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Report by the Council of State on the Integration of European Law Into the Spanish Legal System

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Report by the Council of State on the Integration of European Law Into the Spanish Legal System REPORT BY THE COUNCIL OF STATE ON THE INTEGRATION OF EUROPEAN LAW INTO THE SPANISH LEGAL SYSTEM 14 February 2008 Translated by the Office for the Interpretation of Languages, of the Ministry of Foreign Affairs and Cooperation 1 2 No. E 1/2007 Francisco Rubio Llorente (President) The Council of Landelino Lavilla Alsina State Study Group, at its Miguel Rodríguez-Piñero y Bravo-Ferrer meeting held on 14 February Joaquín de Fuentes Bardají 2008, attended by the Council Pedro Cruz Villalón Members listed in the margin, José María Martín Oviedo (Secretary- General) unanimously approved the following report. SUMMARY OF CONTENTS INTRODUCTION PART ONE I. THE SYSTEM OF EUROPEAN LAW II. ORGANISATION OF THE SPANISH ADMINISTRATIVE SYSTEM TO DEVELOP THE “EUROPEAN FUNCTION” OF THE STATE III. THE FORMATION OF EUROPEAN LAW: SPAIN’S PARTICIPATION IN DECISION-TAKING PROCEDURES IV. THE INTEGRATION OF EUROPEAN LAW INTO THE SPANISH LEGAL SYSTEM V. THE IMPLEMENTATION OF EUROPEAN LAW AND OF THE SPANISH LEGAL SYSTEM INTO WHICH IT IS INCORPORATED PART TWO VI. SOME REFLECTIONS ON THE ROLE OF THE COUNCIL OF EUROPE IN EUROPEAN INTEGRATION CONCLUSIONS 3 INTRODUCTION 1. The Government's Consultation Request On 23 February 2007, the Government asked the Council of State to prepare a study on the foreseeable impact on the General State Administration of the integration of European law into the Spanish system. The document formalising this request, to be fulfilled within a year, was received by the Council on the following 24 February. It reads as follows: “Spain’s accession to the European Communities in 1986 brought about profound changes in the structure of our administrative and legal systems. After the initial incorporation of the Community acquis then in force, the body of rules that make up Community law has expanded to the present day, not only through an ever-broader secondary law and with new developments regarding the European Union’s international action, and through new forms of regulatory action, such as the open method of coordination, but also through successive amendments to primary law, most particularly with the creation of the European Union, incorporating the original Communities. Although the changes arising from our inclusion in the process of European integration are undoubtedly the most important, they are not the only ones. In addition, Spain’s membership of the Council of Europe has had a very significant impact on our legal system, especially with respect to the jurisprudence of the Strasbourg Court, whose interpretation of the European Convention on Human Rights (1950) is binding on Spanish judges, under Article 10.2 of the Constitution. Other international organizations and rules also raise issues that on occasion go beyond the traditional concept of international law. 4 The changes made to the national legal system during this process undoubtedly affect the regulatory function of the State, with the introduction of new law-makers and of new functions, especially for the Administration, in its participation in the procedure. Furthermore, the Administration’s development and application of the rules and its supervision of compliance with them by national courts have been profoundly transformed, with the introduction of new responsibilities and concepts, such as that of dialogue between judges, which may sometimes become conflictive. The problems and changes noted above have been widely discussed in the legal context, but we believe it necessary to obtain a diagnosis of the current situation, addressed from the standpoint and experience of the General State Administration, so that the latter can effectively develop its functions, as regards both itself and its relationship with the other levels of Spanish government and with the judiciary bodies. The Government considers that the most appropriate institution to undertake this study is the Council of State, not only because of its institutional position but also by virtue of its long experience in relation to these questions. Under the provisions of Article 23.1 of the corresponding Organic Law, the Study Group would be responsible for this task, addressing the questions set out below, together with any others considered to require their attention, identifying dysfunctions that may be provoked by such changes and, where appropriate, formulating the proposals deemed necessary to correct them. Regarding what has been termed the ascending phase of Spain's participation in the European decision-taking process, it is necessary to consider how to ensure that the content of Community rules adequately matches Spanish necessities such that the subsequent implementation of these rules will not be unreasonably complex or dysfunctional. Accordingly, 5 the Government believes the Study Group should consider the following questions: • The area of Community decision-taking processes, in the different EU institutions, in which the General State Administration may participate, and the rules to which such participation is subject. • The procedural and organizational forms of interministerial coordination for Spanish participation in such decisions, especially regarding the actions of the Interministerial Committee for European Union Affairs and the Permanent Representation of Spain to the European Union. • The ways in which recently-developed procedures for regional participation may be integrated into the actions of the General State Administration. Regarding the ‘descending phase’, the Government considers it necessary to explore means of ensuring full compliance with its obligations under European law together with respect for the constitutional principles of legality, hierarchy, transparency and legal certainty. Therefore, the study should consider the following: • How to ensure compliance with the general obligations arising from Community law in the development and implementation of Spanish legislation, with special attention to the need for interministerial coordination in this context. • The procedures required to ensure the inclusion of specific obligations arising from rules of Community law, within the time limits specified in this regard, and the consequences of any non-compliance. • The consequences of the principles of primacy and direct effect on the validity and applicability of Spanish rules, considering the need to eliminate national rules that are partially or totally contrary to 6 European law, and to consider the effects of the introduction of new legal categories, arising from Community law, into our legal system. • The consequences of the principle of State responsibility for breaches of Community law. • The needs arising from the development and implementation of Community law with respect to relations between the General State Administration and the Autonomous Communities, as regards both ensuring compliance with Spain’s obligations to the Union and the consequences of any breaches in this respect. Finally, this study should also consider Spain's position as a member of the Council of Europe, both in terms of the rules it adopts and, very specially, concerning the jurisprudence of the European Court of Human Rights and how to ensure the effectiveness of its judgments". 2. Determining the goals of the study As reiterated in the consultation request, the study commissioned by the Government requires the Council of State to focus on the issues that should be addressed by the General State Administration in response to the changes produced in the Spanish legal system by our accession to the European Communities and by membership of the Council of Europe. The depth and significance of these changes are very evident. They would have been so even if the Communities of which Spain became a part in 1986 had remained unchanged, but obviously this is not the case. From that date until the present, the supranational organization has undergone major changes, in terms of both quantity (the marked increase in the number of Member States) and quality (the extension of its powers, the application of which has a decisive impact on the States’ exercise of their own powers in all areas, not just in relation to economic or social issues). 7 These changes have transformed the original structure, through successive amendments to primary legislation, the latest of which was produced by the Treaty of Lisbon, signed on 13 December 2007 and still pending ratification. According to the provisions of this Treaty, which amends both the Treaty on European Union and the Treaty establishing the European Community, the latter ceases to exist as such, to be replaced by the Union itself1. In view of the evident impossibility of adapting the study to a constantly changing reality in Europe, the Council of State has focused this study on the basis of European law currently in force. As far as can be foreseen, any changes this may undergo in the immediate future will not alter the validity of the analysis made or the usefulness of the proposals formulated accordingly. The need to cope with the transformations produced in the institutional structure and functioning of the Member States by the progressive advance of European integration has led many of these States to adapt their Constitutions to accord with the new reality. In our country, this task remains to be fulfilled, notwithstanding the particular amendment made in this respect to Article 13.2 of our Constitution. Some aspects of the latter reform, effected to ensure the proper matching of Spain’s legal system with Community law, were analysed in Section III of the report drafted by the Council of State at the request of the Government and approved in plenary on 16 February 2006. Nevertheless, in the present study, notwithstanding the ideas set out in the former report, the situation is analysed without contemplating any 1 According to the provisions of the Lisbon Treaty (paragraph 3, Article 1 of the Treaty on European Union), the Union "shall replace and succeed the European Community" and its establishing Treaty shall be renamed the "Treaty on the Functioning of the European Union". The text of the Lisbon Treaty is published in the Official Journal of the European Union (OJEU) C 306 of 17 December 2007.
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