State of the rule of law in the European Union Reports from National Human Rights Institutions 2021 ennhri.org @ennhri ENNHRI 1 Table of contents Executive Summary .......................................................................................................................... 4 Introduction ........................................................................................................................................ 9 Overview of trends and challenges ............................................................................................. 22 Further strengthening EU and national rule of law and human rights frameworks through NHRIs’ engagement: Key Recommendations to the EU .......................................40 Country reports ................................................................................................................................ 50 Austria ...........................................................................................................................................................50 Belgium ........................................................................................................................................................53 Bulgaria ........................................................................................................................................................63 Croatia .......................................................................................................................................................... 76 Cyprus ...........................................................................................................................................................90 Czech Republic ........................................................................................................................................ 105 Denmark .................................................................................................................................................... 113 Estonia ........................................................................................................................................................ 121 Finland ........................................................................................................................................................ 129 France ......................................................................................................................................................... 144 Germany .................................................................................................................................................... 153 Greece ........................................................................................................................................................ 163 Hungary ..................................................................................................................................................... 194 Ireland ......................................................................................................................................................... 214 Italy ............................................................................................................................................................. 228 Latvia .......................................................................................................................................................... 229 Lithuania.................................................................................................................................................... 233 Luxembourg............................................................................................................................................. 234 Malta ........................................................................................................................................................... 241 Netherlands ............................................................................................................................................. 242 Poland ........................................................................................................................................................ 250 2 Portugal ..................................................................................................................................................... 262 Romania ..................................................................................................................................................... 271 Slovakia ..................................................................................................................................................... 292 Slovenia ...................................................................................................................................................... 316 Spain .......................................................................................................................................................... 343 Sweden ....................................................................................................................................................... 351 ANNEX I – Reporting questionnaire ........................................................................................ 352 ANNEX II – List and contacts of contributing NHRIs ........................................................... 358 3 Executive Summary NHRIs‘ contribution in monitoring and advancing the rule of law in the EU Human rights and the rule of law are interlinked and mutually reinforcing principles: a strong regime of rule of law is vital to the protection of human rights, and the rule of law can only be fully realised in an environment that protects human rights. National human rights institutions (NHRIs), as independent, state-mandated bodies with a broad human rights mandate, are therefore key players in the protection and promotion of the rule of law in their countries. The added value of NHRIs’ collective engagement in efforts to promote and protect rule of law, human rights and democracy has been the object of increasing recognition by European Union (EU) and other regional actors over the past year. Both the European Commission’s first annual rule of law report in the EU and the European Parliament’s resolution on an ‘EU Mechanism on Democracy, the Rule of Law and Fundamental Rights’ stressed the important role of NHRIs as contributors and beneficiaries of these efforts and valued NHRIs’ contributions through their European Network, ENNHRI. Such recognition rests on the crucial role of NHRIs as an essential component of the national systems of checks and balances and as key actors in the human rights enforcement chain, as also stressed in the new Strategy for the effective implementation of the Charter of Fundamental Rights of the EU. ENNHRI and its member NHRIs have built on their increased recognition to further deepen their strategic engagement in European rule of law mechanisms. At the core of such engagement lies a united approach meant to enhance coherence and consistency while allowing to reflect the differences in NHRIs, national environments and regional processes relevant to each country across ENNHRI’s membership. NHRIs’ joint rule of law reporting is one key aspect of such strategic engagement. Information on the extent to which NHRIs are able to independently and effectively fulfil their mandate is internationally recognized as an important rule of law indicator. Furthermore, reporting by NHRIs on the human rights situation on the ground – one of the core elements of their legal mandate – contributes to reflect a more accurate picture of the rule of law environment of each state, with a view to improving the rule of law situation across Europe. 4 In turn, NHRIs find that joint reporting has a positive impact on NHRIs’ own work, from contributing to a strengthened focus on rule of law issues, to facilitating targeted initiatives, raising awareness and visibility of NHRIs’ work, fostering mutual learning and the exchange of information and strengthening solidarity among NHRIs – each of which can have a positive impact on rule of law. Building on a first successful joint rule of law reporting experience last year, European NHRIs have again joined forces to compile their second collective report on the state of the rule of law in the EU. This report, coordinated by ENNHRI, brings together the national rule of law reports which NHRIs in all countries of the EU drafted based on a common reporting structure, including consideration of NHRIs as rule of law indicator. It gives account of the independence and effectiveness of each NHRI – and of progress made towards their establishment, in those countries where such an institution has not yet been established. It also reflects each institution's perspectives on the state of the rule of law in their country, based on their human rights monitoring and reporting functions and having regard to their mandate and their national strategic priorities. Key findings The trends which emerge from these reports point to a number of challenges related to the rule of law environment across EU member states, including: • Persisting issues affecting the effectiveness of NHRIs in many Member States, including limited mandates, lack of sufficient resources, poor implementation of NHRIs’ recommendation by state authorities, flawed consultation practices