Report on Judicial Independence and Impartiality of in the Council Of
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CCJE-BU(2017)11 Strasbourg, 7 February 2018 BUREAU OF THE CONSULTATIVE COUNCIL OF EUROPEAN JUDGES (CCJE) Report on judicial independence and impartiality in the Council of Europe member States in 2017 Prepared by the Bureau of the CCJE following the proposal of the Secretary General of the Council of Europe 1 TABLE OF CONTENTS List of abbreviations...............................................................................................................3 I. Introduction: scope, purpose and limitations of the report ............................................4 II. Overview of relevant European standards.......................................................................6 A. Functional independence: appointment and security of tenure of judges ..................6 B. Organisational independence: Councils for the Judiciary and the administration of courts.......................................................................................................................................7 C. Impartiality of judges, codes of ethics and professional conduct and disciplinary measures.................................................................................................................................9 D. The economic basis for the smooth functioning of the judicial system ....................10 E. Judges and media: public discussion and criticism of judges ...................................11 III. General issues concerning judicial independence and impartiality...........................13 IV. Country specific issues concerning judicial independence and impartiality ...........16 A. Functional independence: appointment and security of tenure of judges ................16 B. Organisational independence: Councils for the Judiciary and the administration of courts.....................................................................................................................................27 C. Impartiality of judges, codes of ethics and professional conduct and disciplinary measures...............................................................................................................................42 D. The economic basis for the smooth functioning of the judicial system ....................54 E. Judges and media: public discussion and criticism of judges ...................................62 V. Conclusions......................................................................................................................71 Appendix: Comments from member States.......................................................................72 2 List of abbreviations AEAJ Association of European Administrative Judges CCBE Council of Bars and Law Societies of Europe CCJE Consultative Council of European Judges of the Council of Europe CCPE Consultative Council of European Prosecutors of the Council of Europe EAJ European Association of Judges ECHR European Convention for the Protection of Human Rights and Fundamental Freedoms ECtHR European Court of Human Rights ENCJ European Network of Councils for the Judiciary GRECO Council of Europe Group of States against Corruption IAP International Association of Prosecutors MEDEL Association «Magistrats européens pour la démocratie et les libertés» PACE Parliamentary Assembly of the Council of Europe Rec(2010)12 Recommendation Rec(2010)12 of the Committee of Ministers of the Council of Europe on judges: independence, efficiency and responsibilities Rec(2000)19 Recommendation Rec(2000)19 of the Committee of Ministers of the Council of Europe on the role of public prosecution in the criminal justice system Venice Commission European Commission for Democracy through Law of the Council of Europe 3 “Nothing is possible without individuals, nothing is durable without institutions” Jean Monnet I. Introduction: scope, purpose and limitations of the report 1. The report has been prepared by the CCJE Bureau following the proposal by the Secretary General of the CoE to ”develop the methodology and establish a regular in- house evaluation mechanism on the independence and impartiality of the judiciaries of the CoE member States”1. 2. Since the proposal of the Secretary General was to establish an evaluation mechanism which would be regular, the CCJE’s 17th plenary meeting2 decided to issue such a report on a regular basis. The present report is therefore the first in the forthcoming series of reports, and it highlights concerns about and challenges to judicial independence and impartiality in member States in 20173. 3. The report provides a summary of information submitted by CCJE members and observers, as well as by judicial bodies and associations, concerning alleged infringements in member States of standards governing judicial independence and impartiality. It includes the requests for legislative assistance submitted to the CCJE and the comments prepared in response. The report is also based on information contained in the judgments of the European Court of Human Rights, opinions of the Venice Commission, reports of the Human Rights Commissioner and of the Parliamentary Assembly and documents of other relevant bodies of the Council of Europe. 4. The CCJE Bureau wishes to signal certain limitations concerning the report. First of all, in accordance with the CCJE Terms of Reference for 2016-2017 and the corresponding decision of the CCJE plenary meeting in 20164, the report does not contain ratings or rankings of member States’ performance, and it does not constitute a monitoring process or mechanism. 5. Secondly, the report does not claim to be a comprehensive and systematic research. For the preparation of the report, given the limited time and resources available, statistically representative surveys or similar exercises could not be conducted. Therefore, the reported concerns and challenges to judicial independence and impartiality are not based on thorough and exhaustive research. 1 See the 2016 Report by the Secretary General of the Council of Europe “STATE OF DEMOCRACY, HUMAN RIGHTS AND THE RULE OF LAW. A security imperative for Europe”, page 7 (under proposed actions and recommendations). 2 Held in Strasbourg on 8-10 November 2016. 3 It should be noted that some of the current problems have roots in the previous years, therefore they are described in the present report, and in addition, since this is the first regular report, some other challenges to judicial independence and impartiality originating before 2017 are also referred to. 4 See the report on the 17th plenary meeting of the CCJE on 8-10 November 2016 in Strasbourg (document CCJE(2016)5, para 5). 4 6. Thirdly, the CCJE Bureau emphasises that it is not in a position to verify and confirm the factual basis of the events which are reported to have taken place. The Bureau has, however, taken great care to mention only information it considered credible and important. The report, therefore, must not be understood as a compilation of facts established by full and complete evidence. 7. In addition, the CCJE Bureau wishes to specify that the purpose of the report is not to point to persons or institutions that may bear responsibility for the alleged infringements. Listing the reported challenges and information concerning specific member States is not meant to criticise them; such listing is done in order to illuminate the overall picture. The overriding aim of the report is to show, where possible, where concerns about and challenges to the independence and impartiality of judges may be found, in which ways they may occur and what their effects on the justice system can be. Public trust in judges may be undermined not only in cases of real, existing and convincingly established infringements, but also where there are sufficient reasons to cast doubt on judicial independence and impartiality. 8. It should also be noted that if some countries, out of 47 member States of the CoE, are not mentioned in the present report, this should not be interpreted in a positive or negative sense as regards judicial independence and impartiality in those countries; it only means that no information has been provided to the CCJE as regards those countries. 9. In accordance with the proposal of the Secretary General to focus on judicial independence and impartiality, the categories of alleged infringements are those related to: a) the functional independence: appointment and security of tenure of judges; b) the organisational independence: Councils for the Judiciary and the administration of courts; c) impartiality of judges, codes of ethics and professional conduct and disciplinary measures; d) the economic basis for smooth functioning of the judicial system; e) judges and media: public discussion and criticism of judges. 10. The Council of Europe has established an extensive regulatory framework intended to guarantee judicial independence and impartiality as one of the pillars for the rule of law. Numerous instruments have been adopted which set out the requirements for achieving these fundamental objectives. 11. The CCJE Bureau underlines the importance of examining any alleged infringements in the context of the ECHR and the case law of the ECtHR. In doing so, the CCJE Bureau emphasises that the right to a fair trial is secured through an independent and efficient judiciary and the proper exercise of judicial duties and responsibilities. 12. In examining the alleged infringements, the CCJE Bureau has taken into consideration the European Charter on the Statute for Judges (1998) and Recommendation Rec(2010)12 of the Committee of