CENTRE FOR THE LAW OF EU EXTERNAL RELATIONS Founded in 2008, the Centre for the Law of and prosperity and is carried out along the fol- EU External Relations (CLEER) is the fi rst au- lowing transversal topics: thoritative research interface between academia • the reception of international norms in the EU and practice in the fi eld of the Union’s external legal order; relations. CLEER serves as a leading forum for • the projection of EU norms and impact on the debate on the role of the EU in the world, but its development of international law; most distinguishing feature lies in its in-house re- • coherence in EU foreign and security policies; search capacity, complemented by an extensive • consistency and effectiveness of EU external network of partner institutes throughout Europe. policies. Goals CLEER’s research focuses primarily on four • To carry out state-of-the-art research leading cross-cutting issues: Is the EU a Human Rights Organisation? to offer solutions to the challenges facing the • the fi ght against illegal immigration and crime; EU in the world today. • the protection and promotion of economic and • To achieve high standards of academic excel- fi nancial interests; lence and maintain unqualifi ed independence. • the protection of the environment, climate and • To provide a forum for discussion among all energy; Allan Rosas stakeholders in the EU external policy process. • the ability to provide military security. • To build a collaborative network of researchers and practitioners across the whole of Europe. Network • To disseminate our fi ndings and views through CLEER carries out its research via the T.M.C. a regular fl ow of publications and public Asser Institute’s own in-house research pro- events. gramme and through a collaborative research network centred around the active participation Assets of all Dutch universities and involving an expand- • Complete independence to set its own re- ing group of other highly reputable institutes and search priorities and freedom from any outside specialists in Europe. infl uence. • A growing pan-European network, comprising Activities research institutes and individual experts and CLEER organises a variety of activities and practitioners who extend CLEER’s outreach, special events, involving its members, partners provide knowledge and practical experience and other stakeholders in the debate at national, and act as a sounding board for the utility and EU- and international level. feasibility of CLEER’s fi ndings and proposals. CLEER’s funding is obtained from a variety of sources, including the T.M.C. Asser Instituut, Research programme project research, foundation grants, conferences CLEER’s research programme centres on the fees, publication sales and grants from the Eu- EU’s contribution in enhancing global stability ropean Commission. CENTRE FOR THE LAW OF EU EXTERNAL RELATIONS T.M.C. Asser Instituut inter-university research centre FIRST ANNUAL CLEER PUBLIC LECTURE CLEER is hosted by the T.M.C. Asser Instituut, Schimmelpennincklaan 20-22 E-mail: [email protected] 2517 JN, The Hague, The Netherlands Website: http://www.cleer.eu CLEER WORKING PAPERS 2011/1 Is the EU a Human Rights Organisation? CENTRE FOR THE LAW OF EU EXTERNAL RELATIONS IS THE EU A HUMAN RIGHTS ORGANISATION? ALLAN ROSAS* FIRST ANNUAL CLEER PUBLIC LECTURE** CLEER WORKING PAPERS 2011/1 1 CLEER WORKING PAPERS 2011/1 CLEER WORKING PAPERS 2011/1 Rosas This text may be downloaded for personal research purposes only. Any additional reproduction, whether in hard copy or electronically, requires the consent of the author(s), editor(s). If cited or quoted, reference should be made to the full name of the author(s), editor(s), the title, the working paper or other series, the year and the publisher. The author(s), editor(s) should inform CLEER if the paper is to be published elsewhere, and should also assume responsibility for any consequent obligation(s). * Allan Rosas is Doctor of Laws (University of Turku, 1977), Doctor h.c. (Åbo Akademi Uni- versity, 2011); Judge at the European Court of Justice since 2002. Former Armfelt Professor of Law, Åbo Akademi University (1981-1996) and Director of its Institute for Human Rights (1985-1995); former Principal Legal Adviser (external relations) at the Legal Service of the European Commission (1995-2001) and Deputy Director-General of the said Legal Service (2001-2002). ** This paper is based on the first annual CLEER public lecture, delivered on 17 March 2011 at the premises of the T.M.C. Asser Institute in a seminar co-organised with the Embassy of Finland in The Hague. ISSN 1878-9587 (print) ISSN 1878-9595 (online) © Rosas Printed in The Netherlands T.M.C. Asser Institute P.O. Box 30461 2500 GL The Hague The Netherlands www.cleer.eu 2 Is the EU a Human Rights Organisation? 1. INTRODUCTION To answer the question put in the title of this paper, it is necessary to clarify what I mean by a human rights organisation. I have in mind above all international organisations, be they intergovernmental (IGOs) or non-governmental (NGOs), whose essential mandate is focused on the promotion and protection of human rights. A clear example of an intergovernmental human rights organisation would be the Council of Europe, which provides for an elaborate human rights convention system, with the European Convention on Human Rights, including its advanced system of judicial control (the European Court of Human Rights), as the foremost example.1 Examples of non-governmental human rights organisations are offered by Amnesty International and Human Rights Watch. With this use of the notion of human rights organisation, I fi nd it fairly obvious that the question put in the title of this presentation should be answered in the negative, in other words, that the European Union (hereafter, EU) is not a human rights organisation. As, on the other hand, the promotion and protection of funda- mental rights and human rights fi gure relatively high on the Union’s agenda, the reader may well think that my answer is either too pejorative or too formalistic. If someone insists on calling the EU a human rights organisation, I have no real quarrel with that. But it may be interesting to note that when I have put this question to participants in a number of international human rights courses, the overwhelm- ing majority has always answered ‘no’; the EU, according to them, is not a human rights organisation.2 But let us not dwell too much on this question of terminology. The main purpose of this paper is to use my negative answer as an introduction to a discussion of the status and role of fundamental rights and human rights in the activities of the EU more generally. In particular, I would like to focus on those specifi c features of the EU which distinguish it from a human rights organisation stricto sensu as charac- terised above. It goes without saying that it is not possible here to provide an exhaustive exposé of all fundamental rights- and human rights-related activities of the Union. It should, in fact, be stressed at the outset that these activities comprise a vast and diverse area, ranging from fundamental rights issues in the legislative and administrative activities of the EU political institutions and in the case law of the European Court of Justice, to human rights concerns in the treaty and other activities of the EU in its relations with third countries.3 Moreover, the obligation to respect fundamental rights as defi ned by the Union applies not only to the Union’s 1 Suffi ce it to mention, as a source of reference, the monumental commentary by Pieter van Dijk et al., eds., Theory and Practice of the European Convention on Human Rights, 4th ed. (An- twerpen/Oxford, Intersentia 2006). 2 This question has been put to the participants notably of the Advanced Courses on the In- ternational Protection of Human Rights, organised each August by the Institute for Human Rights of the Åbo Akademi University (www.abo.fi /instut/imr/courses.htm). 3 For an overview, see, e.g., Philip Alston, ed., The EU and Human Rights (Oxford, Oxford University Press 1999); Allan Rosas, ‘The European Union and Fundamental Rights/Human Rights’, in: Catarina Krause and Martin Scheinin, eds., International Protection of Human Rights: A Textbook (Åbo Akademi University Institute for Human Rights, Turku/Åbo 2009), 443; Allan Rosas and Lorna Armati, EU Constitutional Law: An Introduction (Oxford/Portland, Hart Publish- ing 2010), 143-162. 3 CLEER WORKING PAPERS 2011/1 CLEER WORKING PAPERS 2011/1 Rosas institutions in the strict sense but also to the Member States and their courts and authorities when they are acting within the scope of Union law.4 Important develop- ments have taken place, as compared to the situation reigning at the early days of European integration, when the focus was on economic integration and fundamen- tal rights received scarce, if any, attention.5 2. HOW IT ALL BEGAN One of the fi rst steps to develop a fundamental rights regime at Community level was taken by the European Court of Justice (hereafter, ECJ). The context and issue at stake are revealing. In 1963 and 1964, the Court had affi rmed that the provisions of the EEC Treaty can have direct effect, in other words be invoked directly by individuals before courts and authorities,6 and that Community law enjoys primacy, in other words in case of confl ict prevails over the laws of the Member States, including arguably their national constitutions.7 There was, then, a risk that the Member States, and some of their constitutional courts in particular, would reject the idea of the primacy of a Community law which did not include the principle of respect for fundamental rights.