e. property that in the past has already been acquired, is not entirely and effectively constitutionally protected. The primary meaning and purpose of the constitutional guarantee of property is namely the protection of an individual's freedom in the property field from the state and its appetites. When we renounce constitutional protection from state interference with a certain part of property, the property is in this part no longer protected and remains, for such reason, in fact only "half-property" that is only protected in civil horizontal relationships between individuals equal to one another, and is not protected from the tax pretensions of the state. Or more directly: such position hands a part of property into the hands of the state. While this can still be advocated with regard to taxes on income and taxes on consumption, it seems to me completely unacceptable with regard to a property tax whose subject is immovable property already acquired in the past.[7] 8. For such reason, I agree with Professor Kerševan that such position according to which the "[f]undamental authoritative interference that in the modern legal regulation influences most often an individual's position and his possibility of free self-realisation, i.e. an interference with his property, […] not only is not limited by the human right to private property, but is (even) an integral part thereof, […] takes from an individual the fundamental function of the human right to private property, which is, in conformity with the nature of the human right to private property, precisely protection from authoritative interferences therewith."[8] The position that an interference is embedded in a human right as an integral part thereof, i.e. its reduction, decrease, and gradual negation, entails similar nonsense as claiming that an illness is an integral part of health (although, by definition, health is the absence of illness).