Values in Europe - the past and the future

Europe of Founding Fathers: Investment in the common future under the editorship of: Magdalena Sitek, Gaetano Dammacco, Aleksandra Ukleja, Marta Wójcicka Olsztyn 2013 |1 scientific editors: Magdalena Sitek Gaetano Dammacco reviewers : Prof. dr hab. Bogumił Szmulik (Poland) Prof. JUDr. Igor Palúš CSc. (Slovakia) ©Copyright 2013 by Magdalena Sitek, Gaetano Dammacco, Aleksandra Ukleja, Marta Wójcicka and Contributors cover designer: Miłosz Ukleja Typesetting, type-matter: Miłosz i Aleksandra Ukleja, Marta Wójcicka ISBN 978-83-62383-40-5 Published by The Faculty of Law and Administration at The University of Warmia and Mazury in Olsztyn ul. Warszawska 98, 10-702 Olsztyn, Poland printing and binding: Printing Plant of The University of Warmia and Mazury in Olsztyn ul. Jana 2| Heweliusza 3, 10-957 Olsztyn, Poland Table of contents Foreword...........................................................................................................................................7 I. Future of the Europe of the Founding Fathers Geatano Dammacco Common principles and framework of European integration: building a new humanism..............11 Stanisław L. Stadniczeńko, Piotr Zamelski Values in Europe – the past and the future......................................................................................19 Piotr Krajewski The future of Europe and its mission at the beginning of the third millennium.............................29 Dragan Bataveljić, Milijana Danevska European Integrations and their future..........................................................................................35 Edyta Sokalska Historical Conditions and Philosophical Background of the Idea of the United Europe.................47 Małgorzata Augustyniak The doctrine of integration of Jean Monnet...................................................................................55 Ewelina Cała-Wacinkiewicz European system of human rights – considerations in the context of fragmentation of international law............................................................................................................................................65 Justyna Gileta A marriage of convenience – 40 years of the United Kingdom in the European Union.....................77 Marta Samborska, Weronika Orłowska Union proposals for regulating measures to counter the crisis......................................................87 II. The new challenges for human rights and the effectiveness of their protection Christopher Harding, Joanna Beata Banach-Gutierrez EU criminal law and the protection of human rights: the emerging interface................................101 Magdalena Sitek New challenges in the European Union sustainable tourism policy.............................................113 Kinga Flaga-Gieruszyńska, Aleksandra Klich The problem of legal exclusion on the example of access to justice in civil cases........................123 Paweł Polaczuk Political, Ethic and Moral Applications of the Human Nature Category on the Basis of the Discussion on Same-Sex Civil Partnerships.............................................................................................137 Katarzyna Badźmirowska – Masłowska Fighting against child sexual abuse and child sexual exploitation in Europe. Media and Internet perspective...................................................................................................................................147 |3 Kseniya Levashkina Debt-for-nature swaps» or international cooperation and the battle for environmental human rights............................................................................................................................................161 Marta Wójcicka Policy on the promotion of renewable energy sources in the European Union and the human right to a clean and healthy environment..............................................................................................171 Michele Russo The effectiveness of the protection of the rights of the detaines in the light of the judgement of European Court of Human Rights of 8 January 2013 on case Torreggiani and other c. Italy........185 Paulina Siejka The coercive measures and protection of human rights..............................................................191 Aleksandra Ukleja Protection of human health in cosmetics law...............................................................................201 Antonio Casoria The debate on social human rights: ethical imperatives or juridical formalization?....................209 Małgorzata Judycka Aims of education in light of human rights standards..................................................................225 Elżbieta Deja The Palestinian Factor in Europe..................................................................................................235 III. European values Tadeusz Jasudowicz European Union towards the roots of European identity.............................................................247 Bronisław Sitek The human right to respect the religious identity in the light of the media and political regulation......................................................................................................................................257 Jaime Bonet Navarro The presence of religious elements in the national symbols of the European Union countries.....265 Luigi Pruneti La multicultura come aspetto della societa` moderna...................................................................279 Tomasz Rakoczy Protection of Christian values in Polish normative acts on the means of social communication....289 Wojciech Szukalski John Paul II’s conception of the right to religious freedom in the context of the unifying Europe...........................................................................................................................................299 Agnieszka Wedeł–Domaradzka Religious issues in the decisions of the Strasbourg authorities in the context of matters relating to external borders of human life.....................................................................................................311 Magdalena Kun-Buczko The right to humanitarian assistance- challenge of the present world........................................323 4| Gabriele Reale Multiculturalism and the development of intercultural pedagogy................................................333 Ilona Biedrzycka Humanitarian missions- peaceful missions...................................................................................345 IV. Human rights in the national legal systems Nina Planojević Right to Free Consent to Participation in Clinical Researches in Serbian Law...............................355 Róbert Jáger, Anna Schneiderová The right to dignified life and welfare legislation in Slovakia during the interwar period.............371 Ivan Iurlo Lettere da Treblinka….quel ‘vecchio’ Dottore parlava di Uguaglianza e Fratellanza tra i Popoli. Janusz Korczak e i diritti umani.....................................................................................................383 Dejan Matic, Milan Palevic Employment and the right to high education in Serbia in the context of legal order in Europe....389 László Kőhalmi The Human Rights in the Criminal Procedure – The Hungarian Pattern........................................397 Maria Rosaria Piccini The right to intercultural and inter-religious upbringing in european policy.................................409 Monika Domańska Multiple discrimination as a European issue. Romani women perspective..................................421 Bożena Nowak-Chrząszczyk Dealing with gross human rights violations. The problem of compliance with fair trial standards. Case study: Gacaca in Rwanda.....................................................................................................429 Michał Indan-Pykno Changes of the Polish law and Polish case-law due to implementations of the judgements of the European Court of Human Rights in Strasbourg by Poland..........................................................445 V. Economic, social, and legal changes in the face of a changing Europe Branislav Fábry European Crisis and Legitimacy of Law.........................................................................................455 Maria Królikowska-Olczak Permissible restrictions on the freedom to provide services in European Union law...................465 Jakub J. Szczerbowski Complexity of Private Law as an Argument Against Unification. A Law and Economics Study.....473 Róbert Jáger, Michal Turošík The Act empowered to change the Constitutional Charter and constitutional laws of the Republic of Czechoslovakia and its implications for the treatment of fundamental human rights and freedoms.......................................................................................................................................479 |5 Srdjan Djordjevic, Milan Rapajic The Infuence of Populism on the Constitutionality of European countries.................................485 Wiesław Breński Problems of discrimination and inequality on a job market in the EU members states...............499 Marek Salamonowicz Academic spin-off company as a legal form of commercialising intellectual property rights......509 Magdalena Rzewuska Legal protection offered to a purchaser of movable property from an unauthorized transferor...521 Marek Dobrowolski The Consequences of the Ratification the Treaty on Stability, Coordination and Governance in the Economic and Monetary Union Treaty for the Political System of the Republic of Poland (the outline of the problem).......................................................................................................................531 Maciej Rzewuski Absolute Legacy of Copyrights.....................................................................................................541 Przemysław Zarzycki, Łukasz Zarzycki The Transdisciplinary Approach to the Study of the Cross-border Organized Crime and Smuggled Goods along the EU Eastern Border with some Reference to Smuggler Talk...............................549 Marcin Skinder, Agnieszka Brewka Polish pension system reform and international human rights in perspective (1999-2013)........557 VI. Right to information in the age of mass media Elżbieta Ura, Stanisław Pieprzny Public information sharing in the light of court case....................................................................571 Marcin Kazimierczuk, Dobrochna Ossowska-Salamonowicz The right to public information in journalistic activity..................................................................589 Paul Romaniuk The right to public information, as the basis for control of civil...................................................601 Rudolf Kasinec Movies as a social source of information about human rights.....................................................609 Paweł Błażejczyk Lobbying activities as a form of right to information. Sanction for illegal lobbying activities on basis of the Polish Lobbying Act on 7th of July 2005y in theory and practice.......................................619 Sylwia Łazarewicz, Anna Kurzyńska Effects of cultural policy of the European Union on the freedom of audiovisual services.............627 Joanna Przyjemska The right to be forgotten. Legal aspects.......................................................................................635 Daniela Čičkánova, Soňa Ondrášiková Rights of future generations in the context of right to informational self-determination............645 6| FOREWORD The European Union is currently the world’s largest association of countries, which have common institutions, legal system, economic space and freedom of movement of persons, goods and services. Various areas of the Union`s activity have their own policies, and therefore it is said: economic policy, consumer protection, environmental, energy and safety policy. One of these policies is to build a common system of values. This area of Union`s activity awakens increasing opposition from many social groups in most EU countries. We can see a distinct lack of universal acceptance for deconsecration processes, marginalisation of Christianity, dismantling of the family and redefinition of the history, ranging the ancient Greece (philosophy) and Rome (Roman law), which, after all, comprises about cultural and political identity of Europe. All of this raises the question about the beginnings of European integration after the World War II. Opportunity to ask such questions is the memory of the 50th anniversary of the Robert Schuman`s death. One of the so-called Founding Fathers died on 4th September, 1963. According to the opinion of this politician and thinker at the same time, Europe has to include economic solidarity, the modernization and improvement of production`s quality and the fusion of markets. Europe must take action for peace-building. In these assumptions, however, we notice lack of suggestions about the need to build a new ideological basis for uniting Europe. Robert Schuman, Alcide de Gasperi and Konrad Adenauer, though they were Catholics, they realized that the multiculturalism of the world does not allow to implement one and right ideology. Unfortunately, such thinking is a cause of social unrest and divisions in the international, domestic or even family field. According to the Founding Fathers, the integration should include mainly the area of economics and politics. This publication is the result of the interdisciplinary debate over the question: what`s left after acquis of the Founding Fathers in the area of human rights, system of values, economics and politics? How far social, economic and especially ideological changes are the continuation of thinking of the Founding Fathers? The authors of the papers are lawyers, but also economists, political scientists, theologians, historians and experts of European affairs. Participation in the publication took the authors from Spain, Lithuania, Poland, Russia, Serbia, Slovakia and Italy. Magdalena Sitek Gaetano Dammacco |7 8| I. Future of the Europe of the Founding Fathers |9 10 | Geatano Dammacco Univeristy of Bari Aldo Moro Common principles and framework of European integration: building a new humanism 1. Initial target of Founding Fathers and common principles of Europe Robert Schumann, proposed in his famous speech in 1951 the creation of the first European Community, the European Coal and Steel Community. Final goal was the creation of a European process of integration among nations. The integration was the necessary condition to ensure social, economic and political development in a Europe that he wanted to leave behind war and division and that be wanted to create the conditions for a peaceful coexistence. The legal instrument used was the agreement to create a European community, which is different from previous ambiguous peace treaties that had not prevented the war. In Schuman and the Founding Fathers, there was an awareness that world peace could be achieved only by “creative efforts” through the identification of new legal instruments, binding and actively converging towards common goals and projects, not limited to the territories of the States and by the logic of their powers. He needed to create a new space of cohabitation: this space was Europe, which was to be built where a “de facto solidarity”, in a federalist vision where there was no supremacy of one state to other states, but an assembly of equals1. Evidently, the European fathers did not think they exceed the state system, but no doubt lay the foundation to overcome it. They were able to design something new compared to the old order, which failed to prevent wars. Fifty years after his death, the draft Schumann (simple and humble man, but huge in stature, political and scientific) has not yet been realized and finds many obstacles. The real goal of Schuman was to create the conditions for a peaceful coexistence. The way devised to achieve the goal was to build a community, using the tool of the Convention, on the basis of concrete achievements and economic achievements. This created a turning point in European and international relations. The ambiguous or non-aggression treaties of peace were replaced by new collaboration tools. Building together a community of peace between nations and peoples was the real goal. In fact, Schuman and the Founding Fathers were aware that world peace could be achieved only with <<creative efforts>>, through the identification and the use of new legal instruments, binding in an active way, converging towards the construction of joint projects and the pursuit shared objectives. It ‘important to note that this result could be achieved only if the reference context is not limited to the territories of the States and by the logic of their powers, it was necessary to create a new space. In fact, the new framework Schuman, a pupil of Jean Monet, was Europe, which no longer understood as a land of wars and conflicts, but as a space of shared existence. However, there was also an awareness that Europe could not be built in a short time. In the statement he warned that Europe could arise with << concrete achievements which first create a de facto solidarity >>. This philosophy, so-called functional, found valuable allies in De Gasperi and Adenauer who accepted the challenge, in full support of the goals and purposes. The vision of Schuman was considered within a federalist vision to avert any possibility of supremacy of one state on other states and to create a forum of equals. You could not separate the ultimate goal of the method and strategy. The project was a single building to be carried out in stages, passing by the joint development shared the political union. | 11 2. Formal Europe and material. Need to adapt the principles to the life and cultures of different peoples of Europe The common principles at the foundation of Europe have always been oriented to the search for peace in the perspective of solidarity, promotion of the human person, the protection of the rights of freedom and equality, democracy, the rule of law. It is even today common principles that are the foundation of the European Union, as laid down in Art. 2 of the Treaty on European Union, they constitute a condition of membership of the Union. In this direction, one of the most important rules you must remember the article 7 of the Treaty on European Union (TEU) and Article 354 of the Treaty on the Functioning of the European Union (TFEU). These standards provide institutions with the means to ensure respect for the values by all Member States. Article 7 TEU provides a “prevention mechanism” in case of “risk of a serious breach” of the common values by a Member State, and a “penalty mechanism” in case of “serious and persistent breach”. The Treaty of Nice has completed this procedure and provided a preventive tool. That is, the Council of Europe (on a reasoned proposal by one third of the Member States, the European Parliament or the Commission, acting by a majority and with the assent of the European Parliament) may determine that there is a clear risk of a serious breach of the fundamental principles by a Member State and apply the appropriate recommendations. Article 354 of the Treaty on the Functioning of the European Union (TFEU) provides for the particular mode of voting in the major European institutions in the event of application of Article 7 TFEU. The journey has not been easy, both politically and legally, however, made it possible to build an integration process, albeit through a model is not defined and conditioned by historical events, even those not predictable. The Amsterdam Treaty on European Union (1997) predicted that the European Union can intervene after the event, in case of serious and persistent breach of the common values by a Member State. The Treaty of Nice (2001) added a prevention mechanism in the event that the risk of a serious breach is apparent. Some changes in the procedure were subsequently introduced by the Lisbon Treaty in 2007. From the formal point of view, the European Union has established the principles of its foundation, drawing a legal Europe, that is, an abstract model of cohesion that is proposed as a goal. However, the abstract model finds many difficulties in its application for several reasons, among which mention must be the same process of enlargement is the current economic and financial crisis. The enlargement process, reserved for European countries, is now in its sixth phase, which is currently affecting the Balkans. It has great merits, since it provides a path of adjustment to common and shared values of the European Union and promotes the establishment of the principles of liberty, democracy, respect for human rights and fundamental freedoms, the rule of law implementation. As is known, also, for EU membership must also comply with the economic and political conditions of the Copenhagen criteria and deal with the projected path in terms of association. However, if we look at what happened in the transition from the first six founding states to the current twenty-eight, it should be noted that the process of integration between the different social systems, ie between society for different reasons (historical, political, cultural, economic , religious) are structurally different. The policy choice that is the basis of the enlargement process is both a challenge, that is to cohabit differences (different countries, different peoples, different cultures, different religions) in a plural perspective in which the cultures that must be integrated . This means that the characteristics of the large EU must change to give more space to the identity, the differences, the democratic process, respect for the human person, transparency, the rule of law, non-discrimination, respect for the principle of equality (between people, between genres, between states, between nations, between religions, between companies). As a result, the need for institutional and structural reforms, suitable to ensure peace and prosperity in Europe conceived as a set of plurality. This involves risk, but you need to give answers be able to overcome the crisis: the enlargement process, perhaps, may be 12 | an appropriate response to the crisis. The economic and financial crisis has expanded the fracture between Europe of rules and and Europe living, between “legal Europe” and “ material Europe”. We must not forget that the global economic crisis is not only economic crisis, the market and finance. As he said Camdessus, it has <<multiple crisis>>: it is definitely financial, << but it makes system with at least six other crisis: poverty in the third world, the climate crisis, the food crisis, the energy crisis, the crisis of multilateralism and cultural crisis, in all seven crises >>. Also, if we look at the ways her, we can say that its severity is accentuated by the fact that the first crisis of globalization. This complexity has a strong influence on people, behavior and adherence to the principles and puts a strain on the strength of common values. In 2010, the Council of Europe adopted the so-called Stockholm Programme, outlining the priorities of the European Union (EU) for the area of freedom, security and justice for the period 2010-2014, taking into account the results of previous programs (those the 1999 Tampere and Hague 2004). Europe chose to accept the future challenges with actions focused on the interests and needs of citizens, so that Europe’s security was guaranteed by the respect for human rights and fundamental freedoms of citizens. Among the priorities of the Stockholm Programme, which should characterize Europe, there are the following. a) the construction of a Europe of rights, in which European citizenship must become a tangible reality and should give its citizens the rights and freedoms enshrined in the Charter of Fundamental Rights of the European Union and the European Convention for the Protection of human Rights and fundamental Freedoms. The Europe of rights must be an area in which citizens and their families can fully exercise the right to freedom of movement; diversity is respected and the most vulnerable (children, minorities such as the Roma, victims of violence, the elderly, etc..) are protected and racism and xenophobia are fought, are protected the rights of suspected and accused persons in criminal proceedings. In this perspective, European citizenship becomes very important because it promotes the participation of citizens in the democratic life of the Union through the transparency of the decision-making process, access to documents and good administration, and also guarantees citizens the right to protection by the consular authorities outside the EU. b) the commitment to build a Europe of justice (a European judicial area) in which allow all citizens to assert their rights anywhere in Union, by facilitating their access to justice. In this perspective, the EU institutions should ensure coherence between the Union and the international legal system, in order to be able to interact with third countries in a secure legal environment. A key point is the cooperation between the judicial authorities and the mutual recognition of judgments, strengthening mutual trust. c) an indication of strengthening security through a strategy to fight crime and terrorism. Among the enforcement actions are indicated the fight against human trafficking, abuse and sexual exploitation of children and child pornography, cyber crime, economic crime, corruption, counterfeiting and piracy, drug trafficking . In the fight against transnational crime internal security and external security are inseparable. Therefore, account must be taken of the external security strategy and strengthened EU cooperation with third countries. d) The free access to Europe for non-EU citizens, through an integrated border management and to ensure the safety of European citizens. The strengthening of border controls is needed to combat illegal immigration and cross-border crime. At the same time must be granted access to people in need of international protection and groups who are in situations of serious difficulties. The Schengen Information System (SIS II, second generation) and the Information System for the granting of visas (VIS) is the key to a more effective system of border controls, for this they must become fully operational. It should also develop a common policy on visas, strengthening regional consular cooperation. | 13 e) The strengthening of the Europe of solidarity, developing a comprehensive and flexible migration policy, focusing on solidarity and responsibility to address the needs of Member States and migrants. Solidarity must aim to build a more proactive policy for the protection of the rights of persons, be they citizens of the Union and non-EU. It must draw a new movement of “brains”, a government policy of migration from the south of the word, strengthening dialogue and partnerships with third countries (of origin and transit) and identifying lines to encourage a return to their homeland and to combat illegal immigration, which feeds crime. The establishment of a Common European Asylum System (CEAS), which was expected by 2012, had the aim of supporting the situations of escape from the wars, repression and violence. The Stockholm Programme, which are briefly explained in essential points, moving from the perspective of a globalized world, which required changes. However, it could not predict the sudden changes that have been made in the Mediterranean, especially in the south bank, and most vulnerable in the territories of the Union. These changes have slowed the implementation of the program and have put more emphasis on the gap between “Legal Europe” and “Living Europe”. In the face of epochal events, the European “political” and institutions have proved, in general, are not prepared to support the debate on current issues and hot topics on the challenges of the times, on the urgent needs of people and to find suitable solutions to problems. The Stockholm program was in line with the will of the Founding Fathers to gradually build a political Europe. We must continue on the road marked, but bringing the necessary adjustments even if expensive. The crisis has significantly reduced the program, but it has created a Europe alive, that is, a Europe of the people who in the face of new problems look alike to find the rules of coexistence of peace and progress. It opens a new scenario until a few years ago not imagined. This new and complex geopolitical scenario (ie, cultural, ethical, religious, economic and political) is the place in which Europe now faces. It is the place of Europe material, which exists alongside the formal Europe. Europe has built, over time, begin with the first European community in the last century, a formal legal system inspired by the values and principles which inspire a supreme legal architecture, which was thought to be suitable for solving the complex legal issues of the countries members, working towards a common goal. But now the story is drawing a new socio-legal order, which calls for amendments to the initial draft. In this “material” scenario, Europe plays its future and the ability to adapt the rules to the complex reality to the needs of the person. Often, the size of living creates a disconnect between the written principles and their application. Often, the European rules are not applied or are inadequately enforced in a way that violates the common spirit. In this way you create traumatic situations and conflicting. But, just in this new situation we must have the ability to continue in the spirit of the Founding Fathers, and in that spirit, we must seek the concrete solutions for the good of the human person. 3. The process of integration as a necessary path of encounter between different cultures and religions In 2003 the President of the European Commission formed the so-called “Group of Wise Persons” to rethink the development of the euro-Mediterranean relations and boost mutual dialogue between cultures. The experts (philosophers, men of culture, expert and consultants) had to draw up proposals to relaunch the Euro-Mediterranean partnership, as the Barcelona Process had not given great results and there was a new framework of the neighborhood policy. The group observed that the challenges posed by globalization require responses in terms of democracy, transparency, dialogue between cultures and religions. In this perspective, you had to start an integration policy designed to directly involve citizens and civil society. The socio-political context of the Mediterranean presents misunderstandings in relationships, conflict, discrimination and 14 | marginalization. For a policy of peace and cooperation between the different countries in the area you need to make the dialogue between cultures and religions. The process of integration of cultures and people must have a clear perspective and a clear goal, based on the fundamental values on which rests the European Union itself. You have to gradually build a bond (political, social, economic, religious) between the States and peoples, respecting differences. Schuman thought that integration was aimed at the unification of the states and peoples of Europe. Through a policy of small steps and achievements it could be a supranational organization open to al] European States. But today the scenario has changed considerably: it’s changed the geopolitics of Europe and are necessary relations with neighboring countries, especially with those of the Mediterranean. Therefore, also changed the ultimate goal of integration, the process, the strategy. We can identify the important stages of the integration process2. It began in the seventies of the last century with the expansion to reinforce the framework of Community. In the eighties it was modified the Treaty of Rome and was extended the scope of the EC (scientific and technological research, the environment, economic and social cohesion) inaugurating the cohesion policies. In the nineties started an ambitious new goal of achieving monetary union and Europe was extended to the countries of Eastern Europe. It changed the European structure was designed and the European Union, treaty-based and on three pillars (Community level, common foreign and security policy, judicial cooperation). According to this framework, the integration is based on the Community method, which allows to improve the weaknesses of intergovernmental cooperation. But this is no longer the sufficient and is not entirely appropriate to ensure an adequate response to new situations, such as migration, globalization of the economic crisis, the spread minimalist approach, the revolutionary changes of the Mediterranean. Until now, the integration process has been characterized by a vision that sees Europe as a supranational entity and dominant place in which to enter, even when accepting the rules were not fully compatible with the cultural characteristics of the requesting States. Europe has built up over time its own identity, which basically consists in finding a balance between the sun of the characters of individual states and higher values, common and shared. Everything was based on the premise of a cultural context substantially homogeneous, substantially on common religious values derived from Christianity, on the convenience of entering a system that guaranteed the development and well-being. Today we must think of the new migrant communities as to new forms of minorities, asking for help and the right to a dignified existence of peace and progress3. The issue of social and political minorities cannot be resolved with reference to the rules of entry and those for the general protection of the rights and fundamental freedoms, but they are required new legislation and a new common strategy. It is necessary that the new legal architecture of the interventions is based on the basis of the equal dignity of people, cultures, religions, and different communities and states. 4. The need for a new humanism In politics and contemporary history coexist contradictory events. There is a need for peace but grow the places of war, there is a need to make more concrete and effective protection of the human person but increase the violations of fundamental rights, there is a need to identify effective forms of protection of the person but there is increased threats to human dignity and existence. However, precisely these contradictions, that the crisis in which we live, they grow the need for a new humanism, that is, the need to put at the center of every human action the person and his rights. Security policies and partnership are no longer sufficient and show their limits, although they | 15 have obtained good results in the past with some countries (such as Morocco, Tunisia and Jordan). The Neighbourhood Policy and Partnership, based on Title V of the Treaty on European Union Policy on Foreign and Security Policy (CFSP), aims to contribute to increased stability, security and prosperity in the EU and neighboring countries. In particular, it offers in the beneficiary countries the possibility of an increasingly close relationship with the EU also to prevent further divisions and fractures policies to promote growth and also political, economic, cultural and security. Today, however, this policy is no longer sufficient and must find a new strategy to share common values such as democracy, the rule of law, good governance, respect for human rights. Without the sharing of these values and without the direct involvement and recognition of equal dignity between people, nations, persons, there is no security people. We must move forward to respond to deeper causes of the crisis, through a key ethical and humanistic focused on the human factor. We need a new humanism to enhance the human person, respecting their dignity and cultural and religious differences. the new humanism implies a fruitful integration of the differences, by starting an intercultural process. The challenge of the new humanism is in custody and the effective protection of the human person, of its rights, in its various social, cultural, religious expressions. The new humanism in the relations between peoples and States should create a relationship of trust to affirm the equal dignity and to eliminate conflicts and discrimination. This means to foster a culture of freedom and responsibility in creating processes that produce quality goods, that is, everything that is good for people’s lives and the environment. In this effort, religions can play a “civilian” mission, which is to defend the rights of the human person and peaceful coexistence for human progress and well-being. The commitment of religion, therefore, is not only aimed at the protection of their faithful, but also to the protection of every person, as the bearer of universal and inalienable rights. However, the new humanism should not be considered only as a current of thought or just a cultural element4. is important and necessary that there is a profound conversion of a cultural way of thinking and acting of nations, people, governments, but this is not enough the state of things. The new humanism must also be recognized as an essential element of the basis of the common goods, seen as centers of imputation and legal source of rights and duties. A common good from a legal point of view must be understood as that resource, either tangible or intangible, which has a significance and collective target, because they aim to satisfy collective interests and because it has its source in the community. After all, just look at some judgments of the courts to realize the importance of the trend line in the indicated direction. For example, according to the Italian Court of Cassazione5, the common good is linked to the realization of fundamental rights. And according to a decision of the U.S. Federal Court6, the gene is not private property, but it affects society because it is an intangible asset that has a definition of a general nature. Obviously, I do not want to introduce a reflection on the concept of the common good, but I want to emphasize the fact that there is a close relationship between a conception of humanism and common goods, because humanism implies a certain conception of law and the right centered on the value of the human person. In this sense, humanism must also be legal. The New Humanism born from the bringing general reflection on the centrality of man in relation to the universal context and the consequent need to take any necessary instrument (legal, political, cultural, etc.) to ensure the protection of his fundamental rights more effectively in Europe7 . This also implies the need to revise the historical and political analysis, the modalities of relations between peoples and nations, governance in different sectors, different architectures national and international legal, the rules of the economy and a new strategy on development and subsidiarity8 . The new humanism, therefore, requires a significant shift in thinking and life. It also requires many actors and institutions engage in this direction: the European institutions and religions can contribute to achieve the objective of a new humanism. We must think of the 16 | new humanism as the road to facilitate European integration and integration of differences (those from the peoples, the cultures, those of migrants). The new multicultural dimension in the territories of the Union requires the search for shared legal rules, which define a sort of new feature of the law, more attentive to the cultural integration and the construction of a legal architecture capable of governing a “planetary citizenship”, which lives locally its size9. We cannot forget that humanism is the common heritage of all religions10, who see it as a necessary mediation for spreading religious faith and the salvation of man. But, it is also the cultural heritage of every people need to overcome the mistrust and divisions dangerous. Although in a different perspective, the point of view of religions or cultures, including the secular culture, they have the same point of convergence: the human person. In fact, for the secular culture, humanism is a way of understanding life, which recognizes a natural primacy to the human being as aware and active member of civil society. Is a social humanism, which views the history of man as a story of liberation, so different from the religious conception. From the point of view of religion (especially of the revealed religions), having overcome the conflicts which have come in earlier centuries, humanism considers the human person a divine creature, created by God, which reflects in some way the image, and redeemed for free from the divine will, which made him free from his original sin. Christian humanism, especially after the Second Vatican Council, was created from a revision of the relationship between faith and culture, as is indicated by the Papal Magisterium (from Paul VI to John Paul II to Benedict XVI and Francis11), is deeply centered on the human person, his rights, his dignity. (Endnotes) 1 To compare, among the more recent writings, Alan MILWARD, The European rescue of the Nation State, Routledge, 2000, a challenging interpretation of the history of the western European state and European integration. About the personality of Schuman and the depth of his choices to build peace, to read the report of first president of the european parliament (19581960), HEINZ-HERMANN ELTING-DE LABARRE, Da una convinzione cristiana all’unione europea Robert Schuman, in Domuni – Université Dominicaine – Bibliothèque en ligne Europe, http://biblio.domuni.org - © Heinz-Hermann ELTING – 2006. About the founding Fathers of Europe: Gérard BOSSUAT, Les fondateurs de l’Europe unie, Paris, Belin-Sup, 1994, (réédition 2001); Claudio Giulio ANTA, Padri dell’Europa. Sette brevi ritratti, Roma, Bruno Mondadori, 2005. 2 Regard to some problems between enlargement and democratic process see Liborio MATTINA, (by) La sfida dell’allargamento. l’Unione europea e la democratizzazione dell’Europa centro-orientale. Ed. Il Mulino, 2004. Regarding the changes verified on the integration process see Jan NIESSEN, Thomas HUDDLESTON, Manuale sull’integrazione, UE, 2010, www.integration.eu. 3 As some issues related to migrants, among others, see Giovanna CAMPANI,. Migranti Nel Mondo Globale, in Segni. Strumenti interculturali, Rome, Sinnos, 2007. The European Union has addressed the issue of migrants in several documents (such as the Council Directive 2003/86/ EC of 22 September 2002 relating to family reunification and Council Directive 2003/109/EC of 25 November 2003 on the status of third-country nationals who are long-term residents. There are also interesting sentences on the issue, such as the Parliament Judgment c. Council of 26 June 2006 and the Judgment v. Chakroun. Minister van Zaken Buitenlandse of 4 March 2010). However, we must start from this state of the art common to assume new responsibilities in Europe in the face of change. See also Giovanna DALLARI, I diritti del cittadino immigrato, in Salute e Territorio: rivista bimestrale di politica socio-sanitaria, n. 169 (lug.-ago. 2008) pp. 204-254. | 17 4 For example you can refer to the current of thought, founded by Mario Rodríguez Cobos, indicating the new humanism in six key points, which can be indicated as follows: 1. recognize the human being centrally located, as value and worry 2. support the equality of all human beings 3. accept and value the personal and cultural diversity 4. seek to develop knowledge beyond what is accepted as absolute truth 5. sostienere the freedom to profess any ideas and beliefs 6. renounce violence. 5 In its judgment no. 3665 of 2011 the Joint Sections of the Supreme Court have established relationship with the fundamental rights, with particular reference to the rights of the environment and the constitutional importance of the environment itself. 6 In the case of Myriad Genetics, the Southern District of New York, by decision of 29 March 2010, ruled that human genes can not be appropriated exclusively, even through the provisions of intellectual property, and denied the opportunity to obtain industrial patent. 7 See Giuliano AMATO, Elena PACIOTTI, Verso L’Europa Dei Diritti: Lo Spazio Europeo di Libertà, Sicurezza e Giustizia, Quaderni Di Astrid, Bologna, Il mulino, 2005. 8 See Quadrio CURZIO, Sussidiarietà e sviluppo. Paradigmi per l’Europa e per l’Italia, Vita e Pensiero, Milano, 2002, in which the author insists on the concepts of subsidiarity and solidarity, and rereads the relationship between the Italian economic situation and institutional and the European Union 9 Mario RICCA, Culture Interdette.Modernità, Migrationi, diritto interculturale, Torino, Bollati Boringhieri, 2013. The author’s research, engaged for some time in this issue, poses the unavoidable problem of the coexistence of different cultures and the need to find a reasonable legal response to the discipline of their integration, through a legal system and one that can be called “cultural rights”, in which you explore the principles and declines purposes. 10 See Daisaku IKEDA, Un nuovo umanesimo.Conferenze in celebri atenei di tutto il mondo, 2013, Esperia Edizioni. The volume contains the lectures the author held at major universities in the world from 1975 to 1995. It is characterized by the fact that the author is intent always manages to capture the commonalities between different cultures and religions, while exalting the characteristics every people. 11 Particularly interesting is the essay Fede e Cultura. Antologia di testi del Magistero Pontificio da Leone XIII a Giovanni Paolo II edited by Pontificio Consiglio della Cultura, 2003, Libreria Editrice Vaticana. 18 | Stanisław L. Stadniczeńko Opole University Piotr Zamelski Opole University of Technology [email protected] Values in Europe – the past and the future Abstract Systems of values and connected with them philosophical ideas make a great influence on European law and politics, especially on human rights. This process should be the source of interest in historical and contemporary axiology. This is the reason, that the purpose of the article is to show the selected problems of European values in the past and in the future. The object of research is an evolution of understanding of values in Europe, especially in 20th century, in connection with significant events and directions of social progressive processes. The article consists of considerations about legal, social and philosophical literature, as well as, the sources of international human rights law. These analyses are the way to enunciate conclusions and demands for right and spot-on system of values. Keywords: Christianity, philosophy, personalism, politics, human rights 1. Introduction Since time immemorial, the problem of values has been the object of intellectual exploration and hence also the object of agreement and disagreement, affirmation and deprecation, peace and conflicts, development and regression. The notion of “values” is understood as the moral state of an individual or society, which is, or at least should be, rationally assessed as useful, proper, and practice-worthy. This way, a value should become a phenomenon commonly respected in individual and social life. Every value, however rooted in universal and timeless postulates, bears fruit in the form of real good only in specific historical and cultural conditions, which affect the mode of its implementation in the life of a society. Furthermore, regardless of the recognised origin of the value, which is often the object of controversy due to different religious and anthropological approaches, the objective and undisputed plane of agreement, and also the first test for the postulated values, should be the constant and common nature of the human being. The value system is a fundamental, but too rarely-called-upon or contemplated, context of conceptualisation and realisation of the freedom, rights, and responsibilities of the human being. Due to this, the object of the contemplations assumed in this study is the topic of values in Europe in the depictions of history, postulates, and prognostics, corresponding to the temporal dimensions of the past and the future. Naturally, there is also no way to avoid touching upon the grand problem of the present axiological condition of the European continent, which is necessary in the subject of the contemplations. The complex and extensive nature of the issue results in the need to limit the contemplations to only those selected aspects which have been broached in the study. The first issue discussed is the historical depiction of European values, followed by the phenomenon of relativism as a threat to values, the problem of the criteria for assessing axiological concepts in the conditions of post-modernism, and the meaning of human dignity and common good as values constituting an opportunity for the survival of contemporary Europe. The study concludes with a summary of these contemplations. | 19 2. The historical depiction of European values The concept of European values should be understood as the historical ideas and attitudes adopted and developed in societies geographically considered as part of the European continent. It is the traditional values, which were the foundations of the culture and sense of identity of the European nations, which allow us to speak of “Europeanness” as a humanistic and ideological concept crossing the initial confines of the geographical locations of individual nations. Therefore, the need to care for the moral and axiological condition of European communities seems obvious, since the negation of the significance of values would reduce “Europeanness” to a strictly geographical concept for a long time, if not for ever. The first political, cultural, and aesthetic models of European culture were formed in ancient times in the basin of the Mediterranean Sea. The legal and system solutions of the ancient Greek polis and the Roman Empire, which drew on the accomplishments and experiences of the nations of Mesopotamia, Egypt, Persia, and Arabia, formed the foundations of mediaeval and modern political ideas. The works of Plato and Aristotle inspired the Christian thinkers, particularly St. Augustine and St. Thomas Aquinas, thanks to which they continue to influence the existing intellectual trends, which include mainly the philosophy of the Catholic Church, neo-Thomism, and personalism (Sadowski, M. [see:] Kundera E. & Maciejewski, M., 2006, p. 17-19, 290-292, 461463; Burgos, J. M., 2010; Bartnik, C. S., 1995). The rejection of certain ancient models such as slavery, the sexual abuse of children, the lack of legal protection from the actions of the Roman patres familias, etc. should be clearly approved. Wise selection of the heritage of ancient Europe required the acceptance of the new concept of the human understood as a person. This was inspired by Christianisation, which turned out to be a durable binder of the accomplishments of the ancient era, able to spread them much more effectively than the forces of the Roman legions. The fact that Christianity was born from the Jewish tradition to spread in Europe and around the world through the apostolic and missionary activity initiated by St. Peter and St. Paul of Tarsus is important. For this reason, discussions on the foundations of European culture cannot omit the philosophy and culture of the Israeli nation, which has been finding shelter in the European nations from Islamic domination in Palestine for centuries. Contemporary attempts to define, catalogue, or exemplify European values are sometimes marked with various content-related and methodological errors. During the development of the European philosophical thought, particularly since the 18th Century, there have been times of breaking communication with the philosophical tradition, or even opposition to established axioms and paradigms. As rightly noted by E. Mounier, every new force impulsively enters its reality and begins its existence from conflict with its surroundings (Ibid, 1968, p. 62). It was no different in the case of the theological and political justifications of the Reformation, the enlightenment postulates inspiring the French Revolution, and the two extreme models of the 19th Century economic thought in the form of liberal laissez-faire and its competitor Marxism, the sudden social and political transformations inspired by the philosophy of Karl Marx, or the criminal totalitarian systems existing in the first half of the 20th Century. Currently, there are also contradicting extremes in Europe in the form of permissive and relativistic postmodernism and the active operations of terrorist groups motivated by Islamic fundamentalism. The complex historical processes continue to produce diverse and often contradicting opinions of European values to this day. It should be emphasised that the social divisions associated with the area of values are becoming deeper and more dangerous. This problem seems particularly significant in the context of the formation of the basic system regulations of states and international organisations, and their associated way of understanding and realising human freedom, rights, and responsibilities. 3. Axiological relativism as a threat to values The function of values in a society can be compared to a backbone, which directs its activities, and particularly influences the form of the legal system. It is difficult to speak of the identity of societies which have no internal agreement on an issue as fundamental as the values serving as the 20 | foundation of their existence and development. Of course, there is no society in which everyone would accept one collective catalogue of values, however, the problems observed in the Member States of the European Union (the EU) during the editing of the content of the Constitutional Treaty or the Lisbon Treaty, showed the depth of the “axiological alienation” of European societies. During the negotiations on the preamble text, defining a clear catalogue of values professed by the authorised representatives of the EU States, the opinion of which seems representative, as they hold a democratic mandate, proved generally difficult. Paradoxically, the establishment of a common axiological core took place not through the affirmation of tested sources of models and attitudes, but rather the elimination of the historically-sanctioned values controversial to certain participants in the discourse. However, the following question remains- does the reduction of the axiological concepts and content to possibly general slogans subject to political negotiations not lead to the creation of a typically positivistic legal system, which is cautioned against by E.-W. Böckenförde? Böckenförde claims that in such a legal order, “the axiological justification of law bases the law on an unstable element, a temporary axiological consensus, which in an axiological society is subject to frequent transformations and in itself does not provide a guarantee of rightness,” (Ibid., 1994, p. 147). Unfortunately, historical experiences provide numerous examples of individual and collective suffering caused by basing the law not on objective values but on the subjective will of the legislator (see: Radbruch, G. Ustawowe bezprawie i ponadustawowe prawo (Statutory Lawlessness and the Law Above Statutes) [see:] Ibid., 2009, p. 244-254). It seems that the first cause of the difficulty in the establishment of a catalogue of values common to European communities is the increasingly popular attitude of relativism. It can be assumed that the phrase “I know that I know nothing”, which is (inaccurately) attributed to Socrates, is more common and relevant today than at any previous time. Of course, the attitude of relativism has always functioned in social and philosophical discourse, usually remaining on the fringes of the major intellectual trends. However, with some generalisation, it can be claimed that ancient and mediaeval legal terminology sanctioned the commonly-accepted meaning of the standards subject to the acceptance or rejection of the addressees, which was usually associated with specific concentrated or dispersed sanctions. For example, the general language of the mediaeval privileges granted by the Polish and English monarchs, brief in content and usually devoid of legal definitions, seems completely inapplicable in today’s legislation. The almost certainly existing terminological ambiguities would be used to achieve specific interpretative objectives. However, these regulations fulfilled their role in their times, furthermore, they were able to initiate new system solutions,becoming the early models of human rights (Stadniczeńko, S. L. Prawzory praw człowieka w Polsce (Early models of human rights in Poland) [see] Sadowski, P., Kozerska, E. & Szymański, A., 2007, p. 9 n.). The development of the individualistic concept of social life was accompanied by the development of the tendency to apply subjective interpretation to social standards, including the standards of the current law. In modern times, the phenomenon of value relativisation is particularly visible in the political postulates of the Enlightenment, which was a time of the Christian redefinition of the values of freedom, equality, and brotherhood. These slogans are known mainly from the manifests of the French Revolution, which on the one hand popularised them, and on the other “overtook them, simplified, provided with a laic nature and directed against the Church,” (Mazurek, F. J., 1999, p. 27). Today, these events can be interpreted as the foreboding of the later actions aimed at providing human-rights catalogues with new content, an example of which was the dispute over the interpretation of the records of the Charter of Fundamental Rights of the European Union. This is a good time to refer to the warning of C. Mik, that “you cannot supplement a stabilised human rights system with content, which (…) assume its redefinition, in practice its weakening or even destruction,” (Mik. C., 1992, p. 229). 4. The criteria for the evaluation of values in the conditions of post-modernism Considering the doubts, disputes, and controversies associated with the European system of values, it seems necessary to assume, or at least propose, clear criteria for evaluating individual social, ethical, legal and system postulates. There is no way to effectively realise the freedom, | 21 rights and responsibilities of a human being if they are subject to an interpretation which depends on competitive and irreconcilable values. There is no difference whether the axiological conflict is direct, i.e. based on rivalry among the supporters of diverse values, or indirect, i.e. concerning the precision of the content of the generally-expressed concepts (or even providing them with an entirely new meaning). The protection of the right to respect family life in a situation where the legal order is based on the rule of assistance will appear different from the reality of the so-called state of prosperity, which focuses its activity on social benefits. Similarly, freedom perceived as the limitation of the state’s intervention in the operations of entrepreneurs affects the realisation of labour laws much differently than in the case of perceiving freedom as the need to provide everyone with the ability to effectively exercise their rights. Even with the few examples provided, the significance of the criteria which serve as the basis for the evaluation, hierarchisation, and selection of the values referred to in the legal and social discourse is readily seen. As previously noted, the main obstacle to the social perception of values, which should be naturally expressed and for a sense of community in the members of the society in the conditions of the postmodern society, is relativism, which is spreading along with globalisation. Scepticism towards the possibility of knowing the truth seems particularly dangerous to the social order, since it opens the way to the arbitrary evaluation of human behaviour, exposed to ideological inspiration or even the justification of irregularities with the redefinition of values which have an established philosophical tradition. E. Mounier states that relativism, “led to the limits of its own logic, would ultimately dispose of history itself, since how can you talk of history when there is even no continuity at all?” (Ibid., 1968, p. 85). The question is, in the face of the various difficulties, is there currently even a relatively common and uniform sense of values, and if so, on what criteria should it be based? At this time, it should be clearly noted that the values establishing the foundations of the political and legal systems of the State, and also all attempts to interpret them, must remain in direct reference to two receptors of natural law held by a mature and fully-responsible human, i.e. reason and free will. The values and the legal regulations they inspire must remain in harmony with the requirements of reason, which should correctly and reliably recognise human nature and the special place of the human being in the world. The formulation of intellectual justifications for ideologies, which are often promoted under the banners of innovation or expert knowledge, does not mean that they are compliant with the requirements of reason, since reason must focus on the human being, not personal abilities, which was done by the “enlightenment” trends. In turn, the second of the attributes of the human being, free will, demands the bringing of every individual and the whole of society up to the conscious and consequent selection of values. Mature upbringing is equal to persuading the individual to obey the orders of reason though verbal influence and one’s own example. The undertaking of upbringing activity excludes both leaving humans to fend for themselves and imposing certain models on them, even if they are correct, if they omit human subjectivity, thus being difficult to internalise. After all, upbringing is the “meeting of people, the master and the student, which opens the horizon of values, regardless of the ideology or the social system,” (Gadacz, T. Wychowanie jako spotkanie osób (Upbringing as the meeting of people) [in:] Adamski, F., 1993, quoted after: Stadniczeńko S. L., 1997, p. 18). It should be clearly emphasised that state government is not able to dodge the undertaking of the upbringing function, which takes place (even unknowingly) through the establishment of the law, the behaviour of its own officers, or effectiveness in the realisation of objectives. Only the consideration of reason and freedom of human beings allows us to treat them as people with a special dignity, awareness, and certainty that they are an end in themselves. “To recognise human beings means to place them above everything originating from them in the visible world. All human works and products, crystallised in civilisations and cultures, only create a world of means, which the human uses in the drive towards the appropriate target. The human does not live for technology, civilisation, or even culture; the human uses assistance of these things constantly preserving his or her own purpose. This purpose is closely associated with the truth, since the human is a reasonable being, and with good as the proper object of free will,” (Wojtyła, K., 2000, p. 418). The economic vision currently dominating Europe, which attempts to combine neoliberal solutions with so-called social security in a peculiar manner, seems very distant from 22 | the recalled standard. The main obstacles of living in today’s Europe seem to be based on the relatively easy access to prosperity, which the free-market media present as the only objective of human existence, with the simultaneous uncertainty of its sustainability. Among other thing, this is visible in the legal solutions, which admit flexible employment, the need for constant adaptation to market requirements and competing with others, the expectation of placing professional life in front of family life, etc. In the opinion of R. Sennett, the disappearance of traditional social standards and cultural traditions results from this very life “in a world of indifference and superficial cooperation, weak bonds, and exchangeable relations (...)” characteristic of contemporary capitalism. In turn, the flexibility of living conditions “entails a character structure oriented towards that which is superficial, elusive, and fragmentary,” (Sennet, R., 2006, quoted from Elliot, A., 2011, p. 372). The natural consequence of this state of affairs seems to be the attitude of relativism, which additionally distances society from emotional and mental stabilisation. Therefore, it is possible to risk the statement that the residents of contemporary Europe have become the manifestation of their own economic and political system, which today cannot be said to treat the human being as an end in themselves. In essence, “dilemmas are the daily bread of contemporary men and women who are trying to construct a generally-safe mental platform, going from job to job, from contract to contract, from network to network,” notes A. Elliot. “This is the origin of the contemporary dilemma of how to stay flexible enough to survive in the conditions of personal and cultural drift, simultaneously avoiding loss of identity.” (Elliot, A., 2011, p. 375). In this situation, the stable point of reference appears to be the two fundamental and proven European values, which – if accepted with reason and free will are able to properly shape individual and social development, human dignity and the common good. 5. The dignity of the human being and the common good as an opportunity for Europe The philosophical tradition has noted the peculiar nature of humans, which has manifested itself in the way of existence, action, and development appropriate only to itself since the times of Plato and Aristotle. From the very beginning of his existence “man has existed simultaneously in two dimensions - individual and collective. Neither of these dimensions can be diminished, or even omitted, since there would be no truly human collective without people and there would be no truly human beings without societies,” (Bartnik, C. S., 1995, 191). Both the dimensions of humanity correspond to specific values, which are the dignity of the human individual and common good. Personal dignity undoubtedly presents itself as a value immanently written into the structure of the human being, in relation to whom it is a natural, common, inborn, inalienable, and inviolable attribute (Piechowiak, M., 1999, p. 80). Personal dignity is a certain reality, which cannot be encompassed in an unambiguous legal definition. However, if we assume that the law must be just, this must be taken into consideration during both the establishment and application of the law (i.e. its interpretation). J. Zajadło rightly assumes that “the relation between the law and human dignity turned out to be immanent enough to prevent the automatic elimination of the latter concept from normative texts, despite the interpretative difficulties appearing in the background of its undefined and sui generis axiomatic nature,” (Zajadło, J., 1989, p. 112). The preamble to “The Vienna Declaration and Programme of Action” (New York, June 1993) contains the recognition and confirmation that “all human rights derive from the dignity and the worth inherent in the human person” (Piechowiak, M. Godność jako fundament powinności prawa wobec człowieka (Dignity as the Foundation of the Legal Obligation Towards Man) [see:] Morciniec, P. & Stadniczeńko, S. L., 2004, p. 39). We should follow M. Piechowiak in stressing that “the recognition of dignity as the source of human rights has also found expression in the document defining the rules of creating the instruments of human rights protection”. Resolution 41/120 of the UN General Assembly of 4th December 1986 «Setting International Standards in the field of Human Rights» states that the new instruments in the area of human rights should «be fundamental and derive from the inborn dignity and value of the human being.» In Europe, the Statute of the European Council of 1949 and the Convention for the Protection of Human Rights and Fundamental Freedoms (European Convention of Human Rights) of 1950, and the European Social Charter | 23 of 1961, to mention the two basic treaties protecting human rights, are all silent on the subject of dignity. Nevertheless, this category is tending to return and has also been newly acknowledged in Europe in the Charter of Fundamental Rights of the European Union of 2000, which discusses dignity in both the preamble and the first article (…). Dignity as a source of rights is discussed in the Draft Charter attached to the final draft of the Charter; in relation to Art. 1, we can read that «Human dignity is not just a human right in itself, but constitutes a real foundation for basic rights. This rule was sanctified in the preamble of the Universal Declaration of Human Rights «Whereas recognition of the inherent dignity and of the equal and inalienable rights of all members of the human family is the foundation of freedom, justice, and peace in the world»»’ (Ibid.). While the editors of the Universal Declaration of Human Rights recognised the said relation, we are still far from the full realisation of the standards indicated within. In turn, the common good is indicated as the consequence of the social nature of man. The concept of “the common good” is understood as the various conditions necessary for personal development, which are the objective of every society and the reason of its existence (Stadniczeńko, S. L., 2000, p. 81). With this, society, and particularly authority, which puts any value above human dignity, destroys the common good, which it should serve by nature. The model understanding should have these conditions allied with human freedoms, rights, and responsibilities; however, in the face of the dominating position of relativism, there is a need for in-depth reflection on the correctness of the submitted postulates, including drafts of legal regulations. At this time, it should be clearly emphasised that the true good of the whole of society and every person living within it can be formed from only such living conditions which guarantee integral development, i.e. possible and right to accept as the real objective of every personal pursuit (Krąpiec, M. A., 1998, p. 80). As noted by M. Piechowiak, “a human right is not something, which, although developing a certain significant aspect of human existence, simultaneously threatens the development of the being as a whole,” (Piechowiak, M., 1999, p. 124). The realisation of such a standard would result in the fragmentation of the nature of the human being, so it would not result from human dignity and would certainly not serve to build the common good. The EU legal system does not utilise the expressis verbis concept of the common good (see Wołpiuk, W. J. The common good in the light of Poland’s participation in the European Union [see:] Ibid., 2008, p. 71-102). On one hand, this situation creates a serious loss to the axiology of European law; on the other, however, it protects the value in question from attempts at redefinition. Due to this, it is almost certain that the reference to the common good in the process of explaining the law, and also through the formation of de lege ferenda postulates, would allow the understanding of the dignity of the human being and his/her freedoms, rights, and responsibilities in a way free from ideological deformations. The value of the common good also remains underappreciated in the Polish legal and system order, although the legislator refers to it in various passages of the Constitution of the Republic of Poland, and in particular associates the common good with the Polish State (Trzciński, J. Polska dobrem wspólnym wszystkich obywateli (The Republic of Poland as the Common Good of All Citizens) [see:] Góral, J., Hauser, R. & Trzciński, J., 2005, p. 452). However, there is no way to divide both values without exposing the axiological foundation of the state and society, and this truth should constitute Poland’s contribution to European constitutionalism. Unfortunately, the contemporary discussion on Values in Europe presents a clash of a moral revolution devoid of reflection with pessimistic fear for the future of all nations. This situation results mainly from the loss of the proper humanist perspective, in which the established law is based on the natural harmony between the dignity of the human being and the common good, not on extremely-simplified theses on the need to protect individual freedom from society and constant competition in a world devoid of mutual love and solidarity. You cannot impose on any society a legal culture torn from the heritage of generations and inconsistent with the living needs of humans. This would lead to an anomia damaging to social life, which would either be fixed by filling in the missing gaps, or lead to the annihilation of society (Kojder, A., 2001, p. 281, 289). The philosophical tradition associated with the concepts of human dignity and common good, and also the visible and permanent accomplishments of societies, which have based their existence on such values, allows us to see them as an opportunity for the survival and further evolution 24 | of contemporary Europe. For centuries, human dignity and the common good have determined the standards of Government actions and interpersonal relations. Both values are inseparably connected, since there is no way to separate the conditions serving the integral development of an individual and the society from the development made through the realisation of rights and responsibilities. Of course, this does not mean that these values have always been read and implemented in the proper way in the past, just as the values with an established tradition are currently being abused. However, one cannot deny the association of the diverse social, economic, and political problems with the axiological crisis affecting social life. The complexity of social processes prevents the symptoms of the regression from appearing regularly and simultaneously but their creation and preservation always has its initial foundation in the value crisis. It should be remembered that, on one hand, the law reflects social life, while affecting its form on the other (Kojder, A., 2001, p. 18). For these reasons, it is important to understand the values of both the legislator, and also individual members of the society. E. Mounier noted that “the concept of historical progress and the concept of individual spiritual progress are closely associated. They appear and disappear simultaneously,” (Ibid., 1968, p. 87). 6. Conclusion There is no doubt that for many years the dominant philosophical trend in the process of European integration has been liberalism (Mik, C. Czynniki religijny i etyczny w prawie i praktyce Unii Europejskiej [The religious and ethical factors in the law and practices of the European Union] [see:] Krukowski, J. & Theisen, O., 2003, p. 145). By nature, this orientation is inspired by philosophical idealism based on the affirmation of reason and freedom, thus losing the ability to recognise metaphysical anthropology, and in consequence reducing the value of the human being to the level of materialism (Bartnik, C. S., 1995, p. 123). This is one of the main factors composing the foundation of the value crisis in contemporary Europe, which cannot be resolved without long-term and organised actions in the fields of law and education. The experiences of the Polish system indicate the importance in the process of the realisation of the system regulations of their implementation into legislation and the broadest concept of educational activity, particularly covering the school system, science, the various forms of vocational training, cultural institutions, and the means of social transmission. Otherwise, the legal norms referring to values make them a theoretical concept, exposing them to social disrespect or instrumental redefinition. As noted in the introduction, the contemplations assumed in this study can in no way aspire to exhaust a problem of such complexity as the issue of values and their relation to the past and future of Europe. However, there is no doubt that contemporary times are in need of exploring the holistically-comprehended foundations of social life, which are values, and their practical consequences. Through a selective and eclectic approach to values, relativism fragments the image of the society and its foundations, and in result prevents the connection of the experiences from the past with the challenges of the present and future. Meanwhile, an effective way to become acquainted with and understand values, among which human dignity and the common good hold particular significance, is human nature itself. The constant and logical regularities of human nature produce the confirmation for the ancient European philosophical and Christian traditions. Therefore, every sensible philosophy, and thus also every responsible legislator, must opt for therealism of existence, thus for the absolute “predominance” of cognitive realism (Bartnik, C. S., 1995, p. 334). This is also the premise of this study. Human needs and rights should remain valuable sources of axiological explorations – at least in the same way as the judiciary system when related to them remains specific and rich, in order for them to act as standards, including evaluable standards. The democratic legal system should remain based on the correct concept of the human being and the resulting hierarchy of values. Therefore, the law also cannot be axiologically neutral, since axiology has fundamental meaning in the formation of social and legal order, and significant meaning for both the life of an individual and the quality of social life. In current times, values are becoming factors in the settlement of contemporary civil demands. The human being, as the creator of culture, provides proof of values | 25 by expressing humanity. Democratic values are directly tied to human nature - therefore they do not need to be ideologically enforced. References: Adamski, F. (ed., 1993). Człowiek, wychowanie, kultura. Wybór tekstów (Human, Upbringing, Culture. A Collection of Articles). Kraków: Wydawnictwo WAM. Bartnik, C. S. (1995). Personalizm (Personalism). Lublin: “Czas”. Böckenförde, E.-W (1994). Wolność – państwo – Kościół (Freedom – State – Church). Translated by P. Kaczorowski. Kraków: Wydawnictwo Znak. Burgos, J. M. (2010). Personalizm. Autorzy i tematy nowej filozofii (Personalism. Authors and Subjects of a New Philosophy). Translated by K. Koprowski. Warsaw - The Centre for Thought of John Paul II. Elliot, A. (2011). Współczesna teoria społeczna (Contemporary social theory. An Introduction). Translated by P. Tomanek. Warsaw: Wydawnictwo Naukowe PWN. Góral, J., Hauser, R. & Trzciński, J. (ed., 2005). ). Sądownictwo administracyjne gwarantem wolności i praw obywatelskich 1980-2005 (Administrative Judicature a Guarantee of Freedom and Civil Rights 1980-2005). Warsaw: Head Administrative Court. Kojder, A. (2001). Godność i siła prawa. Szkice socjologicznoprawne (Dignity and Power of the Law. Sociological and Legal Sketches. Warsaw: „Oficyna Naukowa”. Krąpiec, M. A. (1998). O ludzką politykę (For Human Politics). Lublin: Redakcja Wydawnictw KUL. Krukowski, J. & Theisen, O. (ed., 2003). Kultura i prawo. Materiały III Międzynarodowej Konferencji na temat „Religia i wolność religijna w Unii Europejskiej” (Culture and Law. Materials from the III International Conference on “Religion and Religious Freedom in the European Union”), Warsaw, 2-4 September 2002. Lublin: Towarzystwo Naukowe KUL. Kundera, E. & M. Maciejewski, M. (ed., 2006, 2nd issue). Leksykon myślicieli politycznych i prawnych (A Lexicon of Political and Legal Thinkers). Warsaw: Wydawnictwo C. H. Beck. Mazurek, F. J. (1999). Prawa człowieka w nauczaniu społecznym Kościoła (Human Rights in the Social Teachings of the Church). Lublin: Redakcja Wydawnictw KUL. Mik, C. (1992). Zbiorowe prawa człowieka. Analiza krytyczna koncepcji (Collective Human Rights. Critical Analysis of the Concept). Toruń: Wydawnictwo UMK. Morciniec, P. & Stadniczeńko, S. L. (ed., 2004). Urzeczywistnianie praw człowieka w XXI wieku – prawo i etyka (Realisation of Human Rights in the 21st Century – Law and Ethics). Opole: Wydawnictwo UO. Mounier, E. (1968). Chrześcijaństwo i pojęcie postępu (Christianity and the Concept of Progress). Translated by A. Bukowski, K. Dembińska, E. Krasnowolska. Warsaw: Biblioteka „Więzi”. Piechowiak, M. (1999). Filozofia praw człowieka. Prawa człowieka w świetle ich międzynarodowej ochrony (Philosophy of Human Rights. Human Rights in the Light of Their International Protection). Lublin: Towarzystwo Naukowe KUL. Radbruch, G. (2009). Filozofia prawa (Philosophy of the Law). Translated by E. Nowak. Warsaw. Sadowski, P., Kozerska, E. & Szymański, A. (2007). Prawne, historyczne i doktrynalne aspekty sprawiedliwości (The Legal, Historical, and Doctrinal Aspects of Justice). Opole: Wydawnictwo UO. Sennet, R. (2006). Korozja Charakteru. Osobiste Konsekwencje Pracy w Nowym Kapitalizmie (The Corrosion of Character. Personal Consequences of Working in the New Capitalism). Translated by J. Dzierzgowski, Ł. Mikołajewski. Warsaw: Muza. Stadniczeńko, S. L. (1997, issue II, expanded). Zarys pedagogiki prawa. Wybrane zagadnienia praw- 26 | ne dla pedagogów (An Outline of the Pedagogy of the Law. Selected Legal Issues for Teachers). Opole: Wydawnictwo UO. Stadniczeńko, S. L. (2000). Urzeczywistnianie prawa w zatrudnianiu młodocianych w okresie transformacji (Realisation of the Law in the Employment of Juveniles During the Period of Transformation). Opole: Wydawnictwo UO. Wojtyła, K. (2000). Osoba i czyn oraz inne studia antropologiczne (The Person and the Act and Other Anthropological Studies), Lublin: Towarzystwo Naukowe KUL. Wołpiuk, W. J. (ed., 2008). Dobro wspólne. Problemy konstytucyjnoprawne i aksjologiczne (The Common Good. Constitutional, Legal and Axiological Problems). Warsaw: Wydawnictwo Wyższej Szkoły Zarządzania i Prawa im. Heleny Chodkowskiej. Zajadło, J. (1989). Godność jednostki w aktach międzynarodowej ochrony praw człowieka. (Dignity of the Individual in Acts of the International Protection of Human Rights). The Legal, Economic, and Sociological Movement. 51(1989), vol. 2. Legislation: Draft Charter of Fundamental Rights of the European Union. Brussels, 11 October 2000 (18.10). Charter 4473/00, Convent 49. Setting International Standards in the field of Human Rights. General Assembly Resolution 41/120 of 4th December 1986. A/RES/41/120. The European Social Charter of 18th October 1961, CETS No. 035 with amendments resulting from the minutes of 21st October 1991, CETS No. 142., Journal of Laws of 1999 No. 8, item 67 as amended. The European Convention for the Protection of Human Rights and Fundamental Freedoms of 4th November 1950, Journal of Laws of 1993 No. 61, item 284 as amended. The Charter of Fundamental Rights of the European Union, Official Journal C 83 of 30th March 2010, p. 389–403. The Constitution of the Republic of Poland of 2nd April 1997, Journal of Laws of 1997 No. 78, item 483 as amended. The Universal Declaration of Human Rights. Resolution of the UN General Assembly of 10th December 1948, 217 A III, UN Doc A/810 at 71 (1948). The Statute of the Council of Europe signed in London on 5th May 1949, Journal of Laws of 1994 No. 118, item 565. The Vienna Declaration and Programme of Action. Document of World Conference on Human Rights. New York, June 1993. The Treaty establishing a Constitution for Europe (European Community) of 29th October 2004 (EU Official Journal 2004 C 310). The Treaty of Lisbon amending the Treaty on European Union and the Treaty establishing the European Community, signed in Lisbon on 13th December 2007 (EU Official Journal 2007 C 306). | 27 28 | Piotr Krajewski University of Warmia and Mazury in Olsztyn [email protected] The future of Europe and its mission at the beginning of the third millennium Abstract The quickness of changes observed in the last decades of the XXth and early XXIst century are a surprise for many people. More than one puts human beings in amazement, but also in embarrassment. Mainly due to the dismemberment of social and individual life. The individual feels confused: a sense of belonging to a family, a group and the nation becomes weaker. At the same time requirements according to the individual are stronger and faster. Europeans, deprived of authority and values in the educational process, wonder whether culture of the Old Continent will become just one of the richest and most important sites of the past history, or whether they can make another civilization effort inspired with non-egoistic premises. Keywords: values, lack of authorities, collapse of civilization and crisis of the European culture, future 1. Introduction After the fall of the ideology and the collapse of the world ruled by the old system, we are still looking for a new model of society based on fixed and unchanging values that would direct human life and civic community. Meanwhile, the modern man, with great strides being made towards the future, is wandering in the dark, does not have trust in poorly functioning institutions or in society that is not able to set a common purpose uniting individuals. Moreover, a man does not trust himself, because he sees himself as more and more lonely and powerless. He does not know what measures to do and what is the aim. 2. A man’s collapse After the disappearance of the old order proposed by discredited ideologies, many people woke up in a chaotic and superficial world where it is impossible to find a fixed point of reference. A situation in which Europe can be described as disordered and depressing at the same time. For most people, institutions, political parties, names and symbols does not mean anythin. The need for a true cultural revolution, a genuine mobilization of consciences is commonly felt as necessary. Modernity, more than any other era in the history, has had the ambition to offer a man a release from all restrictions restricting him in the past, especially from the chains of morality and religion. This era could not, however, relieve a man from the greatest afflictions, which are his weaknesses. On the contrary, attributing the trait of omniscience and omnipotence, was stained with pride. In this way, ideologies gained a form of religion, which has replaced the cult of God with the cult of a man, but at the same time the marginalization and destruction of true religion was accompanied by marginalization and destruction of man himself - deconsecrated culture led to its downfall. The fall of the culture was mainly determined with destruction of absolute values. The aim was to complete re-evaluation of values, turning the immanent values into transcendental ones | 29 and spiritual values into the mundane values. Also, institutions that seemed to guarantee that they are fixed points of reference, have now lost the function of signposts and are protested. At the core of these changes occurred the denial of absoluteness of values, introduction of moral pluralism in the context of the acceptance of many forms of relativism, also historical. What was originally a philosophical doctrine has gradually become a practice reality. The crisis of values has hit the young people in the hardest way. Many of them do not believe even in the sense of studying and working as well as in the opportunity to become a part of the community. But they have no way out. They are marginalized, unemployed and still do not see any place for themselves in the surrounding reality. The constant experience of inner emptiness leads them to drug abuse, deviant ideologies and attempts to create a system doomed to failure. Contemporary era of great changes initiated an ambitious process of creating a superior human beings: free, mature, autonomous, governing by himself, free from religious superstition and morality, master of the world. People actually made a huge and remarkable achievements in the field of science and technology, so that they could transform the character of the earth and could improve living conditions. But modernity, most importantly, lost its most important goal - bringing a man to the maturity of his humanity, making him more human in that way. Looking around we see nothing more than destruction. Unsuccessfully looking for a more just humanity, of peaceful, happier, healthier. We search in vain to more humanity more fair, peacefully attitude, happier and healthier. Whereas we see mankind internally divided, broken, insecure, anxious, unhappy and still searching - humanity measuring with difficult questions, devoid of spiritual energy to face all problems. It is a humanity armed with the means, but getting poorer in goals, highly technical but with low moral level. In ethics, each has become a law to himself and the creator of own values. This led to the selfish individualism. In this way, a person becomes more and more homini lupus. The individual is exposed to the most humiliating and insane forms of subordination that make him a slave to the stronger. The “stronger” can have various forms: it could be ideology, economic impacts, inhuman forms of governance, technocracy, science and mass media (Sitek, 2012, pp.249-263). Strictly speaking, we are facing a total deregulation of social life. External deregulation can be easily noticed even in inequality between rich and poor countries, the possessing classes and classes in need, wealthy people and paupers. However, the biggest instability can be seen inside a man, between his body and the soul, because thanks to the soul a man is a person. It’s a modernity which gradually extinguished the spiritual dimension in a human being, focusing its attention solely on the bodily dimension. A hedonistic logic focused on well-being, health and pleasure of the body has become a goal of all efforts. This culture instilled in a man the magnitude of needs, mostly imaginary, but through it stronger. All efforts are focused on material well-being with harm to spiritual goods (B. Mondin, 1993, 9-29). By analyzing precisely the ruin of a man we discover deficiencies, poverty of moral principles of things really valuable. Man’s conscience is impoverished and indifferent to moral principles. Thus the crisis of contemporary culture hit directly in its creator and operator, which is the western society and its representatives. The reason for this is quite obvious: a person is linked up to the public through its culture, namely by learning languages, customs and values. Thus, it is obvious that when a society loses its fundamental values and norms, firstly its members fall into stagnation and then seamlessly in cultural recourse. As a result, this crisis turned into a crisis of modern man. It is obvious that it affects mainly young people. Elders, who grew up in an environment not yet fully degraded, had time and opportunity to learn the customs, laws and values and did not lose them, even when the culture was shocked by quick changes. Young people entered into crumbling, broken society, with institutions maintained by force. The fall of the culture and values has led inevitably to ruin a person, as a culture makes person alive and values show the proper way. Today’s culture has become pointless and values are con- 30 | stantly disappearing. So exposed human culture makes him/her anonymous, who assimilates only appearances of goodness, truth and beauty. Modern man seeks values which satisfy the needs of the body (as it is much easier to find) while ignoring all the things that keeps the spirit (because it requires the constant effort). This man has constantly growing needs, moreover, only fictional, but extremely expensive; overgrows in tangible goods, power and pleasure, abandoning the path of truth at the same time, as it is too cumbersome and difficult to achieve. Surprisingly, we can notice fast grow of a number of educated people while a number of morally healthy is getting lower. Between education and upbringing there is the abyss (A. Krajewska, 2008, 229-233), as in the society and at school. People are taught how to use software and more powerful computers, while they are completely ignoring the issues of how to be tolerant to the familiars and persons in need at the same time. The endless scandals in politics and in the economy shows how rarely we have to deal with really honest people. It requires a lot of effort required to realize that an honest person is someone who can easily distinguish good from evil, well-deserved profit from the fraud, the law from the offense (B. Mondin, 1993, 41-48). We talk easily about tolerance and phobias, arouse in ourselves and in others a sense of guilt according to the internal beliefs and inculcated principle. In the philosophy of our culture, we have even lost the concept of the person. A person defined as a human being endowed with intellect and freedom was softened and relativized. The concept of a person can even be reduced to the social contract. Others decide who is or not a human person, instead of the inherent value as dignity is. Biological existence is no longer sufficient. It becomes so only through the recognition of belonging to the human species. So others decide about it. The right to life has become a simple social contract that is possible to ratify, dependent on personal discretion. So what is the future of Europe deeply ruined (except economic) with existential crisis? Is it still possible to make a cultural reconstruction of the Old Continent? 3. Values’ collapse Europe is the cradle of many civilizations. To the most notable are included of course the Greek, Roman and Christian. Each of them contributed and managed to pass a part of its culture, cooperating in some way in the creation of a later entity. Classical culture through the millennium was a platform for uniting all the peoples of the great Roman Empire. For the next one thousand years, the Christian culture did the same with the barbarian peoples who invaded and conquered the empire. As a result, during ten centuries, Christianity united Europe by building a civilization that amazes to this day. The XVth century was the beginning of modern times and the new cultural order: the absolute values of Christian origin were strengthened with new values engendered by scientific rationality. The rapid development of knowledge, technology, craftsmanship, overall progress and new ways of farming contributed to it. Today, the whole cultural structure constructed on the based of the spiritual and intellectual material inherited from ancestors, lay in ruins. In the new reality there is often lack of absolute values such as human dignity, sanctity of life, respect for law. At that time, of course, Europe as never before has become the technological, political and economic power, but also has declined morally, aged and impoverished culturally. In short, plunged into the barbarism of a new issue. At each step, opposite trends can be seen. On the one hand, it easy to notice the resurgence of nationalist movements and ideas. On the other hand, with some insistence, proposals for a return to the spiritual and cultural unity are put forward. But the most powerful - so powerful that they are able to outshine all the other more ambitious – and by many most awaited are unifying tendencies of economic and political life. | 31 4. Rebirth of the community The man is not a self-sufficient being. By his nature, he is a purely social creature, he needs others to be born, grow up and realize himself. Two social institutions within which a person realizes himself/herself are family and the state. The first one is absolutely indispensable because it is the source of everyone’s life and provides education. The second one is also very important because the family is not able to provide a person with all necessities for its full development. The family and the state are places where a person lives his/her whole life, in which can find a shelter, livelihood, physical and moral support and prosperity. At every step it is seen how difficult it is today to choose a plan for life, and even more difficult it is to realize it because of the far-reaching breakdown of the family and the state. Therefore, it is needed to look for some clues allowing reconstruction of the family and the state, and in addition to bring these institutions to position in which it could support a man in an effort to pursue his own personality. The general moral crisis destroyed both the great social organism which the state is and the basic cell of the society, namely the family. Repercussions of the collapse of society are visible in families’ crisis and those who make them: parents and children. There is an obvious dependence between these components, it works in both directions. So it is impossible to think about a good country, when it is created by bad families and vice versa, the family consisting of bad parents and children also will never be good. The state is no different from its citizens but also citizens are no different from their country. This relationship is direct and general. Therefore, if the state functions well it is a merit of all citizens. All people are responsible when the state does not work properly. What is therefore needed for the rebirth of the state and of Europe? First of all, the value, seeing that the first and the second have to serve to a man. Rebuilding the family means going back to the model that prevailed initially. If the family manages to regain its old wisdom, will be strengthened becomes the foundation for the gradual rebirth and building the community and the state. The state needs a family to be able to grow and strengthen. State derives its strength from the nature of man who is not able to secure his needs or fulfill his aspirations. So it is a nature that forces the individuals to organize themselves in the community and build a nation. The state principally performs integrating and supporting function. In other words, the most important and the most specific task of the state is realization of the common good. The state has to ensure all what is required by the human dignity to all citizens. Meanwhile, what happened in recent times, it is effective policy separation from ethics and morality. This led to a crisis of the state as an independent entity, closely related to other similar entities. Accordingly, the current crisis is an international phenomenon and the severe economic consequences are merely the result of an earlier values crisis born in Europe. 5. Restore of values We are witnesses and at the same time protagonists of the times that we believe to be an extremely exciting but also challenging. Still fed and prosperous, we recall better days that have just passed, we think only about today day. We do not care that we act like barbarians seeking only benefits without giving anything in return. Though to live a better life it is essential to require, first from ourselves and then from the other. Cooperation in overcoming insurmountable difficulties alone can be done only by coming back to dropped values. Only this values can lead to the restoration of community life. So Europe - of course if wants it - must build a new spirituality, a new unity in the commitment 32 | and unity of values, which again will lead to the reunification despite characterizing the difference. Cultural renewal will let to perform - may no longer decisive, but at least - an important role in the history of mankind. Future cultural role for Europe cannot exist without this intellectual and spiritual heritage, without these values (mainly Christian), which have built it for several millennia, and which continue to be perceived in the few symbols in ethics and axiology, in literature, philosophy, and music, legal systems, in social life and personal life. Christianity since the fall of the Roman Empire was the driving force of European civilization, and not just for a few hundred years of political unification (in the Middle Ages), but also later, after the formation of nation-states. Virtually culture of all countries, from east to west, was essentially Christian culture. We still see it in great Romanesque churches, in Gothic cathedrals, basilicas from the Renaissance, the works of the great theologians, philosophers, musicians and makers of times past. The actual breakdown of culture begin after the French Revolution, after the political disintegration of Europe. With the systematic removal of Christianity elements from the political and social expanse in the name of secularism of public life, a new culture was initiated, more and more anthropocentric. Gradually the man became a founder and the measure of all things, including absolute values, such as truth, morality, justice, legality, law, good and evil. The changes have also influenced on the legislation, institutions, symbols, morals and politics. Thus, the order was reversed, the absolute values have been replaced by instrumental ones. Man, first destroyed deliberately and then threw his divine origin, his position in the natural order, destroyed his personal life, family, marital and social. Was it possible to destroy more? And now, is it still possible to do something to save Europe? It will be connected a huge effort. A new cultural model should be elaborated, what will provide the spiritual unity of all the peoples of the continent. Bearing in mind all the difference, heavily mixed with accentuated individualism, the idea of creating a transnational community will have a justification? Is the effort of going into this direction still worth, considering that it is impossible to get rid of the cultural diversity of individual countries, which are the first and most important place of existence of every human being? Is it possible to create a multi-ethnic structure of discharging the merging and integrating functions? Will this structure allow the diversity to perform its specific role in the community? On what kind of foundations a new European culture should be build? The historic mission of Europe for the benefit of mankind which lasted for two thousand years is evident. For the first ten centuries it had been the cradle of Christianity, it acquired new nations, giving them the same spirit of culture, where Europeans lived and grew. There was the formation of a social consciousness and awareness of human existence of some fundamental values​​: at that time the new, and now seem to be universal and also the most important concept of the person and human dignity and the unity of the human family as the solidarity principles of social coexistence with the acceptance of the diversity of peoples and nations. In the second millennium, and especially in the second half, the mission of Europe was the proclamation and implementation of freedom and human superiority over other beings and forces of nature through scientific and technical achievements. In this way, Europeans have achieved, very high, much higher than the others, level of prosperity. But can we still talk about the mission of Europe in the third millennium? Or maybe the mission of Europe is already over? Perhaps it the time to give way to others? Or does it have a major role to play in the human history? If so, what kind of role? | 33 6. Summary. Values in the future service. In the process of merging culture, the values of truth, freedom and solidarity have played a huge role since forever. Without doubt, all three of these values are fundamental. However, it seems that not all of them can participate in the formation of a new European spirit in the same way. For example, truth and freedom are appreciated and treated in the same way on other continents and not Europe has ability to preaching and promoting it. A major mission of Europe is working for solidarity, and above all, sharing material prosperity, cultural and spiritual one. Europe is likely to become culturally strong and flourishing, not only as a sign of externally generated financial status, but also internally, spiritually. The ancient Greeks through cultivating beauty, goodness and righteousness and Romans through cultivating justice, order built and perfected mutual solidarity, through which Europe could justify its transnational cultural unity for two millennia. If it does not do it, sooner or later, Europe will share the fate of the Roman Empire - invade and absorb by the “barbarians” of the future. Selfish reasons should not decide about the implementation of solidarity initiatives, such as fear, but the spiritual and cultural reasons. The mission of Europe should be based on understanding and helping will not only allow an extension of our own existence in time, but also the further development of the culture (B. Mondin, 243-249). References Krajewska A. (2008) Wychowanie do wartości wobec globalnych zagrożeń w Unii Europejskiej, w: M. Lisiecki, M. Raczkowska-Lipińska (red.), Zarządzanie bezpieczeństwem w Unii Europejskiej wobec globalnych zagrożeń, Józefów 2008, s. 229-233. Mondin B. (1993), Rifare l’uomo, Roma. Sitek B. (2012), Depodmiotyzacja człowieka wobec stopniowej legalizacji usług uprzedmiatawiających osobę ludzką, [in:] Wykorzystywanie człowieka w XX i XXI wieku, pod red. B. Sitek (et. al.), Olsztyn, s. 249-263. 34 | Prof. dr Dragan Bataveljić University of Kragujevac [email protected] Doc. dr Milijana Danevska Academy of Diplomacy and Security (Belgrade) [email protected] European Integrations and their future Abstract At the beginning of the 21st century the European Union is facing great challenges. Eight countries from Sought-Eastern Europe (Estonia, Latvia, Lithuania, Poland, Slovakia, Slovenia, the Czech Republic and Hungary), as well as Malta and Cyprus, joined the European Union in May, 2004. Thus, the number of members has increased to 25, and finally, another two states – Bulgaria and Romania –joined the big European family in 2007. In a few months, Croatia will join the EU. The European integration process inevitably opens the question regarding the “European compatibility” of federalism. As such, the federalism creates an integrating component of the European culture, particularly as it is based on its unity in diversity. This is why the principles of federalism are gradually being confirmed, which proves that the federalist revolution has already begun long ago. The ending of the conflict between East and West has marked a turning point in the history of the European integration, likewise. Keywords: European Integrations, European Union, federalism, democratic, European perspectives 1. Introduction In the European Union, there is a great dynamic, although the beginning of the 90s was marked by a loss of the citizens’ confidence in European integration processes. It is perfectly certain that the European Union constitutes a supranational community consisting of democratic states, so if only for this reason, it is normatively directed towards a democratic type of its organization. Yet, it must be stated that it bears a hybrid political form, in which these supranational and state elements intersect. Thus, in his speeches held at the very end of the 20th century, Jacques Delors also alleged that a federation of European states – is the only way to implement the status as a global power being autonomous in defence and foreign affairs, whereas in default whereof, Europe would develop towards a mere economic domain without political soul (Janča, 1980, pp. 123-128). Therefore, it is possible that the formation of a “federating core” creates incentive effects on the other Member States towards an increased motivation for integration within Europe, which would be the best possible way. By contrast, the same community could break down into several parts which would cause its actual dissolution in the closer future. And, in the end, the third option is still possible within the scope of these developing chances and integration dilemmas, namely the preservation existing status quo. And finally, a third alternative is possible within the framework of these opportunities for development and integration dilemmas, namely preservation of the existing status quo. However, retaining the European Union on its current integration level could not give any real and adequate answers to global political and economic challenges, in particular not to the process of globalization and integration of particular countries in South America, Asia and Africa. | 35 2. An Outline of the History of European Integrations Already in his speech held on September 19th, 1946 in Zurich, Winston Churchill expressed the clear decision for a vision of the “United European States”. The first step towards realization of this vision was the foundation of the Council of Europe in May, 1949, while the European movement organized in 1948 had begun to win more and more in strength. Thus, for instance, the European Congress held in The Hague in May, 1948, called for the foundation of the Council of Europe, so this was the hour of birth of the European movement. International constellation as well as the relation of forces in the world contributed to all of that, likewise, but chiefly the sense of menace caused by communism, resulting from the strengthening of the Eastern bloc. Due to all the mentioned factors, at that time the American support for the European unification project was granted, though, linked to the condition of an expected development of new, big markets. Admittedly, upon formation of the Council of Europe on May 5th, 1949, apart from such common viewpoints, various accession conditions as regards integration had arisen, which rested on two organizational principles: 1) a confederative state and 2) a federal state. These differences distinguished themselves by the controversy between federalists and unionists, and the core of their conflict lay in the question of renunciation of national in favor of European sovereignty. Indeed, in the political statement a political and economic union of European states was called for, while at the same time accepting a partial restriction of national sovereignty. Robert Schuman, then-French Foreign Minister, started the initiative (“Schuman Plan” of May 9th, 1950) for signing the Treaty Establishing the European Coal and Steel Community, which took place on April 18th, 1951. In truth, the basic idea came from Jean Monnet, French Commissioner-General (which is why this community was also called Montan-Union), however, its foundation was meant to provide a common market for coal and steel. The ending of the traditional, long-time French-German enmity was surely even more important, meaning the French-German reconciliation to serve as a basis of a new European movement and laying of the cornerstone for a new European federation (Bataveljić, 2010). This Treaty on European Coal and Steel Community came into force on July 23rd, 1952, and from the over aching economic integration, later on a political union should have emerged. Just because of this, the representatives of the Member States of the European Coal and Steel Community already on May 27th, 1952, had signed a Treaty on the formation of a European Defence Community (Hesse, 1962, pp. 22-23) pursuing the aim to establish a joint European army and to implement a European Minister of Defense (Hesse, 1982, pp. 47). Shortly afterwards, also efforts were made to draw up a constitutional model, and on September 10th, 1952 six Foreign Ministers, in their first meeting acting as members of the Council of the European Coal and Steel Community, rendered the decision to prepare a constitution of the European political community. This constitution should have been adopted by the enlarged Assembly as an ad hoc Assembly. But when the project of the European Defence Community had not been accepted in August, 1954 by the French National Assembly, the draft of a European constitution itself lost its basis, so that soon afterwards the project of formation of a European political community was dropped, likewise. All this resulted in a return to the functionalist model, attended by strong federalist ideas. The Roman Treaties establishing the European Economic Community, as well as the EURATOM, were signed on March 25th, 1957, in the wish to create a common market for a free movement of persons, services and capital, as well as an adequate coordination and harmonization of different policies. Upon entering into force of the Roman Treaties, at the beginning of 1958, it came to customs tariff reduction of by 10%, and speedily, step by step, the customs tariffs were even further reduced within the community and simultaneously, other trade barriers were abolished. Immediately afterwards, i.e. in 1960, the European Free Trade Association – EFTA was founded, of which today Iceland, Norway, Switzerland and Liechtenstein are members of. When General Charles de Gaulle again came into power in 1958, France’s attitude towards the func- 36 | tioning of the Community changed, so that in 1966, France withdrew from the NATO Pact and launched an initiative for a cross-national model of collaboration of Western European countries. The cause for a steep twist of such kind in French politics is the renewal of the idea of priority of state sovereignty visà-vis supranational organizations, as well as the so-called Fouchet Plan which had appeared some years before. Namely, this Plan consisted in an initiative to form a new political Union of States, the so-called ‘Little Europe’; the Plan was named after a French diplomat who in 1961 was tasked in chairing a special committee to develop a Treaty on Establishment of such Union of States. It was considered that the Union should have similarity to a classical political, international organization which later on should turn into a confederation of states. The conclusions of the summit held in Bonn on July 18th, 1961, motivated the French diplomat to take up negotiations (so-called “Fouchet negotiations”) which, nevertheless, did not follow the previous, constitutional concept, but were rather geared to a new model of an intergovernmental concept. Given that the Fouchet negotiations had failed, Konrad Adenauer and Charles de Gaulle undertook the next step in signing the Franco-German Friendship Treaty in 1963. Their intention was to establish a close political cooperation that later on, in the course of time, spontaneously should have been joined also by other Member States of the European Economic Community. According to its intention, this alliance of Germany and France was supposed to become the driving force of the political unification of Europe. In truth, this was a roundabout way towards a political community of Europe which up to the 90s of the 20th century has been realized by way of common monetary-, agrarian and customs policy, which, however, could have been comprised under one common name - consolidation of the European alliance. In the history of European integration, the so-called “Luxemburg compromise” of January 27th, 1966 constitutes one of the most important moments, particularly as by means of the same, it was agreed that in case of disputed questions, a consensus must be achieved. France actually succeeded in enforcing its viewpoint, so that hereby also any other Member State of the European Economic Community obtained the possibility of veto, which in the Council of Ministers led to the situation that numerous developing concepts of integration policy were blocked. A great progress towards the foundation of the European Union was achieved through the summit of the Community members in The Hague which was held from December 1st – 2nd, 1969, on the initiative of the French President Georges Pompidou, when the decision on the establishment of the Economic and Monetary Union was made. The summit of the Community members held in Paris in 1972 signifies another important step, when the foundation-stone of the idea on a European Union was laid and the purpose of the formation of the European Union until the end of the decade was proclaimed to support the strengthening of the Community members’ cooperation. These approximation processes that had been launched were continued at the summit of the Community members in Paris in 1974 when it came to a decision on the implementation of the European Council. In this manner, the thought of de Gaulle and Fouchet regarding the political collaboration of the Member States was partially realized without transferring sovereign national rights. At the summit in Paris, in summing up it was decided to compile a report on the foundation of the Union which was supposed to be submitted to the governments of the Member States for evaluation. The Tindemans Report, named after the Belgian Foreign Minister Leo Tindemans, ranks among the most significant documents which in January, 1976 was presented in the form of a project on the formation of the European Union to the European Council for review. In July, 1981, the European Parliament decided to appoint an expert’s committee whose task it was to prepare a Treaty on the European Union on the basis of existing founding treaties. This committee was headed by the Italian representative A. Spinelli, an active member of the federalist movement. The core of the draft Treaty establishing the European Union was the call for an institutional reform of the Community by means of extending its competences, an alteration of the decision-making procedure and a larger legal and political role of the European Parliament. Within the scope of the definition of the Union’s | 37 enlarged competences, the draft proposal (Article 9) reveals federalist views. For instance, as one of the goals of the European Union, a further evolution of the acquis communautaire is mentioned, therefore, the Community’s body of common rights and obligations, but now, however, on the basis of a new Treaty on European Union. In doing so, the Community should have turned into a federal entity with democratically responsible institutions and with a democratic decision-making procedure, based on the respect for fundamental human rights and political decentralization. On the way towards integration, the Single European Act (SEA), which had been enacted in 1986, and entered into force on July 1st, 1987 played a significant role. With the help of this Act, until the year 2000, 300 various actions were provided for, reflected in 1,500 Directives, which in the meantime had made it possible to establish the European Economic Area (EEA) in 1993. One can state that the organization of the shared existence of the Germans means the key to European political organization. On December 9th, 1989, the European Community for the first time submitted its tenor concerning the German question, so in the Declaration adopted by the European Council it says: “We are striving for peace in Europe, a peace in which the German people will be reunited due to its free self-determination. This process must be achieved in a peaceful and democratic way, in accordance with the agreements and treaties...Basis of this unification must be the perspective of integration.” This means that Europe said “YES” to the German reunification, which on the occasion of the Extraordinary Summit held in Dublin on April, 28th, 1990, was put completely straight. The Treaty on European Union or Maastricht Treaty was signed on February 7th, 1992 in Maastricht (Netherlands) and entered into force on November 1st, 1993. The Treaty of Maastricht has created a new political entity – the European Union. The Maastricht Treaty evolved after the dissolution of the Soviet Union (1991), the break of the Soviet communist system and the reunification of West and East Germany. The intergovernmental conferences held in Maastricht in 1992 and in Amsterdam in 1997 accelerated the development of European integration, namely to a larger extent than one could have expect before the fall of the Berlin Wall, at all. Already since the establishment of the Community at the beginning of the 50s of the 20th century, the “United European States” and “The United State of Europe” have formed a fundamental conceptual duality, in which the completion of integration was based upon. Yet, in connection with the thought of such federal state it has to be stated that in its foundation, there are two ideas: on the one hand, there is the idea that introduces order, and on the other hand, the idea that includes the willingness to relinquish sovereignty (Hesse, 1993, pp. 68). 3. The Development of European Integration European enlargement has taken place in several ways, and all these stages have their original stamp where federalist aspects co-exist alongside co federal forms, so that in this respect, the question arises into what direction the European Union will move, which is supposed to find answers to many topical challenges; the most pressing challenges are the following, in particular: commotion caused by the collapse of communism, the USA’s unilateral policy of a lonely superpower, but also numerous destabilizing factors: conflicts in Southeast Europe, the resurgence of independent movements in the European Union and its periphery, and the upsurge of nationalist movements, and other. It is particularly important to underline the fact that for the first time in history a large political community is being built not by force and conquest, but on the basis of free association of independent states (Hesse, 2003, pp. 3-4). Formerly the European Communities, and today the European Union practice a so-called “inverted federalism”, using a so-called “sectoral approach” within the framework of its construction, meaning that development of the Community/Union is carried out in a “sector by sector” approach. This is done in such a way because there is the opinion that the mentioned approach should more likely lead to a European federation. The process of European integration was started as a pilot project, and the first step was the creation 38 | of the European Coal and Steel Community – ECSC, which was followed by the proposal to create a European Defence Community – EDC, and finally, it was consentaneous to continue this process with the European political community. However, considering the failure of establishment of a European Defence Community, it came to a break in the process of political integration, and the consequences of this initial fracture are still being felt today. The re-opened debate on European federalism serves to prove this fact. Today’s debate on European federalism reveals a persistent imbalance of the European Union which weakens its power, so that still a lot remains to be done. Looking back half a century, it is evident that even the draft of political union of General De Gaulle, known as the Fouchet Plan, barely seems to have been accepted generally, whilst the so-called “Spinelli Project” of 1984 was only partially taken into consideration in the European Union treaties. Only the Treaties of Maastricht and Amsterdam, following the provisions of the Single European Act, contributed to the rapprochement of diverse opinions and dimensions. Thus, development of the European Union has begun by extending the domains of its activities, by way of creating a space without borders, by implementing a single market, carrying out economic integration (Hilf, 1994, pp. 7-25), strengthening solidarity, by a successive enlargement, a modification of the separation of powers by choosing the European Parliament, through a growing participation of the European Parliament in the legislative co-determination, by installing the Commission as driving force of the integration process itself, and finally, by way of affirming its central role. This evolution of the European Union and the integration process comprised and underlined many federal features. The mentioned economic integration comprising the European Central Bank and the common currency – the Euro – in truth reveals the federative core of the European Union. The phases of this integration are the following: • Free trade zone (implies the abolition of customs duties between Member States), • Customs union (determines common customs tariffs from outside the EU); • Single market (guarantees free movement of goods, services, work and capital among Member States); • Economic union (harmonization of the Member States’ economic policy). The introduction of the Euro as single currency is an essential step (Hrbek, 2002, pp. 18), however, it was too early to measure the impact of the Euro on the economic flows and on the entirety of citizens. Yet, what is certain is that up to now the Euro has contributed a lot and that in future it will also contribute a lot to the affirmation of the European identity. Taking into account, however, that a uniform political system does not exist, representatives of the biggest Swiss banks are of the opinion and warn about the fact that there is a reasonable fear that the Euro might lose this credibility. Actually, in their opinion, the purposes of economic and currency policy must be clearly defined, and in turn, economic reforms must be carried out in due time. For that reason, the concern for a balance and participation constitutes one of the most essential features of every federal system. This is an example for a federal structure that safeguards the common exercising of a part of sovereignty. However, in order to be able to apply this part of common sovereignty efficiently, the same must be completed by a uniform economic policy, actually in the domain of home affairs and common currency policy, as well as in the domain of external affairs. That is why it is just the necessity of establishing an “economic government” which has been called for frequently, as well as the creation of a coherent political system which complies with the experience of federal systems. In numerous crises and conflicts in the world and on the European continent, the European Union has not acted promptly. An insufficient system became apparent during the Gulf War, in the armed conflicts on the territory of the former Yugoslav countries, and in the war against the Federal Republic of Yugoslavia in 1999. Moreover, it disclosed the dependence of Europe on the USA in the field of military affairs, as well as a lack of independence in taking important decisions. Certainly it would be too early to consider it as a failure of Europe, as the European Union as community has not developed appropriate means to cope with such crises and armed conflicts. And this will not change for as long as international | 39 security and military commitment remain the Member States’ exclusive domains (Hrbek, 2003, pp. 3738). As already mentioned above, the evolution of the European Union begun by a proposal from the Commission for a qualified majority and co-decision of Council and European Parliament. In practice, the Council generally tries to take decisions by consensus even though it could use qualified majority. Even though in the European Union co-determination and qualified majority are gradually gaining the political terrain, the claim for unanimous adoption of resolutions in significant areas still continues to be present. However, it has to be stated that by eliminating them, delays and blockades with important decisions will be prevented in the future. Since the mid-80s of the 20th century, the European Union has been in a constant reform process that chiefly pertains to its democratic responsibilities. This responsibility of the Union is primarily reflected in the European Parliament’s competence and in the way the European Commission is elected. In connection with the power and the influence of the European Parliament on the results of the European Union’s public policy it is to be stated that since 1980 these have been extended, in principle. A further strengthening of the European Parliament will extend the roles at the elections to this parliament. Basically, parties and voters will regard the elections to the European Parliament as a chance, in order to exert influence on the politics and the public policy of the European Union (Bataveljić, Vojvodić, 2010, pp. 112-114). The Commission, being one of the most significant institutions of the European Union, fulfils its role as federator by means of the lawmaking procedure at European level. In doing so, it tries to preserve two things: the coherence and the balance of Community standards. It can be easily ascertained that this role of the Commission is an exceedingly complex one, considering the large number of actors, who to differing degrees realize their interests and diversities. These actors intervene in the decision-making process, likewise, which hinders the highly delicate role of the Commission even more. A directly elected president of the Commission would naturally have more power to speak with one voice on behalf of the entire European Union than this is the case today. This would be a significant step in European integration, for which the European voters are not ready yet, and they do not support it, either. At this point it is appropriate to analyze the federal role of the Court of Justice, which in numerous ways acts as “a finely tuned legislator”, and it is the authors of the Treaties who just wanted it thus (Hübner, 2000, pp. 21). It should be particularly underlined that in some ways, decisions of the Court of Justice have given “a constitutional role the Treaty of Rome”. Actually, this conclusion can be drawn from the suggestions of Judge Mancini, according to whom the said judicial decisions make the law the „motor of a community or federal integration”, which is also the case with federations. In addition to that, federal law takes precedence over the law of the federated entities, and these are the principle characteristics of federal law, which distinguish the law and the system of the community from the law and the system of intergovernmental or confederate organizations. Thus, here the federating role of the Court of Justice is affirmed and the same is of fundamental importance and function in the formation of a federal legal system (Ilić - Gasmi, 2004, pp. 118). In view of the fact that today, several sub-systems of the European Union are developing contrary to the federalist approach, the constraints and insufficiencies of the intergovernmental method have become apparent. These were the result of various proposals whit a purpose to create a dynamic, federative core, a government of the future European federation. For this reason, the European Union will have to choose among one of three possible approaches: 1) intergovernmental approach; 2) federal approach, or 3) it will adopt the decision of a group of Member States to follow the federal path, in the hope that in future they will succeed in sweeping the others along in their endeavour. The intergovernmental approach could contribute towards realizing a higher degree of confidence in the creation of common working habits, but still, the inconveniences prevail in comparison with these initial advantages. Namely, in the absence of a common proposal, small and medium-sized states are even more exposed to the predominant influence of large Member States. 40 | The European integration movements which we have analyzed so far indicate that in the course of their history, conditionally spoken, incessantly two concepts of unification of Western European states interlaced: federalism and functionalism. Of course, apart from these two views, one may carry out a further division into sub-groups (within the scope of the integration theory, several approaches can be distinguished: the pluralist theory introduced by Karl W. Deutsch, functionalism, neo-functionalism, the configurative theory, the “shape model”, and federalism), nevertheless, for the purposes of the present analysis, and in order to examine the ways of institutional changes of the community and the mode of the European Union’s formation, we shall merely refer to the classification mentioned previously. According to particular authors, the formation of European integration can be classified in two approaches: the confederalist and the federalist approach. In case of the confederalist approach of the federation, the states come to an agreement to cooperate with each other, but without any renunciation of any part of their sovereignty (examples of such association are the organization of the Council of Europe or the OECD). In contrast to that, the European Community is regarded as a product of the federalist notion of integration, however, federalism is regarded as a method of solving differences between sovereign states, while avoiding a dominance of one state vis-à-vis another one (or several states vis-à-vis the other states). By contrast, a part of sovereign rights is transferred to the supranational community, so that sovereignty is no longer indivisible or a perennially given conceptual category. Indeed, the Member States of the community have renounced parts of their national sovereignty and have entrusted common organs with the exercise of certain tasks for the collective good. Considering all that has been said above, the federalist character of the community is considered to be a gradual process within the scope of which the Member States also in the future keep their peculiarities and their identities. However, even though the creation of the European federation is seen in harmony with these views as a process, it has to be stated that the theory of federalism in the previously mentioned classification into a confederalist and a federalist integration theory still fails to provide for a consideration of federalism as a key determinant for the formation of communitary structures. For, it was just the politics of “small steps” in the course of creating the European Community that preferred the functionalist approach of European integration. The development of a “dynamic federating core” is an indispensable precondition to make the process of accession of states a durable union. The USA and Switzerland can be quoted as examples for that, which especially Karl W. Deutsch (Ilić – Gasmi, 1999, pp.73) has written about. The European Union is animated and demanded by this federating core formed around France and Germany as founding states, being also the most developed European states. The Union also draws upon other founding states, the Euro zone, as well as on the newly-created foreign and security policy. This idea of necessity to reinforce the dynamic core of the European Union was submitted already back in 1994, and the authors of this proposal were K. Lamers and W. Schäuble. Namely, faced with a diminishing cohesion of the European Union and with the growth of diversity following enlargement (Ipsen, 1994, pp. 83), in their “Reflections on European Policy” by the CDU/CSU parliamentary group, they had recommended the following: 1) institutional development of the Union; 2) putting in place of the subsidiarity principle; 3) establishment of a European government; 4) reinforcement of the Union’s “hard core” (Isensee, 1968, pp. 34); 5) reinforcement of the Union’s capacity in foreign and security policy. 3. Motives for European Integration Dealing with the question of the motives of European integration which have become evident in particular following termination of World War II and a decrease of the meaning of European powers in favour of two global great powers, it has to be stated that these formerly used to be summarized in some five most important points: 1) The wish for a new self-awareness, particularly as Europe, after numerous nationalistic meanders, | 41 should have offered the possibility for a new feeling of togetherness on a democratic basis. 2) Expectation of common power, considering the fact that the European states, in the course of the First and Second World War, were fragmented and had lost their power and dominance which they had had before 1914. The USA and the USSR became new world powers and purported the rules of a new intergovernmental power, so that smaller European nation states expected to regain a large part of the sporadically lost power with the help of a political union. In the unification and community, they saw their chance. 3) Desire for security and peace which could not be safeguarded by single nation states, particularly because they also had not been able to prevent the Second World War. 4) Hope for economic prosperity, for a united Europe should lead the people into an era of great prosperity and economic stability, bearing in mind the background that people had expected a common market to initiate a more effective economy and provide for freer trade. 5) The wish for freedom and mobility, given that people over many years were impaired by the state of war and were not able to move freely. This means that previously numerous motives militated in favour of a European unification, and today they do so, as well. Moreover, closer analysis reveals that the expectations in view of the European Union vary from country to country, and from time to time. In an opinion poll carried out on behalf of the European Commission in October and November 2001, the interviewees quoted in France, Italy, Luxembourg, in the Netherlands, in Finland and in Great Britain, the following as being the main tasks of the EU: “peace and security”, while in Germany, Greece, Austria, Spain and Portugal, they quoted “fight against unemployment”, and in Belgium, Ireland and Sweden “fight against crime and drugs”, whereas in Denmark “protection of the environment” was ranked first. Thus, in view of the motives for European unification, today six most important motives can be specified, namely: 1) peace-keeping; 2) belonging to a community of values; 3) increase of economic standard; 4) more influence in foreign affairs and security policy; 5) prospect of more success in the solution of international problems (e.g. in environmental protection), as well as; 6) strengthening of friendship among peoples (Janjević, Lopandić, 1996, pp. 11). Of course, another two, very important motives for European integration may not be forgotten, namely: foreign policy and safety political necessities and strengthening of good neighbourly relations. Through the accession of our immediate neighbours Romania and Bulgaria that has taken place in the last round of EU accession (in 2007), this process has been reinforced, in essence. Of course, to us the position of our country Serbia is very important, which, weakened by internal disaccords, wars and the ideological inheritance, missed the opportunity to join the positive processes of transition and integration on time. These processes inevitably have taken place around it, so that as a result, today Serbia under great efforts and challenges is anxious to compensate this significant historical omission in comparison to a large number of transition countries. Certainly, it is a matter of common knowledge that countries which have recently integrated into the European and Euro-Atlantic Community had to pay a high price of transition. Serbia apparently had to pay the highest price and is still paying it, today. In order to avoid this in future, it is essential that our country makes itself acquainted with the experiences of the states of Central and Eastern Europe, which already have gone through this stage, to adopt and apply these experiences and in doing so, to avoid mistakes, omissions and dilemmas, which these states had faced previously. 4. European Integration Models Federalism is aimed at democratic and clear methods, as well as on democratic legitimization, i.e. a statutory securing of its institutions and players. The federalization of the European Union is possible only if its citizens accept the organizational composition of the European Union as being legitimate (institutions, actors, models, allocation of duties belong to that). Therefore, the European Union exists, and 42 | it will exist as long as the Member States wish so. Any consideration, according to which in a federation as a complex state (e.g., in the European Union) the geographically larger unity dominates vis-à-vis the smaller ones, hence, according to which the Member States lose their own sovereignty (in the European Union), prevents the understanding and the acceptance of European integration. The European Union has its origin, legally and politically, in its Member States and in their wills to continue membership and to apply the law of the European Union. In the discussion on the future development of Europe, often clearly defined viewpoints are opposed to each other, which may be classified into four mainstreams: 1) The model of a “European Federal State” is based on a clear regulation of tasks and on contractually capable and democratically legitimized institutions at European level. The foundation is a written constitution with the common core values quoted. This concept was and today it is still supported chiefly by politicians from Germany, France, Belgium, Italy, the Netherlands and Luxembourg. Austria pleads for this concept, likewise, basically since its accession in 1995. 2) In the opposing model of “Confederacy of European States”, the governments of the Member States reserve the right to take a final decision concerning the solution of common problems on their own. Under this model, parliaments play a subordinated role. This model was and is today still being supported by the representatives of Great Britain and Scandinavia. Such concept is also supported in France and in Spain. 3) The model of “Europe of Regions” is based on the existence of strong regions, which at the same time act as the third level when making decisions. An advantage of this model is its closeness to the citizens, meaning the approximation to the citizen. The representatives of the regional level support this model, whereas the representatives of governments from states having a federal structure (Belgium, Germany, Austria) are reserved. Considered from this angle, Europeanization and regionalization have been in a very close relation and looked like two sides of a medallion. 4) The model of “Differentiated integration” is characterized by a stronger, partially or completely achieved unity of variously expressed consistencies of integration. Here, in the centre there is a federal core which is surrounded by arrangements of various forms of cooperation. In political practice, to date the models as listed above have not appeared in pure form (Jesse, 2002, pp. 17-18). 5. The European Union’s Perspective The ratification of the Maastricht Treaty in the Member States of the European Union turned out to be more difficult and more tedious than expected. Referenda on the European Union were held in Denmark, Ireland and France. While the two last-mentioned states voted in favor of the project of the Treaty, 50.7% of the Danish citizens voted against the Maastricht agreement, which meant a risk that significant reforms included therein could be possibly jeopardized. For this reason, the perspective of the European Union appears to be a radial point for the whole process of stabilization and development of regions, while at the same time offering a real perspective to the peoples of the Balkans and the international community towards stability, cooperation and prosperity, in spite of all conflicts of the past. Therefore, the European Union is at a key point. In the coming years, one of the challenges will be to make sure that the citizens do not just feel like passive actors any more, but rather like protagonists of Europe. Bearing this in mind, the political unity and the foundation of identity will probably become an extremely complex and delicate process (Ismayr, 2012, pp. 376). In several stages, the number of members has increased from 6 to 15, and as from 2004, to 25 states. In 2004, Hungary, Poland, the Czech Republic, Slovakia, Slovenia, Latvia, Estonia, Lithuania, Malta and Cyprus were admitted to the European Union, as well. In the years to come, political and scientific discussions will deal with the question of the borders of the European Union. This means an Europeanization of politics. | 43 The European alliance had begun in the field of economy, however, from the beginning it was clear that the project of integration of Europe was also politically motivated. Basic tasks and purposes of the creation of the European Community / Communities (and the European Union, respectively) were based on three agendas: 1) Increase of the standard of living in the Member States of the Community; 2) Realization of a policy of full employment; 3) Extension of economic cooperation (primarily within the scope of the Community). In the course of the time such a European Union emerged, which bases its work on the cooperation among the Member States’ governments (intergovernmentally), as well as on specifically implemented bodies, and on common decision-making methods (supranationally). The integration flows of the European Union have put into practice some basic freedoms of trade, namely: 1) free movement of persons; 2) free movement of services; 3) free movement of goods; 4) free movement of capital. At the same time, the European Union would have to render assistance to potential new members in their transformation processes, in order to jointly with the accession candidates improve the status quo, to structure the negotiation process, and to elaborate transitional regulations. Consequently, this means that two complex processes, i.e. deepening and enlargement, must develop simultaneously. Balkan states, in order to acquire their new European status, and on that way, to use all above mentioned benefits, need primarily to achieve economic standards close to those of the EU members. This is particularly important in terms of GDP growth, maintenance of a stable rate of inflation, inflows of foreign investment, strengthening the finance sector, especially financial capital market, modern fiscal system, reliable juridical system, competition environment and state aids rules, one stop agencies and so on (Danevska, 1999, pp. 88). Due of the admission of new Member States, in 2007 the European Union has substantially changed its face in comparison to the year 1989: today it counts 27 members whose 500 million citizens constitute a big common market. Its external frontier has relocated far towards the East, which represents a new challenge in the field of border protection, but also of domestic and legal policy. Considering the factors mentioned previously, the European Union has tackled a great reform of its internal structure. At the beginning of the 21st century, at least four basic questions arise for the Union in the strained situation of deepening and enlargement, in connection with:1) the finality of Europe; 2) the identity of Europe; 3) Europe’s capacity to act; 4) a steady political frame for the currency of the European Union. 6. Conclusion The European Union must stick up for the citizens more than the national political systems do. A general compliance for a European alliance does not stand alone, any more. Therefore, information on the construction and further work of the European Union is a central task of all institutions of the Union. One of the reform issues of the Convention on the Future of Europe is to make legislative acts at European level public. The European Union’s future is not predictable, since it is again faced with the great necessity of changes. 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Hesse, K., Grundzüge des Verfassungsrechts der Bundesrepublik Deutschland, 19. ed, Heidelberg 1993. Hesse, C., Informationen zur politischen Bildung, bpb, 2nd quarter 2003, No. 279. Hilf, M., Europäische Union: Gefahr oder Chance für den Föderalismus in Deutschland, Österreich und der Schweiz?, in: VVDStRL (53) 1994. Hrbek, R., Das Subsidiaritätsprinzip in der EU – Bedeutung und Wirkung nach dem Vertrag von Amsterdam [The subsidiarity principle in the EU – meaning and effects following the Treaty of Amsterdam], Jahrbuch des Föderalismus [Annual of federalism], 2002, EZFF (ed.), Tübingen. Hrbek, R., „Europäische Föderation“ als Leitbild für die EU?, in Europäischer Föderalismus im 21. Jahrhundert, Schriftenreihe des Europäischen Zentrums für Föderalismus – Forschung, Tübingen, Band 24, 1. Auflage 2003. Hübner, E., Parlamentarisches Regierungssystem und Gewaltenteilung, in Informationen zur politischen Bildung, bpb (ed.), Neudruck, 2000, No. 227. Ilić – Gasmi, G., Reforme Evropske Unije - institucionalni aspekti, Beograd, IGP „Prometej“, 2004. Ilić – Gasmi, G., Koreni stvaranja Evropske Unije – od federalizma do funkcionalizma, Revija za evropsko pravo, I 1999, 1999. Ipsen, J., Staatsrecht I (Staatsorganisationsrecht), 6. ed., Neuwied/Kriftel/Berlin 1994. Isensee, J., Subsidiaritätsprinzip und Verfassungsrecht: Eine Studie über das Regulativ des Verhältnisses von Staat und Gesellschaft, 1968. Ismayr, W., Der deutsche Bundestag, Springer Fachmedien Wiesbaden, 2012. Janča, D., Pravo Evropskih zajednica, Novi Sad, 1980. Janjević, M., Lopandić, D. (ed.), Sporazum iz Šengena - za Evropu bez granica, Beograd, 1996. Jesse, E., Geschichte des Parlamentarismus in Deutschland, in Informationen zur politischen Bildung, 2nd quarter 2002, bpb, No. 275. | 45 46 | Edyta Sokalska University of Warmia and Mazury in Olsztyn [email protected] Historical Conditions and Philosophical Background of the Idea of the United Europe Abstract It is significant that the history of the European Union it is not only founding treaties but above all this is an idea that has been accompanying the inhabitants of Europe since times of the king of Franks Charles the Great. It consisted in creating the union of countries out of the countries of Europe and making the community. The idea could be also seen in the Christian universalism and in the writings of XVIII-th and XIX-th century philosophers and thinkers (Jeremy Bentham, Immanuel Kant, Pierre Joseph Proudhon, Claude Henri de Saint-Simon, Jean Jacque Rousseau) and even in the works of Niccolo Machiavelli (XV/XVI-th century) that will be described wider. Jean Jacque Rousseau stated that the European republic could have been built by people if they would have been politic decision-makers. He thought that there was not any different way than revolution for realization of federative organizations. The representative of utilitarianism was an English philosopher Jeremy Bentham, who in one of his works wrote on the subject of the international law. One of the chapters was entitled “The Plan of Everlasting and Universal Peace”. He signalized there that among nation should have been peace and they should have united for dissolving arguments peacefully. Pierre Joseph Proudhon his concepts of federal unity presented in two works: The Principle of Federation and Of the Political Capacity of the Working Class. He assumed that the panacea for all problems was federalism. He proposed introduction of federal principles in the European countries and subsequently, creating federations of more spacious terrains. The main condition of creation the European federation was organization of federal countries at first. Immanuel Kant created “The project of everlasting peace”. He proposed that the federation of free states should have come into existence. He assured that the lonely state would have not been able to provide peace. In the new federation he demanded putting into practice the following rules of international existence: equality of states, the end of secret diplomacy, forbidding of the usage of power. Claude Henri de Saint Simon publicized the work, where he proposed reorganization of the European society. He postulated the urgency of gathering the European nations into one political organization. Saint Simon pointed out that “this political organization should create a special parliament body that should have over - nation’s prerogatives and competence to judge arguments and disputes. Ideas of the European integrity started too reborn during the World War II. Pan-Europe and federalist plans contributed in creating the European Community. After the World War II, moves towards European integration were seen by a lot of people as an escape from the extreme forms of nationalism that had devastated the continent. The 1948 Hague Congress was a pivotal moment in European federal history. The originators and supporters of the Community include Alcide De Gasperi, Jean Monnet, Robert Schuman and Paul-Henri Spaak, Konrad Adenauer, Joseph Bech, Johan Beyen, Winston Churchill, Walter Hallstein, Sicco Mansholt, Jean Monnet, Altiero Spinelli. The visionary leaders have inspired the creation of the European Union we live today. Without their energy and motivation we would not live in the sphere of peace and stability. The founding fathers had inspired the project of European cooperation but we should also remember about the philosophers who had made a contribution to the development of the integrity idea. | 47 Keywords: federalism, history, philosophy, European integrity, community, ideas 1. Introduction The European Union as geo-political entity that covers a large amount of the European continent has long traditions and deep roots. The direct originators and supporters of the Community include Alcide De Gasperi, Jean Monnet, Robert Schuman and Paul-Henri Spaak, Konrad Adenauer, Joseph Bech, Johan Beyen, Winston Churchill, Walter Hallstein, Sicco Mansholt, Jean Monnet, Altiero Spinelli. The visionary leaders have inspired the creation of the European Union we live today. Without their energy and motivation we would not live in the sphere of peace and stability. The founding fathers had inspired the project of European cooperation but we should also remember about the philosophers who had made a contribution to the development of the integrity idea. It is significant that the history of the European Union it is not only founding treaties but above all this is an idea that has been accompanying the inhabitants of Europe since times of the king of Franks Charles the Great (or even earlier). It consisted in creating the union of countries out of the countries of Europe and making the community. The idea could be also seen in the Christian universalism and in the writings of XVIII-th and XIX-th philosophers and thinkers. Previously, in Europe there have been empires built on force, for example Roman Empire or Frankish Empire. It has changed due to the peaceful consolidation of European territories after the World War II. It should be taken into account that such a consolidation would not have been born without some background principles that came from varied sources. After two devastating wars European society turned to the idea of some form of unified Europe. The object of research are philosophic ideas concerning European integrity. Chosen philosophers will be taken into account as Jeremy Bentham, Immanuel Kant, Pierre Joseph Proudhon, Claude Henri de Saint-Simon, Jean Jacque Rousseau and Niccolo Machiavelli whose ideas will be described broader. Also only some chosen historical events that could be seen as the basis for the European integrity will be introduced. The purpose of research is to identify and to introduce thoughts and ideas of philosophers who built the background for the European integrity and some historical events and undertakings that were important to the building the European common word. 2. Ideas of integrity It is frequently noted in the subject-related literature that the most frequently cited point of reference for Europe as a whole has been the empire of Charles the Great. In a short period of time he incorporated Italy, Istria, and North Germania into Regnum Francorum. In 1800 he was crowned Roman emperor and became the guard of Christian religion. Political aspirations and rivalry of his sons in 843 led to the division of the empire and to the loss of the peripheral duchies and lends during the successive years (Łaptos, Prażuch, Pytlarz, 2003, pp. 10). The integrity felt in the west of Europe as Christianitas was disturbed by arguments between papacy and the empire. The conflict concerned the appointment of Caesar, the selection of bishops and releasing subjects from an oath to the emperor. Characteristic events that period of time were the route of Henry IV to Canossa or the glory of Philip IV of France over Pope Boniface VIII. Longing for a stable situation put an end to this rivalry by the transfer of the pope residence to Avignon in 1305. Engelbert von Admont -a German monk described that situation in his literary work Ortu et Fine Romani imperia. He postulated the necessity of existence of “one empire and one head”. Due to analysis of the situation of varied countries he stated that the idea and undertaking that could have joined them together was a common war between Christian and pagan worlds. The emperor could have been the judge among the kings and he would have judged in accordance with natural law (Łaptos, Prażuch, Pytlarz, 2003, pp. 11). In the beginning of the XIV-th century Pierre Dubois who was an adviser to Philip IV of France put forward a proposal for creation of Christian states confederation that should have had a lead- 48 | er and an international mediatory committee. There was the need of a person and committee that would have played the role of a judge and a mediator. Dubois was in flavor of the control of secular power over clergy power in Europe. He called clergy hierarchy for giving back the offices and he assumed France as the most important state. At the same time Dante Alighieri came up with the idea of rebirth of the Roman Empire. In the XV-th century King George of Podebrady intended to organize the union of Christian European kings. It can be considered as a proposal of quasi European Union. He attempted to sign a treaty among all Christian powers. The state-members would have pledged to settle all differences by the means of peace. There would have been a kind of parliament with over national competence. Every members of the union would have had the same position and the position of the emperor would not have been higher. He did not predict the membership of Pope in this enterprise that was why he was criticized for his assumptions. The Message of Peace promoted the idea but the treaty had never come into effect. Erasmus of Rotterdam- philosopher and religious reformer came back to that concept in modern ages. He condemned Christian sovereigns and rulers for the conflicts among them and in their cooperation he saw the possibility of opposition to Ottoman Empire. European integrity it is not only the integrity of varied states but also the bureaucratic corps. As far as the organization of European administration is concerned separation of the state or bureaucratic bodies in the European countries have been gradually created. Completion of this process is commonly associated with the era of absolute monarchy which prepared the ground for the development of the modern concept of bureaucracy. Much earlier, however, we can also deal with a variety of bureaucratic structures. Some of them have grown into a model in terms of the efficiency of the operation, such as in the Greek polis, or ancient Rome. Others, such as those with early feudal monarchy showed regression of the organization, resulting from the fact that the roles of the officials were executed by unprofessional actors performing their duties and certain functions in the feudal structure. This practice was reinforced by the practice of buying or inheritance the offices. It was far away from the standards of professionalism. Hence, the power of officials was often of private nature than of public dimension. Standards of competence relating to the implementation of state power as a kind of public authority were not focused on the implementation and protection of the common good. Niccolo Machiavelli at the turn of the XV-th and XVI-th centuries shows in his writings a lot of varied ideas relating to well organized state, state power and bureaucratic corps. The author of The Prince wrote about an imaginary state and prince but the main ideas can be also transferred into wider political system as the European state. The activity of Niccolo Machiavelli in the field of the reflection on bureaucratic practice coincides with the medieval times that break the trend and develop new categories connected with the organization of the state. Undoubtedly, his view on administration was determined by the political perspective in which the administrative apparatus should have been one of the stones of effective state power, being capable of arrange deliberately and rationally collective life. In the period of the early renaissance Machiavelli’s perception of a state and law was pioneering. In Machiavelli’s literary achievements there is a number of socio-technical ideas that have a form of recommendations how to make social transformation in order to achieve its goals, the real basis of power. At the same time there is the secondary issue, to decide whether it should be a monarchic or a republican government. It is important that it would be capable of carrying out the most important goals for the country and social existence. Machiavelli considers social-technical aspects of the rule of law and accountability of rulers. His doctrine combines the power of the prince being acceptable to justice and focused on his public dimension. The issues concerning the administration are discussed in two contexts. The first relates directly to the authority of a prince, the other to the functions of the government officials such as provincial administrators, ministers and diplomats. It must be stressed that his considerations often combine detailed recommendations with a higher level of abstraction, referring to the essence of princeps’ power. The studies on the officials are conducted in terms of the importance of the group of people for the prosperity of the prince, and, as a consequence, for the people (Respublika). The present author sees here the following causal relationships: Duke who | 49 depends on the stability and development of the state is above the law and he has the opportunity to create good administrative apparatus and, consequently, the behavior of justice betrays the law of the tyrant, and the selection of officials is mainly dictated by their servility and flattery skills, leading to the degeneration and destruction of bureaucratic justice. Thus, a person standing at the head of a public body has got a decisive contribution to the quality of his officials. In turn, their selection indicates integrity and quality of the charisma of a king. A good prince can gather people who are loyal, law-abiding, with appropriate skills for the job. The worse prince will gather the officials who can be expected of doing injustice and arbitrary will of the prince. Machiavelli’s doctrine is hardly a coherent, comprehensive philosophical system. There are presented some epistemological, anthropological or historiosophical elements but formulating theses do not form a coherent scientific theories. The method used by the author of The Prince is original and largely pioneering combination of practical recommendations, empirical observation, historical knowledge, and overall mental acuity. His approach can be seen with a big dose of relativism. It is worth mentioning that an interesting aspect of the performance of the clerical profession of Machiavelli shows his biography. Paradoxically, despite the fact that the Prince was associated with the intriguing and lack of remorse activities, Machiavelli turned out to be a good clerk. For 14 years he has been serving his republic impeccably honest. Machiavelli, as we would say today, he occupied a self-management position. About his style of managing people say in their correspondence. It turns out that he gathered people around him with similar mentality, education and political convictions. He was able to transform subordinates and make friends with the staff of the Second Chancery. He was a haughty and stern boss. He did not expect prostration but professionalism and integrity. Much of Machiavelli’s literary production is devoted to the description and analysis of the various methods of governance and institutional organization of the state. The author of The Prince, as well as a few centuries later Max Weber, but in much less structured version, he presented the justification of the legitimacy of political power. He also presented how it works. If we put aside some social-technical reflections in the writings of Machiavelli, we are able to obtain the outline of the varied types of government (Riklin, A., 2000, pp. 10-25). In a broad and long term perspective, the law with the coercive measures of political institutions can create political structures that suppress the dangers of both the abuse of power, as well as the paralysis characteristic of lawlessness and lack of accountability for the common good. In the writings of Machiavelli a clear awareness is present. Even the best philosophy is not enough to guarantee a good state for the creation and administration of the challenge of brute force and ill-will of politicians (Berlin, I., 1986, p. 254). In the XVIII century there were also attempts to find guaranties of peace and security in Europe. In practice and in political thoughts they referred to setting the balance as far as the power was concerned. Charles Castel also known as priest Saint Pierre was the author of Project for Everlasting Peace in Europe that was publicized in 1713. The project stated that European countries should have created a union that would have cooperated in the sphere of safety and trade. Jean Jacque Rousseau stated that the European republic could have been built by people if they would have been politic decision-makers. He thought that there was not any different way than revolution for realization of federative organizations. The representative of utilitarianism was an English philosopher Jeremy Bentham, who in one of his works wrote on the subject of the international law. One of the chapters was entitled “The Plan of Everlasting and Universal Peace”. He signalized there that among nation should have been peace and they should have united for dissolving arguments peacefully. Pierre Joseph Proudhon his concepts of federal unity presented in two works: The Principle of Federation and Of the Political Capacity of the Working Class. He assumed that the panacea for all problems was federalism. He proposed introduction of federal principles in the European countries and subsequently, creating federations of more spacious terrains. The main condition of creation the European federation was organization of federal countries at first. 50 | Immanuel Kant created “The project of everlasting peace”. He proposed that the federation of free states should have come into existence. He assured that the lonely state would have not been able to provide peace. In the new federation he demanded putting into practice the following rules of international existence: equality of states, the end of secret diplomacy, forbidding of the usage of power. Claude Henri de Saint Simon publicized the work, where he proposed reorganization of the European society. He postulated the urgency of gathering the European nations into one political organization. Saint Simon pointed out that this political organization should create a special parliament body that should have over-nations prerogatives and competence to judge arguments and disputes (Sikora, 1991, pp. 7-132). 3. Historical background of the idea of the united Europe It is worth to underline that creation of superpowers and intense rivalry among them as far as influence on the sphere of politics and economy was concerned were the factors that contributed to the outbreak of the World War I. That war was not profitable even for the winners and it made huge devastation of the land. Due to that fact there were made some efforts to set up a peaceful federation and the League of Nations was appointed. The founding of the League of Nation can be seen as a result of the Paris Peace Conference ended the World War I. The league’s main purpose was to keep world peace. Covenant- the League of Nation body-should have prevented wars by organizing international discussions, negotiation, arbitration, collective security and disarmament. There were also the other issues that were taken into account, as global health, human and drug trafficking or protection of minorities in Europe (Before the League of Nations. [online]). As the United Nations came into existence in 1945, the League of Nations was formally dissolved in 1946, but has not operated even during World War II. The United Nations met together for the first time in November 1920. Regular meetings were held up to 1941. Each member of the League had one vote. The member state was represented maximum by three delegates. Meetings were held once a year but they would have been called more often. The Assembly would have considered all the matters related to the organization activities for world peace. The Council agreed to submit to the assembly an annual report on its work. Confirmed those equal powers of the Assembly and the Council has closed the vision of the problem assembly as “over-parliament” and the council as “over-government”. The competence of the assembly was quite extensive. It was entrusted with all matters falling within the scope of the League activity and also all actions regarding peace. The most important were: admission of new members, the selection of permanent and non- permanent members of the Council, the acceptance of the nomination of the secretary general to consider disputes submitted by the Council, to invite members of the league to re-examine their existing treaties, voting on the amendments to the Covenant and the statute of the Court of International Justice, reporting requests and advisory opinions. Fore the first session of the Assembly there came 42 delegates of the league members. It was opened by the delegate of Switzerland Giuseppe Motta. The composition of the Bureau of Assembly was made of the representatives of six General Commissions. The program of work of the first commission overcame constitution affairs, the rule of procedure, amendments to the Covenant, the relationship between the Council and the Assembly and their competence and the subject of the appointment of non-permanent members of the Council. The second commission dealt with rather technical issues, as relations between the Council and the Assembly, the establishment of a permanent organization for the cases of hygiene, implementation of the agreements on the treatment of women and children. The third commission analyzed proposals for the international court. The fourth commission was engaged in financial matters and the fifth commission dealt with handling of applications for accession to the League. The sixth was concerned by the problems of arms, the possible application of “economic weapon” and mandates. At its greatest extent in 1934-1935 the League has 58 members. The diplomatic philosophy | 51 represented a fundamental shift from the preceding of the years before. The League of Nations did not have its own armed force and it had to count on the forces of superpowers. After obtaining a number of successes but also some failures the League was not capable of preventing the Axis powers aggression in the 1930s. The outbreak of World War II showed that The League of Nations did not fulfill its primary purpose concerning keeping world peace. The organization of the United Nations inherited chosen organizational structures and agencies, and replaced the League of Nations. In the inter-war period some far-reaching plans of united Europe there were introduced. Unfortunately, they did not come into effect. In 1923 Richard Coudenhove- Kalergi – an Austrian aristocrat and politician- came up with the idea of creation the united states of Europe. He published an essay Paneuropa. There would have been parliamentary system where two parliamentary bodies would have been created. He underlined the functions of European common history, in particular, Roman-Greek and Judeo-Christian legacy. The concepts of Coudenhove –Kalergi gained popularity among the elite of Europe. He assymed that the union could have consisted of the majority of the European states but it was in conflict with the Great Britain, the USSR, the United States of America and some Asiatic countries. In fact, in 1924 the Pan-European Union was created. In 1926 in Vienna the congress of the Pan-European was held. There were delegates from 24 countries b. Unfortunately, the ideas of the Austrian politician were not put into practice because he wasn’t supported by France. This country assessed critically pro-German sympathies of Coudenhove-Kalergi. On the other hand, Germany stopped supporting him after Hitler had gained the power. In 1927 the second congress took place in Brussels and the Honorary President of the Pan-European Union – Aristide Briand- was chosen. He presented the idea of the united states of Europe and he invoked the League of Nations regulations concerning the possibility of creating some local pacts. He was known as “a pilgrim of peace”. The basis of the idea was the federation of the European nations based on the solidarity of political and social cooperation. The idea was supported by a lot of economists including J. M. Keynes. In 1931 Eduard Herriot - a French politician – published a book entitled ”The United States of Europe”. It is significant that the great economic crisis, the rise of fascism and the World War II stopped the movement for the unification of Europe. The idea of European integrity started to reborn in the course of World War II. In 1941 an Italian communist- Altiero Spinelli (who is considered as one of the founding fathers of the European Union) together with his co-habitant from prison Ernesto Rossi wrote a declaration calling for free and united Europe Per un’Europa liberta e unita. The declaration was known as Ventotene Manifesto (an ideological program) after establishment of the Movimento Federalista Europeo in 1943. In the declaration authors argued that after the war the federation organized by democratic powers should have place. The Manifesto put forward the proposal of creation the federation that primary purpose was to tie up closer the European states and to prevent war. The movement toward the federalist idea was in fact a reaction to the destructive influence of nationalism. In 1942, the Prime Minister of the Great Britain in his note addressed to Anthony Eden wrote that it was hard to believe but they hoped the European family could have been organizing under the auspicious of the European council. On the 19 September 1946 in Zurich Churchill stated that the remedy for post-war damages is the rebuilding of the European family and organizing structures that would be the guaranties of the peace and freedom. The first thing should have been the partnership between France and Germany. That speech was ended with the appeal of creating the Council of Europe that would have been the basis for the cooperation among them who are not able, for some reasons, to attend the federal structure (Jonczek, 2008, p. 118). It is worth mentioning that the appeal of Winston Churchill manifested a noticeable integrative movement in the west of Europe. In the period of 1946-1947 the renaissance of European movements and organizations and the Pan-European Union was one of the most important organizations. In 1947 an international committee for the integration of Europe was created. The committee summoned a huge European congress in Hague. There were delegates from 25 states. Participants of the meeting agreed as far as the main purpose was concerned: the European integrity (Góralski, 2007, p.38). 52 | During that congress there were passed three main resolutions: cultural, economic- social and political. The cultural one reminded the common heritage of European civilization. It also underlined the necessity of creating the basis for escalation of European consciousness by the means of books, press, films and educational programs. The economic resolution demanded the European integrity in the sphere of economy by reducing trade barriers, liberalization of financial capitals, unification of the currency, and harmonization in social law. The political resolution pointed out that the Union unity is the one condition of safety guaranty of European continent. The resolution also assumed that the structures created in the first days after war would not be able to resolve all the problems of the European states. As a consequence, it forecasted the integrity of Europe on the basis of a few international structures where the representatives of European countries would have a sit. The 1948 Hague Congress was a pivotal moment in European federal history. It led to the creation of the European Movement International and also of the College of Europe, a place where Europe’s future leaders would live and study together. In 1952 the creation of the European Coal and Steel Community, which was declared to be “a first step in the federation of Europe” started with the aim of eliminating the possibility of further wars between its member states by means of pooling the national heavy industries. The founding members of the Community were Belgium, France, Italy, Luxembourg, the Netherlands, and West Germany (Burgess, M., 2000, pp. 55-101). 4. Summary The idea of European integrity manifested in creation of over-national integrity structures. The realization of integrity was undertaken by some European emperors as Otto III or Napoleon that made some efforts to build some kind of common European world, though these undertakings failed. There were also some philosophers that presented in their works that European unity would be better for some reasons, for example economic, social or fulfillment requirements and needs in the sphere of peace and safety. It is interesting to consider that Niccolo Machiavelli’s writings concerning a good prince, the head of a state and appropriate administration can be also seen in the perspective of the well governed and administrated European state. The word “politics” he used to use in the narrower sense than it was assumed. In his opinion politics was relating to the external security, peace, stability and at last – prosperity. It did not include education or the realization of moral ant ethic ideas. Political realism is for the philosopher is only a method for the investigation of the social and political life. We reject the model of perceiving reality through the prism of how it should look. The key is the knowledge derived from historical experience and empirical observation. This understanding of the policy includes utopian thinking. Machiavelli came to the issue in the scientific-technical manner. He did not judge but described the politics as it was a mechanism. Therefore, the AngloSaxon tradition considers him as the father of political science. He is also recognized as a founder of modern political philosophy and the discoverer of “the new moral continent”. The human nature for him is consistent and human behavior can be predicted if only historical knowledge is in our disposal. The history shows that peace and stability can be obtained by common creation of particular international structures that can be able to obtain the common goals and purposes. The originators and supporters of the European community have inspired the creation of the European Union we live today. References Barcik, J. & Wentowska, A. (2011). Prawo Unii europejskiej po Traktacie z Lizbony. Warszawa: C. H. Beck Barcz, J. (2010). Podstawy prawne Unii Europejskiej. Warszawa: PWN. Schofield, P. (2006). Bentham: a Guide for the Perplexed. London: Continuum. | 53 Burgess, M. (2000). Federalizm and the European Union: The Building of Europe: 1950-2000. London: Routledge. Czachór, Z. (2004). Zmiany i rozwój w systemie Unii Europejskiej po traktacie z Maastricht. Wrocław: Atla 2. Czarczyńska, A. & Śledziewska, K. (2007). Teoria europejskiej wspólnoty gospodarczej. Warszawa: C.H. Beck. Domagała, A. (2008). Integracja Polski z Unią Europejską. Warszawa: Wydawnictwo Akademickie i Profesjonalne. Doliwa-Klepacki, Z. M. (2003). Integracja europejska. Białystok: Temida 2. Galster, J., Witkowski Z. & Witkowska, K.M. (2006). Kompendium wiedzy o Unii Europejskiej. Toruń: TONiK. Góralski, W. M. (2007). Unia Europejska. Warszawa: Wolters- Kluwer Polska Jonczek, J. (2008). Od Rzymu do Maastricht. Poznań: Wydawnictwo Naukowe Contact. Łaptos, J., Prażuch ,W. & Pytlarz, A. (2003). Historia Unii Europejskiej. Kraków: Albatros. Łastowski, K. (2004). Od idei do integracji europejskiej. Warszawa: Wyd. WST TWP. Machiavelli, N. (1994). Książę. Warszawa: Książka i Wiedza. Pinder, J., Usherwood, S. (2009). Unia Europejska. Warszawa: Polskie Wydawnictwo Ekonomiczne. Riklin, A. (2000). Niccolo Machiavellego nauka o rządzeniu. Poznań: Wydawnictwo Poznańskie. Rosen, F. (1993). Jeremy Bentham and Representative Democracy: A Study of the Constitutional Code. Oxford: Clarendon Press. Sikora, A. (1991). Saint-Simon. Warszawa: Wiedza Powszechna. Berlin, I. (1986). Oryginalność Machiavellego. Literatura na świecie.6. Mikołajczyk, M. (2011). Jak się rodziła UE. Tygodnik Polityka. 17. Wistrich, E. (1990). Droga Europy do zjednoczenia. Sprawy Międzynarodowe.10. Lisbon treaty. [online] Available at: <atttp://www.europa.eu/lisbon_treaty/glance/index_pl.html> [ Accessed 10 May 2013] Kant, I. (1795). Perpetual Peace: A Philosophical Sketch. [online] Available at: <www.mthdyoke. edu > [ Accessed 10 March 2013] United Nations Office at Geneva. Before the League of Nations. [online] Available at <www.unog. chn> [ Accessed 12 March 2013] 54 | Małgorzata Augustyniak University of Warmia and Mazury in Olsztyn [email protected] The doctrine of integration of Jean Monnet Abstract The dynamics of European integration has many dimensions which are the subject of theoretical and empirical, and that affect the nature of the phenomena occurring in Europe. Since the beginning of the unification process after World War II functioned different political visions and different models of integration. This article applies the concept of Jean Monnet, the French commissioner for planning. Its design was based on the idea of ​​phasing in federal solutions by creating real relationships between countries and look for the corresponding political systems. It assumed evolutionary related to the real possibilities of the subordination of the integration dynamics pragmatic purposes related to the construction of European unity. The foundation of this unity was to be a sense of common interest of European solidarity and identity. Hence, the most important area of ​​cooperation was to be the economy. The doctrine of J. Monnet became the basis for the creation of the European Communities in the years 1951-1957 and was reflected in the decision to establish economic integration ECSC, EEC and the Euratom. Keywords: sectoral integration, federalism, sovereignty, transnationality, pragmatism 1. Introduction European integration is still an unfinished process, providing room for the political will of creation. A principal driving force for this process is the human ability to act, to forgive, to make and keep promises. This will enable creation of political bodies based on agreements and treaties, which, using Arendt’s words, create “islands of predictability and guideposts of reliability” in an ocean of uncertainty (Arendt, 2010, p. 277). Mutual contracts provide sovereignty which “is always spurious if claimed by an isolated, single entity, be it the individual entity of the person or the collective entity”. (Arendt, 2010, p. 277). One of those who saw the need to change the understanding of sovereignty was Jean Monnet. He belongs, besides such figures as Robert Schuman, Alcide De Gasperi or Konrad Adenauer, to the group of péres fondateurs referring to the ideological programme of the American Founding Fathers and should be regarded, just like them, to be precursors of a new epoch. The main aim of their work was to build a united Europe to guarantee the peace, strengthened by cooperation and a drive towards solidarity and prosperity. The contribution of Monnet as the person who laid foundations for today’s European institutions is unquestionable. However, on the centennial of his birthday in 1988, when the French were asked about Monnet, as many as 56% did not know who he was, and 24% associated him with the famous painter (Mikołajczyk, 2007, p. 9). It seems that the figure and assumptions of Monnet are also not too well-known in Poland, particularly since the literature concerning this subject matter is quite scarce. It includes a study by M. Mikołajczyk, entirely dedicated to Monnet and publications which only refer to or shortly discuss his activity in the field of European integration (e.g. Łukaszewicz, 2002, Madeja, 2010, 2011). The international literature is richer and more diversified. Particularly interesting works have been published by Duchên (1994), Fontain (1988), Bossuat and Wilkens (eds. 1999), Roussel (1996). Literature of an autobiographical and epistolary character should be also taken into account: (Monnet, 1976), (Monnet, Schuman, 1986). Monnet is also mentioned in the memoirs of several outstanding Europeans, such as Robert Schuman, Konrad Adenauer, Paul-Henri Spaak, Robert Marjolins and Valery | 55 Giscard d’Estaing. In this article, I analyse the historical and doctrinal issues related to the beginning of the European community and Monnet’s influence on the course of this process. The method assumed is determined by the specificity of the Monnet’s approach, who should not be perceived as a supporter of model-based or a priori politics. He was not a dogmatist, and his attitude was dominated by pragmatism, directed to “materialisation” of specific ideas when optimum conditions emerge. The views of Monnet evolved, remaining in a close relationship with the events in which he was engaged and, quite frequently, those which he initiated himself or developed in cooperation with others. Since he usually presented his assumptions in the context of a specific situation, they do not form an academically coherent system. Therefore, it is possible to infer his ideas by way of analysing his specific actions, while their fullest image can be obtained by presenting them in chronological order. In this manner, the relationship between facts and views can be outlined, revealing the genesis of the latter, facilitating an attempt to generalise the mechanism of their crystallization. Monnet thought about politics in categories of long-time planning. He is sometimes described as a pragmatic visionary and a transformation leader, because of his creative and effective impact on circumstances (Burns, 1978). His most general reflection and writing activity is secondary and derivative in relation to his practical activity in the public space. A biographer of Monnet – Eric Roussel – emphasises his unwillingness to brood over the past and provide thoughts with a final, defined shape, thus exposing them to impoverishment and petrification (Mikołajczyk, 2007, p. 203). Although at the end of his life Monnet wrote his memoirs, it was rather important to him to extend the life of the ideas he declared. Memoires are a political will, “panegyric in honour of the will to act, (…) the balance of life but also a lesson for future generations” (Bossuat, Wilkens, 1999, p. 436). Therefore, the memoirs also include a touch of propaganda, since it is through them that Monnet sought to shift the public opinion to specific views, thus reinforcing his own political activities. If we add the subjectivity of depiction, typical for this type of work, it is hard to regard the memoirs themselves as a sufficient source of information about this figure. In order to reconstruct Monnet’s ideas, I shall follow his view on the state and power and his approach towards integration, expressed from the beginning of his political activity until the establishment of the European Coal and Steel Community, which I consider to be fundamental for “materialisation” of the idea of European integration. Monnet’s basic views on the role of the state and the importance of sovereignty within a broader community are rooted in this period. These findings make up part of the context of his motivation and provide the premises for activities aimed at implementation of a specific vision. Therefore, it seems justified to choose the specific actions and conditions in which they occurred to form the main subject of research. The adoption of such an interpretation perspective will make it possible to analyse the abstraction layer in conjunction with various historical determinants. 2. Biographic note Jean Monnet was born in 1888 in the French town of Cognac. His father was a cognac producer and merchant. Shareholders, suppliers and customers often came to the Monnet home, where world issues were discussed at the table in the same way as typical issues concerning one’s own locality are usually discussed (Monnet, 1976, p. 42). While listening to these discussions, young Jean became convinced that foreigners were not worse than his fellow countrymen and that the prosperity of the French was related to the prosperity and peaceful relations with foreigners (Łukaszewicz, 2002, p. 92). It is difficult to precisely determine the effect of the family environment on the later perception of international problems. Nevertheless, we can derive certain values that are present throughout Monnet’s life – a cognitive openness towards issues and people; tolerance, faith in effectiveness of problem solving by means of other methods than by 56 | force, through dialogue, negotiations, mediation; aversion to xenophobia and nationalism (Fontaine, 1991, p. 17-18); pacifism (Monnet, 1964, pp. 2-19). Monnet finished his formal education at the age of 16, without even approaching the secondary school final examination. This step was approved by his father, who wanted his son to speak foreign languages fluently and derive knowledge from direct observation of the world and contacts with people. With this aim in view, he sent him off to England, with the following advice: “Don’t carry any books. Nobody will think for you. Look through the window, talk to people” (Fransen, 2001, p. 9). Monnet himself in his memoirs also approved of his path of development – “Very soon my instinct told me that the thought can be distant from the act”. (…) Therefore, why go on a roundabout road, studying law and living in a room in Poitiers, when I could go to the school of life and see the world?”(Monnet, 1976, p. 40). A distance to bookish knowledge and aversion to abstract, speculative considerations were demonstrated by Monnet throughout his whole life. Afterwards, the young Monnet moved to Canada and the United States, which he perceived as a highly dynamic state of huge possibilities which was much more focused on the future than Europe. Due to his journeys and his unusual gift of charisma, Monnet established contacts with influential persons, which helped him later on to build a network of informal relations on both sides of the Atlantic. In addition, throughout his entire public life, he believed that one could achieve a lot beyond the official structures. His tendency to discretion and aversion to media publicity were commonly known. He gained the name of “éminence grise”, who would rather stay behind the scenes and skilfully put forward his own ideas to persons holding power. 3. Beginnings of public activity One can reflect on how in this world, in which prestigious studies, wealth and connections usually play an important role, a man without those assets achieved such a position in the field of international cooperation. The first public activity entrusted to Monnet was, to a significant extent, the effect of chance. When the First World War broke out, Monnet, due to his health problems, was released from military service. He stayed in Cognac, while the French government was stationed a few dozen kilometres away, in Bordeaux. The twenty-six-year-old Monnet met René Viviani – the head of the government, and put forward his proposal for organising French-British cooperation in order to ensure the optimal use of materials and resources which both countries had at their disposal during the war (Monnet, 1976, p. 59-89). From the very beginning, it was clear to him that the result of the modern war would not depend on military activities alone, but also on production and logistics. The principles of liberal competition, within which England and France competed with each other (for example, for Australian grain) certainly did not agree with the latter. Under such conditions, Monnet clearly supported the idea of establishing international cooperation, both in the economic and the military fields, where all decisions were to be taken in view of specific aims and not nationality. In order to use the resources in the most effective way, an organisation with a particular power (vraie puissance) should be established, requiring a partial relinquishing of the sovereignty of individual states and assuming the priority of the community interest over the national interest (Monnet, 1976, pp. 55-56). In 1917, Monnet was appointed the head of the London mission of the Ministry of Trade and Sea Navigation. He was also a key figure in coordinating institutions responsible for organising cooperation between the Allies. Commissions operating in this field were of a specific status – they had an international character in relation to the allies and at the same time – a national character in relation to other states. Their activity was not yet based on assuming the supranational principle, since decisions were taken by the national government. The efficiency of the commissions was significantly affected by the character of interpersonal contacts, based on an awareness of | 57 the necessity to cooperate and on mutual trust. Monnet showed high involvement in initiating those contacts and caring about them. He always claimed that “when you gather people coming from various environments and confront them with the same problem and burden them with the task of solving it, they cease being the same people. From the moment they are not in the situation in which they defend their own business, they effortlessly accept a common viewpoint” (Łukaszewicz, 2002, p. 99.). Monnet tried to transpose the belief that unification of activities multiplies their efficiency on the basis of post-war politics. In a note of 2 November 1918, he wrote: “Arbitration and unity make two factors of crucial importance for the contemporary economic order, in which distribution of resources and transport means is not made on the basis of the ownership right, but needs” (Monnet, 1976, p. 84). The League of Nations, in which Monnet held the post of deputy secretary general from 1919 - 1922, dealing with financial and economic issues, was to be a step towards strengthening international cooperation. Already at that time, he postulated liberalisation of commercial exchange, which was to lead to the formation of an economic counterpart of the League of Nations, and cooperation between the defeated and winners based on the principle of equality. In his opinion, the failure of this organisation was caused by maintaining the principle of unlimited sovereignty of member states and the principle of unanimity, which fuelled the intensity of national egoisms. As well, because of the connection of the League with the Treaty of Versailles, it involved an element of discrimination, which disagreed with the spirit of solidarity. 4. The period of World War II From the beginning of war, it was clear for Monnet that Europeans faced a disjunctive alternative – unity or fall. Therefore, he became involved in activities which contributed to the integration of war, organisation and production efforts. In 1939, Monnet was appointed to the office of the president of the Anglo-French Coordinating Committee, while he himself declared that he was not a French officer, but an allied one (Duchên, 1994, pp. 72-73). The most radical attempt to materialise ideas promulgated by Monnet was a fusion of sovereignty in the form of the French and British Union proposed by him. A common government and parliament were to be appointed, together with a common army under one command with one citizenship. Both countries should be related by economic and monetary union, while the final institutional shape was to be specified by the constitution of the Union developed after the war (Monnet, 1976, p. 21). Propagating such a bold move, aimed at the eternal, outdated international order, was a departure from the patient and gradual implementation of integration solutions usually assumed by Monnet. But in the face of dramatic war circumstances, he admitted that the situation required the application of unusual means and the quality of the aim justified their choice. To strengthen the morale of the allies and the feeling of deep solidarity in the name of the fight for survival and progress, there must take place a transgression over usual cooperation, which is based on the manifestation of national power and blocks the change of relations between states, not leading to unity. The idea of the union was supported by Churchill, while de Gaulle raised objections. Opinions were heard that the British wanted to transform France into its protectorate. In his later assessment, Monnet claimed that if the Union had been established, the Free French Committee would not have emerged and the issue of uniting Europe would have entered the international forum much earlier than it actually happened. Discussions about proclaiming the Union became pointless when in June 1940 Marshal Pétain made a truce with the Germans. Monnet’s reaction was to hand in his resignation from the office of the president of the French-British Committee, at the same time offering his help to Churchill, who suggested that he should go to the USA as a member of the British Supply Council. The task of Monnet was to organise American supplies for Great Britain. Perceiving America as “great arsenal of democracy”, he participated in preparing a full-scale programme of war material production – 58 | The Victory Program. In 1943, Monnet arrived in Algiers which had been occupied by Allies. Questioning the legitimacy of the Vichy government, he claimed that the sovereignty of France remains with its people and the German occupation only suspended its execution. At the same time, Monnet worked on building a new, collective civil centre of power. Due to his mediation skills, he managed to break the deadlock in relations between two ambitious generals: Charles de Gaulle and Henri Honoré Giraud. Solving this dispute made it possible to set up the French Committee of National Liberation. Monnet became one of the members of the fourteen-person Committee and took over the leadership of the weaponry and supply department. A significant document from that period is a note of 5 April 1943, in which Monnet outlined his image of the post-war order, which was to be based on peace, democratic institutions and prosperity. He claimed that reconstruction could not be based on nationalism or full national and economic sovereignty, since they led to political egoism and business protectionism. Moreover, European states are too small to ensure affluence to their inhabitants. They needed larger markets and, with this order in view, the metallurgical industries of the Saarland, the Ruhr region, Rhineland and Luxemburg should merge. A particular role in developing a new order should fall to France which, after the defeat of Germany and Italy, would become the main power on the continent if it was able to create a strong, modern economy and head off the threat of revival of the military power of Germany. Actually, both issues were interrelated, since the development of the French economy depended on access to German coal. 5. Post-war reconstruction In view of imminent liberation, in September 1943 Monnet handed in his resignation from the French Committee of National Liberation. He decided to focus on activities related to aid for the civil population, since it was very important to him that the Frenchmen in the first post-war period had the basic means to live. At that time, he regarded not Europe, but his own homeland and improvement of its economic condition as his primary aim. He presented a diagnosis of the situation and indicated lines for the state development in the project referred to as the Monnet Plan. The plan was officially approved in 1946 by the post-war government headed by de Gaulle. Monnet was appointed as the Planning Commissioner responsible for its implementation. The key idea of this project was modernisation, which would not so much lead to the reconstruction of the country in its former shape, but create the France of tomorrow (Monnet, 1976, p. 274). The plan set forth the framework for development, but also left the room for ongoing creativity. Its flexibility was determined, among others, by acceptance of a consensual formula for the economy, based on social dialogue participated in by the government, unions and entrepreneurs. In difficult postwar conditions, marked with social and ideological conflicts, Monnet managed to create a plane of agreement, in which “[…] representatives of large trade organisations and states, instead of throwing invectives and accusations, start to cooperate in various commissions of the Committee to take inventory of resources, to distribute charges and profits and to gradually modernise the country in the field of technology, production and distribution. The consensus between powers, interests and views, by all appearances incompatible, is born under the influence of Monnet’s philosophy, attitude and persuasion, who never tired of reminding the partners: We are here to perform our common work; not to negotiate profits, but to search for our benefit in the common profit” (Łukaszewicz, 2002, p. 99). Looking at the Monnet’s Plan from the broader, European perspective, it had, apart from aims related to internal politics, an international dimension, since in the long run, it was to create conditions favouring the construction of new institutional solutions for Europe, and an economically strong France was an indispensable condition for it. The implementation of the Plan brought about the achievement of high economic growth of 6% for the next six years. This contributed to the development of the economic structure of France and Europe while also providing grounds for political development (Duchêne, 1994, p 180). | 59 Still in the war years, Monnet was aware that further European cooperation was conditioned upon settlement of the German issue. German resources, e.g. coal from the Ruhr region, were necessary for reconstructing Europe, of which the French economy, dependent on German resources, made up an integral part. The political situation of post-war Europe was also determined by the possibilities offered by American aid within the Marshall Plan. However, this aid involved acceptance of the position of the American government, which insisted that the post-war European order should also include Germany. Briefly put, the situation of France was determined by two crucial factors: access to German coal and American credits. Those issues were broadly discussed and aroused many controversies. As regards the problem of Germany, alternative solutions in the form of occupation, division, annexation or internationalisation emerged. As far as the position of Monnet is concerned, it essentially took shape during the rise of cold-war tension and the gradual increase in the significance of Germany. He understood that under such conditions, a relatively united Germany must remain as closely related to Europe as possible with a concurrent deep reconstruction in a democratic and peaceful direction. He believed that it was possible to develop a solution which, on one hand, would not be based on discrimination but, on the other, would eliminate the risk of the revival of militarism and German domination. Thus, he searched for the possibility of French-German reconciliation within Europe organised according to new principles, equipped with efficient institutions, having at its disposal genuine power over the assigned area. In his opinion, political declarations of cooperation based on ideological construction were not to play a crucial role in developing a new order. He considered references to theoretical discussions of the historical, cultural and identity community of Europe to be of little significance. It was necessary to start from the actual tightening of relations between states, which should be based on mutual pragmatic benefits, leading, to some degree, to organic integration of European states. National sovereignty had to be more courageously attacked, in more strategic, but at the same time, more limited, areas (Monnet, 1976, p. 324). Monnet opted for the so-called sectoral integration approach – proceeding gradually, parallel to the evolution of political and mental background. This way seemed to him to be the most efficient for reaching technological and economic progress, making it possible to satisfy aspirations for prosperity. Thus, he considered a comprehensive approach as premature, too risky and finally doomed to failure. Integration should proceed concurrent to civil progress. Each nation or region had to voluntarily recognize the authority of certain common rules, namely political, jurisdictional and economic institutions, accepted on the principle of equality. 6. European Coal and Steel Community – the cornerstone of integration The problem of German industry was of key importance in solving the German issue. Attempts to organise an intergovernmental institution controlling the coal industry of the Ruhr region did not meet French expectations. The International Ruhr Authority (IRA) established in April 1949 was not an independent institution directly managing the German industry. Monnet, who wanted IRA (like the Ruhr region itself) to obtain European status, was unsuccessful. That is why he developed another plan aimed at binding Germany to the reconstruction of France on the basis of equality and supranationality. This led to establishing the European Coal and Steel Community, which was to ensure the construction of common economic development of the Ruhr, Lorraine and other heavy industry centres in the western Union. Monnet supported the idea that the French and the German coal and steel production should be kept under supranational management, providing the possibility of extending this cooperation to other European countries if they expressed such a will. The new authority was to modernise production and watch over coal and steel supplies on the same conditions as the French and the German markets, and to markets of other states that joined the cooperation. Thus, a merger of markets and production expansion were to create the main barrier against the threat of war between France and Germany. Accord- 60 | ing Monnet , the new formula of partnership should be regarded as the only alternative for the earlier, impossible to implement ideas. In April 1950, Monnet submitted his project to the French minister of foreign affairs, Robert Schuman, emphasizing that this solution should lay the first foundations for the European Federation, which would be the sine qua non condition for keeping the peace. Schuman basically approved the plan, which went down in history under his own name, although he never claimed credit for its authorship. The minister decided to assume political responsibility for implementation of the solutions proposed by Monnet, perceiving their breakthrough importance. In June 1950, the conference concerning the Schuman plan started in Paris. Monnet, as its informal chairman, knowing that the key to agreement is mutual trust, tried to create an atmosphere that was free from mistrust. He also emphasized many times that Europe had exceptional resources and the duty of politicians was to use them, not against themselves, but for the common good, because the aim of the meeting was not competition for national influence, but the development of mutual benefits. Indeed, with the progress of its work, the conference became the intellectual, moral and political challenge, which could play an unprecedented role in the history of Europe. Talks ​​by the delegations were not dominated by the government arguments about the interests of their own countries. They gave way to the realization of the aspirations of the project, in which they could participate. The atmosphere of the meeting is reflected in the comments by Schuman, who entered the one of the rooms saying: “I ​​can see that this is not a negotiation, but a common search (recherche en commun)”. This shorthand has grown into a symbol. When in discussions and debates a brief explanation of what the European integration was necessary, usually the answer was “ a common search “ (Lukaszewicz, 2002, p 135). On 25 July 1952, at the end of the Paris conference, the foreign ministers of six states announced in a special message that the treaty on the European Coal and Steel Community had entered into force. Although this agreement referred to the partnership agreement in the field of coal and steel, it also contained clear political conditions directed at the further integration of Europe. European Coal and Steel Community was an international organization under international law (Węc, 2006, p 31). Its main tasks were: • The creation of a common market for coal and steel; • Provision of the common market with the necessary amount of coal and steel, including iron ore, scrap and coke; • To provide consumers with the same conditions of access to raw materials; • To create conditions conducive to the development and improvement of the quality of production; • Exploitation of resources in a rational manner; • Setting a minimum price for coal and steel; • Raising the standard of living of workers and improving working conditions; • The development of international trade; • The increase and modernization of production; • Opposition to the systems of preferences, subsidies and protection for the selected plants (Mikolajczyk, 2007, p 116). As shown in the above range of activities, it did not present a comprehensive, frontal approach to the unification of Europe, it was tailored to the so-called sector scale. This meant that the integration was to be, at least initially, limited to a selected segment of the economy, and then, together with the growing of experience, verification of results and in the right circumstances, gradually extended to other areas. Community as an organization of the new “transnational” type, addressing the real power entrusted to it, to make decisions that are binding on the parties involved, has become the foundation of political unification at a later stage. | 61 The treaty provided for the creation of four bodies of the Community: the High Authority, the Common Assembly, the Council of Ministers and the Court of Justice. Their home became Luxembourg and the position of the president of the High Authority was unanimously given to Monnet. He was to act “on behalf of Europe”, which he emphasized with a symbolic gesture, when obtaining, in the ceremonial setting in 1953, the first “European” laissez-passer intended for members and contributors of the authority; he took his French diplomatic passport and said “And now, let’s burn it” (Middelaar, 2011, p. 48). The High Authority consisted of 9 members who held their office for six years. At that time, they could not hold office in the coal and steel industries, or hold shares in these two industries. The High Authority was not supposed to be a classic executive body, which already existed in other international cooperation organizations. It was an organic part of the transnational community. Decisions taken by a majority vote were in force in all EU states. In specific cases defined by the Treaty concerning the issue of coal and steel, the High Authority has received the right to issue decisions binding all member states. One of the guarantees of the independence of the High Authority was being financed by the European tax imposed on coal and steel producers amounting to 1 percent of their production, and not by membership fees, as was the case with other international organizations (Mikolajczyk, 2007, p 117). The High Authority was to act in consultation with the Council of Ministers, which was the body appointed as a kind of counterweight to the potential Franco-German domination. The Board members had to represent their national interests, discuss them with the High Authority and ensure that, the coal and steel sector would not be artificially isolated from the economy. The appointment of the third body - the Assembly, was a decisive will of the Parliament, which wanted to hold a democratic control of the High Authority. The Assembly consisted of 78 representatives drawn from groups belonging to the parliaments of each Member State. They could, by the majority vote of 2/3 dismiss the High Authority, when submitting its annual report. Members of the Assembly could express their opinions and vote regardless of the position of the country that they represented. It’s decisions were therefore political. The Court of Justice, on the other hand, had to watch over the respecting of the Treaty, and deal with disputes between the High Authority and the Member States or individuals. It was to hear appeals against decisions of the High Authority, made ​​by governments or by the Council of Ministers. Thus, it was the most important institution of Appeal, and its decisions were to be binding. That organizational structure of the European Coal and Steel Community became a prefiguring to the European structures that exist today. Monnet saw the power of the potential of the institutional basis. He used to say that the experience of every person passes away with them. The institutions remain, and if they are well constructed they will collect and communicate the wisdom of generations. Based on this experience and the wisdom, people subjected to the same rules are beginning to see not only the transformation of their own nature but a gradual change in their behaviour (Lukaszewicz, 2002, p 101). So great European transformation which in the place of competition introduces unity of nations begins with the creation of supranational institutions. 7. Conclusions An understanding of the initial stage of Monnet’s doctrine formation process, in which a key role was played by the experience of two world wars, makes it possible to find the sources of his theoretical assumptions. Their underlying assumption is that traditional sovereignty, particularly that perceived in nationalist-imperialist categories, is a relic impeding solving problems in the world. The network of various relations which determine the interrelationships between states is becoming interwoven at an increasing rate. For Monnet, national sovereignty was not an intrinsic value, but only relative towards higher values, in particular peace, solidarity, progress and prosperity. 62 | From the beginning of his public activity, the initiator of the Schuman Plan perceived that manifestation of the power of individual states favours a game of short-term national egoisms, posing a barrier to economic and technological benefits on a larger scale. In order to achieve them, it is necessary to create conditions for closer cooperation, which should start with non-political areas and be based on material and economic foundations, since they create optimal space for the common activity of strengthening prosperity. Therefore, Monnet advocated this type of limitation of sovereign power, which, firstly, would be voluntarily, and secondly, would be in the best interests of the state itself, since it would help it to better adjust to the new conditions of interdependence emerging in the world. It should also be taken into account that the European unity postulated by Monnet was to organise organic cooperation, creating a barrier for idle conflicts, but in no case did it mean the homogenisation of cultural identity of nations. They were to preserve their peculiarity, distinctness of customs, symbols and traditions (Łukaszewicz, 2002, p. 89). The greatest of Monnet’s achievements were in the field of practice, but his activity also involves a touch of doctrine. What particularly deserves notice is his method. Although he created long-term visions, he was in no case a fantasist feeding on illusions. Nor was he a dogmatist, either; his projects were flexible enough to be adjusted to specific circumstances. Politics was for him art, which consisted in making possible tomorrow that which seems today impossible. He never claimed that Europe would emerge at once as a coherent structure; he assumed that it would be built gradually; it would be formed among crises and would provide a sum of answers to those crises. Monnet’s approach can be evaluated in the context of the following statement: “Most evil is inflicted by hard-working, but at the same time stupid politicians. The best results are achieved by intelligent and a bit lazy ones. Routine works can be handled by other people. Outstanding personalities among political leaders […] avoid their office hours as much as they can. They never have their schedule completely filled up, they remain available.[…] Their maxim is not to last (facere) but to act creatively (agere)” (Riklin, 2000, pp. 46-47). So Monnet was one of those who submit desire to do something, to the desire to be somebody. The effects of his activities support the elementary - though often not respected - truth that in politics, whether at domestic or international levels, honesty, moderation, respect for partners and cooperation can achieve results more durable than confrontational maneuvers, provoking tensions, reclaim and relentless pressure. References Arendt H.,(2010). Kondycja ludzka, Warszawa Bossuat G, Wilkens A. (1999). (eds.) Jean Monnet, l’Europe et les chemines de la Paix, Paris Burns J., (1978). Leadership, New York Duchên F., (1994). Jean Monnet. The First Statesman of Interdependence, New York, Londyn Fontain P., (1988). Jean Monnet. L’inspirateur, Paris Fontataine F. (1991). Forward with Jean Monnet (w:) Brinkley D., Hackett C. (eds) Jean Monnet. The Path to European Unity, New York Fransen F.J. (2001). The supranational Politics of Jean Monnet, Westport-London Łukaszewicz J.,(2002). Cel: Europa. Dziewięć esejów o budowniczych jedności europejskiej, Warszawa Madeja A., (2010). Od Genewy do Hagi. Suwerenność państwa w programach proeuropejskich organizacji transnarodowych (19944-1949), Toruń Madeja A., (2011). Krytyka klasycznego pojęcia suwerenności w doktrynie integracyjnej Jeana Monneta, Toruń Middelaar L.,(2011). Przejście do Europy. Historia pewnego początku, Warszawa. Mikołajczyk M., (2007). Jean Monnet. Inspirator zjednoczenia Europy, Poznań | 63 Monnet J. (1964). L’Europe et l’organisation de la paix, Lausanne Monnet J. (1976). Mémoires, Paris Monnet J., Schuman R. (1986). Correspondance 1947-1953, Lausanne Riklin A., (2000) Niccolo Machiavellego nauka o rządzeniu, Poznań Roussel E., (1996). Jean Monnet, Paris Węc J.J., (2006). Spór o kształt instytucjonalny Wspólnot Europejskich i Unii Europejskiej 19502005, Kraków 64 | Ewelina Cała-Wacinkiewicz University of Szczecin [email protected] European system of human rights – considerations in the context of fragmentation of international law Abstract We owe the placing of the problem of fragmentation of international law on the forum of international community to the International Law Commission, who, through its report devoted to this issue, began a stormy debate in the doctrine of international law. The mainstream of the discussion relates to the search for answers about the legal nature of - arising as a result of fragmentation - autonomous normative subsystems and the possible relationships between them (for example, the Council of Europe and the European Union). Having regard to the above, the primary research objective of the proposed paper will be to present the European system of human rights against the background of the fragmentation process. Specific objectives will be to indicate the characteristics determining its status, taking into account both the effectiveness of human rights protection and the undisputed role of the European Court of Human Rights and also in the context of the European Union’s accession to the European Convention for the Protection of Human Rights and Fundamental Freedoms. Keywords: human rights, European system of human rights, fragmentation of international law. 1. Introduction to considerations and methodological assumptions The phenomenon of fragmentation of public international law has permeated the ground of the ongoing legal discourse among the representatives of the doctrine of this law for good (Klabbers, 2009, p. 1)1, prompting reflection on the nature and direction of development of this law. Indeed, it does not raise doubt that just like a decentralised legal order, it is governed by its specificity, determined even by the processes of progressive fragmentation. One may trace quite a number of reasons for this state of affairs. The most important include on the one hand, the growing number of international organizations forming international law standards, on the other, “the absence of one single authority that enforces compliance with the law and implementing the responsibility of States for violations of the law and multiplicity of international courts associated with this special structure of international law” (Czapliński,2007, p. 78)2. International organisations operating today, often forming specialised international legal standards, with judicial bodies acting within their structures, have been permanently etched into contemporary international law, not only as its subjects, but also as active participants creating the international reality. And while it is a truism to remind of the horizontal nature of the system of international law designating its characteristics, it, among others, contributes to the “fragmentation of international law, of which we can speak in terms of the deepening differentiation of the legal system” (Wiśniewski, 2012, p. 65). The horizontality of the system, and thus, the lack of hierarchy of legal norms relevant to the domestic law3 results in the formation of a variety of specialised fields (or sections, sub-systems, sometimes simply referred to as systems) of international law, which often without any justification, or even with a significant simplification, are defined as self-contained regimes4, i.e. autono- | 65 mous normative subsystems (Wiśniewski, 2012, p. 65), or special regimes (Kwiecień, 2011, p. 86). Considering the above, the principal research objective of the proposed study will be to demonstrate, against the background of fragmentation of international law, characteristics identifying the European system of human rights, which for the purposes of this study will be demonstrated as a ‘product’ or ‘effect’ of the process of fragmentation. The specific objectives will be to refer to the effectiveness of human rights protection, as well as the undisputed role of the European Court of Human Rights, and also in the context of EU accession to the European Convention for the Protection of Human Rights and Fundamental Freedoms. 2. Fragmentation – definition of the term and essence The subject doctrine emphasizes that fragmentation, not being a new phenomenon, gained momentum after World War II, but the end of the Cold War is clearly pointed to as the time that magnified its intensity5. Subjective delimitation must not be surprising given the significant intensification of international relations attributable to the twentieth century, associated even with the growing role of international organisations. However, such clear marking of the period of the formation of fragmentation may raise some concerns. Reasonable thus is the assertion of J. Menkes, who believes that it is not possible to identify either the golden era of unity of international law or even major caesuras of fragmentation (Menkes, 2012, p. 54) 6. Thus leaving unresolved the question of the origin of the designated institution it should be emphasised that, in its essence, it is certainly the opposite of unity of international law7 and invites us to reflect on the essence of contemporary international law and the fact “whether currently there is one unified system of international law, or perhaps that different systems of this law operate in parallel, but separately” (Kolasa, 2007, p. 13). This issue - showing the nature of international law and its subsystems arising due to fragmentation - will be subject to further examination, with particular emphasis on the European system of human rights protection. However, from the point of view of analyses of internationalist saturation, what is more important than settling the degree of unity of international law in its various stages of development, is to display the point at which the institution of fragmentation of international law has penetrated its ground. In this context, thus, it is a sure fact, whose presence must be faced (regardless of whether or not and how we specify its origin). Referring to the above, it should be noted that unambiguous wording and presenting the problem of fragmentation of international law on the international community forum is owed to the International Law Commission. By its report of 2000, in which G. Hafner presented dangers of fragmentation of international law (Hafner, 2000), the Commission began a heated discussion, whose mainstream referred to the search for an answer as to whether this fragmentation remains in opposition to the unity of international law, and what the legal nature of the sub-systems arising as a result of it and the possible relation (collision) between them is. Moreover, the subject issue, returning several times, was analysed on the Commission’s forum8, who finally in 2006 formulated their closing remarks, emphasising in a somewhat milder formula that the outcome of the work of the Study Group of the International Law Commission was the determination of the difficulties arising from the differentiation and expansion of international law9. Since then, the debate on the fragmentation of international law has not ceased, and the institution in question is referred to the many subsystems of international law which are shown against its background10. Taking into account the rather substantial foreign literature and somehow more modest Polish 66 | one, it can be concluded that fragmentation - generally speaking - is analysed in two aspects. The first one depicting pejorative connotations of the term11 and second, on the contrary, advocating its positive dimension12. In other words - referring also to what happened in the International Law Commission itself – divagations are being carried out on whether fragmentation which results in specialised fields (or divisions, or simply subsystems) of international law constitutes a threat to its unity, or a consequence of natural development. No matter how one approaches the issue at this point of considerations, one thing is certain - the very concept of “fragmentation can be understood as a process of subjective variation that contributes to the construction of the systemic nature of international law” (Kwiecień, 2011, p. 98). In this respect, by taking another step, it can be seen as ‘a consequence of specialisation’ (Brownlie, 1987, pp. 156 - 157), which is increasingly more noticeable in international law. The concept of ‘fragmentation’ should therefore be equated with the separation (singling out) out of general international law of its subsystems, which, due to subjectively advanced legal regulations created within them, are an expression of a certain specialisation in international law. The above therefore entitles one to speak of the subjective aspect of the process of fragmentation, separated through the prism of ‘functionally defined issue-areas’ (Peuwelyn, 2009, p. 1), which may include, for example, European Union law, consular and diplomatic law, human rights protection law or environmental law. In order for one to show their connection to specific spheres of human activity which are subject to standardisation by the international community, they are often referred to as ‘specialist systems’ (Report, 2006, p. 11) whose directory is not exhaustive and with the development of international law and the expansion of its reach to the ever new fields, it certainly changes in the time perspective. Due to the fact that “the phenomenon of fragmentation of international law derives from the diversity of international law” (Pauwelyn, 2009, p. 1), one can ascertain that it is still valid due to the emergence of more and more new areas of international cooperation. Its intensification causes the talk of international administrative law, international civil procedure, and finally international criminal law and upheld should be the view that “new groups of specialised rules of international law arise non-accidentally, but in response to the specific needs of a functional and technical nature” (Wiśniewski, 2012, p. 66). This need also gave rise to the formation of the concept of human rights protection, which, having gained momentum after World War II, has resulted in the creation of international and regional human rights protection systems. It should be noted, however, that these terms - for the purposes of this paper – are applied in the sense used by the doctrine of international law. Treating them as sensu stricto domains of international law it would be more accurate to address them as subsystems, under a general assumption that public international law is treated as a ‘system’. The objective simplification is only justified by the prevalence of the use of these terms. 3. The international and regional nature of human rights protection The dynamic development of legal regulations for the protection of human rights was initiated in the first half of the twentieth century13 (and thus at the same time when the process of fragmentation of international law began to develop strongly). Gradually, it became reflected both in international law and in legal orders of different countries, at the basis of which lay the conviction that only complementary activities taken up both on the domestic and international plane, could provide the effectiveness of human rights protection, assessed for instance from the perspective of the individual. Visibly progressive development of cooperation of States in this respect, as well as assigning the need for human rights protection to international organisations (as their statutory task) have began to result in the formation of many specialised legal regulations of varying | 67 scope and nature. This in turn led to the treatment of “international law of human rights (of the twenty-first century) as a new meta-system and meta-division which includes the domestic law and international law rules and relations” (Menkes, 2012, p. 53). In accordance with the research assumption set out in the introduction, issues of domestic regulations remain outside the scope of these analyses14, which later will be devoted to international law. This does not, of course, constitute depreciation of the first, but only an attempt to organise the course of reasoning to come. The universal (common) human rights system will also be treated in a perfunctory manner, which is to form the background and introduction to further considerations. That is also why we can treat only as a reminder the fact that the original focus of efforts by the international community (including those most profound due to their legislative nature) in the area of human rights protection with certainty may be credited to the United Nations called to life in 1945. It was under their auspices that the Universal Declaration of Human Rights15 was adopted in 1948, and the International Covenant on Political and Civil Rights16 in 1966 and also the International Covenant on Economic, Social and Cultural Rights17, or a number of other agreements of a universal scope of application18. In response to the above, the protection of human rights has also begun to be attributed a more regional nature, which requires the mentioning of American, African or Arab actions taken for said protection (of course, of varying intensity, nature and effectiveness). Nonetheless, those undertaken in Europe, which became a contribution to the formation of the European system of human rights protection, should be regarded as the most effective. For the purpose of this study, its description will be narrowed only to the system of the European Convention for the Protection of Human Rights and Fundamental Freedoms19, which will be discussed later. Returning to the mainstream of considerations, the Council of Europe founded in 1949 by default was to be an international organisation dedicated to the broadly-defined human rights protection. In accordance with Art. 3 of its Statute adopted on 5 May 194920, every Member State shall recognise the principle that all persons within the jurisdiction of that State enjoy human rights and fundamental freedoms. This principle shows that the protection of human rights is not only a statutory objective of the Council of Europe (Art 1 of the Statute), but also the legal obligation of States that are its members. One of the most recognised achievements of the Council of Europe is the European Convention for the Protection of Human Rights and Fundamental Freedoms of 4 November 195021 adopted only one year after the creation of the Council, along with 14 additional protocols adopted for it. It did not only contain a catalogue of human rights and freedoms, but also established under it a control authority, i.e. the European Court of Human Rights based in Strasbourg. To ensure, therefore, the rights guaranteed by the Convention by the State that signed it, it introduced the possibility to bring complaints against other states (Article 33 of the Convention), as well as individual cases, which can be brought by any person, international organisation or a group of people who believe that they have been a victim of a violation of its provisions by one of the countries - parties to the Convention (Article 34 of the Convention). In light of the above, it is worth mentioning that “the control procedure key to human rights protection system was based on the institution of an individual complaint, and thus a legal instrument by which the entity directly interested may independently initiate a procedure of accounting a State for the breach of obligations arising from an international treaty. It is this fact that is widely recognised as the ‘cornerstone’ of the entire European system of human rights protection” (Gronowska, 2004, p. 162). From the point of view of the rights of the individual and his status in international law, this fact is not to be underestimated especially in the respect that he obtained in this way not only an opportunity to independently initiate proceedings, but also a position so strong that the initiated proceedings are directed against the State which has committed viola- 68 | tions, and whose nationality the individual carries. The Council of Europe, as emphasised in the doctrine, thanks to its unusual activity, managed to develop a vast normative system of human rights (Mik, 1994, p. 96), comprising of certainly more than 200 international agreements, as well as a countless number of judgements of the European Court of Human Rights which, through its activity, has earned the unquestionable rank and international position. Moreover, for a long time – which is worth mentioning by way of certain sorting out - it was the human rights system elaborated by the Council of Europe that solely used the title of being ‘European’, today sharing the name somewhat with the European Union and also the Organisation for Security and Cooperation in Europe, which will be discussed later. 4. By way of summary - European (sub)system of human rights as a ‘product’ of the process of fragmentation of international law When analysing the phenomenon of fragmentation of international law ‘functionally defined issue-areas’ were mentioned22, thus showing the objective aspect of the phenomenon. It comes down to the fact that the international community, taking as a basis atrocities of two world wars, began to single out from the total sum of rules of international law an area (division or sub-system - regardless of the accepted terminology, which is contractual in nature) that encloses the specific standards for the protection of human rights . This process was treated not only as their duty, but also as an obligation arising from the need to create a model of human rights protection which, through the ratification of international agreements. will have an impact also on the ground of national law. Referring the discussed issues of human rights within the Council of Europe to the title issue of fragmentation of international law can begin by recalling the position of C. Mik whereby “European law of human rights, on the basis of an analysis of normative systems which are at the basis of this law, displays the utmost international-law nature and, as such, forms an integral part of the international law of human rights” (Mik, 1994, p. 17). This allows to show beyond all doubt the inherent relation between international law and human rights protection and to treat the latter as its domain. It is not, of course, uniform and homogeneous. Out of the overall number of legal regulations devoted to the issue one can secrete those adopted under the auspices of the United Nations, the said Council of Europe, the Organization for Security and Cooperation in Europe, the African Union, the Organization of American States, and many other organisations that directly or indirectly relate to this subject matter. This in turn gives rise to talking about the fragmentation of international law in the scope of human rights protection in this case. Therefore, assessing the de lege lata protection of human rights functioning in Europe (with emphasis on the accomplishments of the Council of Europe) one can see, ‘as in a lens’, apart form the subjective aspect, a different aspect of the fragmentation of international law, namely the regional one, also referred to as geographical23. To put it in other words though, a domain of international law resulting from the fragmentation, containing specific standards for the protection of human rights, is singled out not only objectively, but also regionally. Regionalism in this approach constitutes a component of the debate on the fragmentation of international law, closing the argument devoted to entering the European system of human rights protection into the international mainstream. This statement is all the more justified as the doctrine of the subject emphasises indeed that the “proposed by the Council of Europe model for the protection of rights and freedoms of man gave rise to the global trend for the juridisation of this protection” (Gronowska, 2004, p. 180). The above entitles to pose the question about the features that will be characteristic to the | 69 European system of human rights protection considered as a ‘product’ of the process of fragmentation. First of all, specialisation is conducted easier through the activities of international organisations. Here that role in played by the Council of Europe who “from the very beginning of its operation has been a pioneer which sets the optimal direction to achieve effective protection of human rights”(Gronowska, 2004, p. 180). It was the Council that was burdened with the development of legal regulations which States and international organisations use today, the task it has fulfilled brilliantly. Secondly, it is important for the system to be constructed on the basis of an international agreement. The basis of the European system of human rights protection, and at the same time its core, is the European Convention for the Protection of Human Rights and Fundamental Freedoms (which entitles us to talk of the system of the European Convention, as mentioned above). It is a multilateral international agreement with a regional nature which, most importantly, does not only contain a catalogue of rights and freedoms of man, but also provides mechanisms for their effective protection. Thirdly, this agreement should contain both primary and derivative norms, which in this case suggests that the European Convention should be considered a subsystem of international law (Buffard, 2008, p. 14). As M. Stępień ascertains, though using the example of diplomatic law which can be applied to the issues in question, it is important for it to include substantive standards, as well as any consequences arising from exceeding them (Stępień, 2007, p. 82). This is indeed what will constitute the effectiveness of the system and ensure its autonomy with regard to regulations of general international law, also in the case of the discussed human rights. The determination of States obligations, needless to say, is crucial from the point of view of the protection of the individual, but it is not sufficient. The effectiveness of this protection is ensured by a well-functioning judicial authority. Therefore, fourthly, it is that judicial authority that should be assigned a key role in ensuring the effectiveness of human rights protection within the European system. Safeguarding human rights and freedoms, the European Court of Human Rights is an organ of control over the provisions of the European Convention. The construction of complaints that may be brought before the Court, as well as the very fact of the exclusive competence of dispute settlement by this authority, does not only strengthen the system, but is also its essence. Without a regulatory body operating in this field human rights protection would be illusory, and perhaps even spurious. In the context of efficiency of the protection24 another aspect of the issue in question is worth signalling. And so, the European Union is currently engaged in accession to the European Convention, to which gave rise the very absence of a judicial authority safeguarding the rights and freedoms of the individual in this organisation and thus somewhat spurious nature of the protection of fundamental rights in the European Union25. This is possible, on the one hand, due to the entry into force of the Treaty of Lisbon26, which in Art. 6 paragraphs 2 and 3 predicted the possibility for accession27, and on the other hand, analogous changes were contained in Art. 17 Protocol No. 14 to the European Convention for amending the control system of the Convention, signed on 13 May 2004 and which entered into force on 1 June 2010.28 The essence of the objective accession was expressed in the European Parliament resolution of 15 December 2010, under which the EU accession to the European Convention will provide a minimum level of protection of human rights and fundamental freedoms in Europe. It will also provide an additional mechanism for enforcing human rights, namely the right of appeal to the European Court of Human Rights in relation to the violation of the rights covered by the Convention breached by EU institutions or a Member State implementing EU legislation29. When assessing the above in terms of fragmentation of international law, the accession to 70 | the European Convention is not only evidence of the systemic nature of human rights protection in Europe, but most of all, it is an excellent example of how regional cooperation areas resulting from the fragmentation are joined. As a result of this ‘procedure’ competition between the systems is eliminated and a possible collision, one of the negative consequences of fragmentation, is prevented30. 5. Concluding remarks Taking into account the above indicated aspects of the subject matter, one may be tempted to formulate a concluding remark. Well, general - in the universal sense - international law, regardless of whether one opts for its unity or fragmentation (because, as it always happens, every solution has its supporters and opponents), is accused by some of poor effectiveness, which imposes the discussion on its nature in the future. 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Leksykon prawa międzynarodowego publicznego, Warszawa: C. H. Beck. 72 | General sources: European Convention for the Protection of Human Rights and Fundamental Freedoms of 4 November 1950, Journal of Laws (93) No. 61/284 as amended. Statute of Council of Europe adopted on 5 May 1949, Journal of Laws (94) No. 118/565. International Covenant on Political and Civil Rights of 16 December 1966, Journal of Laws (97) No. 38/167. International Covenant on Economic, Social and Cultural Rights of 19 December 1966 Journal of Laws (97) No. 38/169. Conclusions of the work of the Study Group on the Fragmentation of International Law: Difficulties arising from the Diversification and Expansion of International Law, General Assembly A/61/10, para. 251, International Law Commission, Fifty-eighth session, Geneva, 1 May-9 June and 3 July-11 August 2006. Yearbook of the International Law Commission. 2006, Vol. II, Part Two. European Parliament resolution of 15 December 2010 on the situation of fundamental rights in the European Union (2009) – effective implementation after the entry into force of the Treaty of Lisbon (2009/2161(INI)) Report of the International Law Commission on the work of its fifty-second session, A/55/10, 1 May - 9 June and 10 July - 18 August 2000, Official Records of the General Assembly, Fifty-fifth session, Supplement No 10 – Annex No 5: Report of the Study Group of the International Law Commission, Fragmentation of International Law: Difficulties Arising from the Diversification and Expansion of International Law, General Assembly A/CN.4/L.682, 13 April 2006. International Law Commission Fifty-eighth session, Geneva, 1 May-9 June and 3 July-11 August 2006, finalized by Martti Koskenniemi. Report of the Study Group on Fragmentation of International Law, General Assembly A/CN.4/L.628, 1 August 2002, International Law Commission Fifty-fourth session, Geneva, 29 April-7 June and 22 July-16 August 2002; Report of the Study Group on Fragmentation of International law: Difficulties Arising from the Diversification and Expansion of International Law, General Assembly A/CN.4/L.644, 18 July 2003; International Law Commission Fifty-fifth session, Geneva 5 May-6 June 2003 and 7 July8 August 2003; Report of the Study Group on Fragmentation of International Law: Difficulties Arising from the Diversification and Expansion of International Law, General Assembly A/CN.4/L.663/Rev.1 28 July 2004, International Law Commission Fifty-sixth session, Geneva, 3 May-4 June 2004 and 5 July-6 August 2004; Report of the Study Group on Fragmentation of International Law: Difficulties Arising from the Diversification and Expansion of International Law, General Assembly A/CN.4/L.676, 29 July 2005, International Law Commission Fifty-seven session Geneva, 2 May-3 June and 11 July-5 August 2005 The Universal Declaration of Human Rights of 10 December 1948. United Nations General Assembly Resolution A/RES/3/217 A. (Endnotes) 1 Klabbers even stressed that fragmentation, along such terms as constitutionalization or verticalization, constitute the Holy Trinity of the international debate at the beginning of the twenty-first century. See: Klabbers.J. (2009), p. 1. 2 It often raises concerns as to the further fate of the system of international law, its unity or | 73 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 fragmentation. See: Czapliński, W. (2007), p. 78. Compare: Galicki, Z. (2008) p. 41, who, in the context of hierarchy in international law, talks of: a) peremptory norms of general international law, i.e. jus cogens; b) obligations erga omnes and c) obligations under the Charter of the United Nations (in accordance with Article 103 of the Charter). And so, for instance: Lindroos, A & Mehling, M. (2006); Stępień, M. (2007). So, for instance: Menkes, J. (2012); Hafner, G. (2000) p. 143. In this context Craven emphasises that fragmentation is a term that has a long history to it. See: Craven, M. (2003). p. 3. Doubts as to whether such firm unity of the system of international law once existed are expressed by. Kolasa, J. (2007). p. 38. Report of the Study Group on Fragmentation of International Law, General Assembly A/ CN.4/L.628, 1 August 2002, International Law Commission Fifty-fourth session, Geneva, 29 April-7 June and 22 July-16 August 2002; Report of the Study Group on Fragmentation of International law: Difficulties Arising from the Diversification and Expansion of International Law, General Assembly A/CN.4/L.644, 18 July 2003; International Law Commission Fifty-fifth session, Geneva 5 May-6 June 2003 and 7 July-8 August 2003; Report of the Study Group on Fragmentation of International Law: Difficulties Arising from the Diversification and Expansion of International Law, General Assembly A/CN.4/L.663/Rev.1 28 July 2004, International Law Commission Fifty-sixth session, Geneva, 3 May-4 June 2004 and 5 July-6 August 2004; Report of the Study Group on Fragmentation of International Law: Difficulties Arising from the Diversification and Expansion of International Law, General Assembly A/CN.4/L.676, 29 July 2005, International Law Commission Fifty-seven session Geneva, 2 May-3 June and 11 July-5 August 2005 Report of the Study Group of the International Law Commission, Fragmentation of International Law: Difficulties Arising from the Diversification and Expansion of International Law, General Assembly A/CN.4/L.682, 13 April 2006; International Law Commission Fifty-eighth session, Geneva, 1 May-9 June and 3 July-11 August 2006, finalized by Martti Koskenniemi. Conclusions of the work of the Study Group on the Fragmentation of International Law: Difficulties arising from the Diversification and Expansion of International Law, General Assembly A/61/10, para. 251, International Law Commission, Fifty-eighth session, Geneva, 1 May-9 June and 3 July-11 August 2006, „Yearbook of the International Law Commission” 2006, Vol. II, Part Two. Intellectual property may serve as an example – Van Aaken, A. (2008); or protection of the environment - see: Van Asselt, H., Sindico, F. & Mehling, M.A. (2008). See: Hafner, 2000, p. 134. Menkes, 2012, p. 59; Kwiecień, 2011, p. 99. It is emphasised in the doctrine that the creation of a separate system of human rights protection was already discussed at the Hague Congress (7-10 May 1948). .See: Michałowska, G. (2007), p. 92. It is supported by abundant subject literature, mainly from the scope of constitutional law, which results from the fact of covering rights and freedoms by the constitutional matter. As an example one can point to: Chmaj, M. (2006). United Nations General Assembly Resolution A/RES/3/217 A. Journal of Laws of 1997, No 38, item 167. Journal of Laws of 1997, No 38, item 169. 74 | 18 As example one can point to: the Convention on the Elimination of All Forms of Discrimination against Women of 18 December 1979, Journal of Laws of 1982, No 10, item 71; the Convention on the Rights of the Child of 20 November 1989; Journal of Laws of 1991, No 120, item 526. 19 What is interesting, on the grounds of the doctrine of international law the construction of the ‚system’ appears not only in reference to the law-making activity of international organisations (for example the universal (UN) system of human rights protection, European system of human rights protection, etc.), but also in the context of acts of law (the system of the International Covenant on Civil and Political Rights, the system of the Inter-American Convention on Human Rights or the system of the European Convention for the Protection of Human Rights and Fundamental Freedoms). See: Balcerzak, M. (2004), pp. 42 – 45. 20 Journal of Laws of 1994 r., No 118, item 565. 21 Journal of Laws of 1993, No 61, item 284 as amended. 22 As a reminder: Pauwelyn, J. (2009), p. 1. 23 See further: Pauwelyn, J. (2009) p. 2. 24 See further: Jansen, C. N. (2011). 25 Worth noticing in this context is the view of T. Ahmed and I. de Jesús Butler, according to which ‚the European Union has maintained that the obligations incumbent upon it in the area of human rights stem from its own internal legal order. Under this limited approach, the EU is merely under an obligation not to violate human rights when it acts (i.e. a negative obligation to respect human rights) and effectively only to respect those rights enumerated in the European Convention on Human Rights’. See: Ahmed, T. & de Jesús Butler, I. (2006), p. 771. 26 I wrote about it in the following study: Cala-Wacinkiewicz (2012). 27 It is broadly commented both in the Polish and foreign subject literature. See for example: Barcz, J. (2008); Dzięgiel, A, (2006); Gajda, A. (2008); Weiß, W. (2012); Callewaert, J. (2009); Douglas-Scott, S. (2006). 28 Journal of Laws of 2010, No 90, item 587. 29 European Parliament resolution of 15 December 2010 on the situation of fundamental rights in the European Union (2009) – effective implementation after the entry into force of the Treaty of Lisbon (2009/2161(INI)) http://www.europarl.europa.eu/sides/getDoc.do?pubRef=-//EP//TEXT+TA+P7-TA-20100483+0+DOC+XML+V0//EN 30 See further: Lindroos, A. (2005); Marceu, G. (2001); Milanović, M. (2010). | 75 76 | Justyna Gileta Catholic University of Lublin [email protected] A marriage of convenience – 40 years of the United Kingdom in the European Union Abstract 40 years of the United Kingdom in the European Union has proved to be a membership quite hard to compare to other Member States. To present and analyse the uniqueness of the relationship between Great Britain and the European Union, by some characterized as a marriage of convenience, is what this article aims at. As David Cameron claims in his keynote speech, a fundamental purpose of the European Union, one of the Founding Fathers’ main ideas - that is, to secure peace and stability - has been achieved. However, in the light of challenges modern Europe is facing today new overriding issues have arisen. Those new challenges encompass problems in the Eurozone, the balance of competences between the EU and Britain, the crisis of European competitiveness or the gap which now can be observed between the EU and its citizens. This article takes a closer look at the abovementioned phenomena through the prism of the UK’s anniversary and political choices the nation together with its people are facing these days at the same time appreciating the impact of the UK’s membership in different European policy areas. Keywords: Opt-out, Schengen Area, European Monetary Union, Area of Freedom Security and Justice, Member States, Founding Fathers 1. Introduction “The EU must be able to act with the speed and flexibility of a network, not the cumbersome rigidity of a bloc” – this was the essence of David Cameron’s critique in his long-awaited speech on Britain’s relationship with Europe in January 2013 (Cameron, 2013). The fortieth anniversary of the UK’s membership in the European Union comes at a time when the relationship between British society and Europe is at a crossroads and when the probability of an in or out referendum in the years to come is rising. It is definitely not possible to account for the uniqueness of this relationship without thorough understanding of British distinct history, geographical position, culture or tradition. One should bear in mind that the European Union emerged as a continental project with a goal to create an ever closer Union, whereas the United Kingdom has always been for a shallower version of economic and political integration. Taking these conditions into consideration it is easier to understand and explain some of the decisions Britain has made over the years. There is an observable connection between the abovementioned factors and the attitude Britain has taken towards many problematic issues that modern world is facing today. Unfortunately, there is no agreement in terms of the policy that should be adopted towards those problematic concepts, and this is one of the reasons why the United Kingdom has decided not to take part in certain EU policy areas. The present paper aims to focus on the selected examples of opt-out clauses negotiated over the years which attempt to prove not a steady pattern of partnership. The starting point of the analysis is an overview of the complex relationship between the United Kingdom and the European integration process from the historical perspective. The article also focuses on the fluctuation of British attitude towards integration visible in the last decades. Subsequently, a short analysis of the opt-out clauses is provided. | 77 2. The UK and the European integration process – historical overview The present shape of the European Union evolved from various European “Communities” starting from 9 May 1950, the day when at a conference in Paris the French foreign minister, Robert Schuman, proposed joint control of coal and steel production (European Coal and Steel Community ECSC). Established by the Treaty of Paris on 18 April 1951 the ECSC had six signatories, the original Member States: Germany (The German Federal Republic), Belgium, France, Italy, Luxembourg, and the Netherlands. The United Kingdom was invited to join, however, declined to do so. The European Economic Community (EEC) and The European Atomic Energy Community (EAEC or Euratom) were established by the Treaties of Rome on 25 March 1957 signed by the same six countries. The United Kingdom was again invited to take part in this project but dropped out of the preliminary discussions. Even though the treaties were institutionally and operationally different from each other, they shared the same ideology that “Europe should proceed to some form of political union because this was desirable on political, economic, and humane grounds” (Milward, 2002, p. 10). Triplication seemed to be inconvenient hence the Merger Treaty (known as the Treaty Establishing a Single Council and a Single Commission of the European Communities) was signed on 8 April 1965 in Brussels, and came into force on 1 July 1967. It was a time of great transformation which as AltieroSpinelli, one of the Founding Fathers of the European Union, concluded “has occurred in the political consciousness of Europeans (…). For centuries, neighbouring countries were seen as potential enemies against whom it was necessary to be on one’s guard and ready to fight. Now after the end of the most terrible wars in Europe, these neighbours are perceived as friendly nations sharing a common destiny (Nugent, 2006, p. 8). In reality, there still has been a lot of competition between the Member States in many areas, however, disagreements and differences on the way to a better integration since then have never been resolved by means of military forces (Sweeney, 2013). As mentioned above the United Kingdom was not among the signatories of the ECSC Treaty. It was also not a member of the two following Communities – EEC and EURATOM. At that time, in the post war years, the UK’s attitude towards the European integration was, as scholars underline (Nugent, 2006, p. 25), governed by three factors. First of all, British international relationships were based on three pillars: the Empire and Commonwealth, the United States and finally Western Europe with the last mentioned perceived as the least important direction of all. Secondly, it is worth underlining that the process of integration in this particular case was hindered due to concerns deeply-rooted in the country’s history and tradition. It was hard for successive British governments, backed by British public opinion, to accept the possible loss of autonomy or sovereignty that integration entailed. What matters is also the fact that Britain has not been invaded or controlled by any foreign powers in modern times. That gave it a strong belief that it is the world power of the first rank hence the idea of losing independence on account of integration with other European countries was regarded by British with distaste. Starting from the post war years several changes can be observed in Britain’s attitude towards integration process. In the late 1950s Trades Union Congress (TUC), British employers as well as British government presented Eurosceptic position with UK trade gravitating towards the Commonwealth countries, there was a tendency to suppose that British prosperity would not have a lot to do with the European Community (Nugent, 2006, pp. 25-27).The attitude of disdain changed in the early 1960s and in July 1961 the Conservative Government of Macmillan took the decision to apply for the European Community (EC) membership. It was also the time of the first public trade union endorsement of British entry into the EC expressed in a report of the Confederation on Engineering and Shipbuilding Union (CSEU) (Fetzer, 2007, p. 88) on the future of the automobile industry. The CSEU report stated that: “with the competition from the US in building compact cars and the growth of native car industries in other parts of the world, there 78 | is no doubt that the British car industry will have to look for its export increasingly to Western Europe” (Fetzer, 2007, p. 88).In the light of the above statement joining the EC was unquestionably the best way to open British automobile industry to Western countries. There were also a number of other points raised in the talks leading to closer integration which all together were to bring Britain to the EC. However, the first application launched by Harold Macmillan in 1961 was blocked by General de Gaulle who considered the UK a rival for France in its attempt to place itself at the centre of European stage. The negative impact of such an integration was also perceived by France as a considerable risk to the development of Franco-German alliance. On 2 May 1967 the UK applied for membership of the EC for the second time, unfortunately the application was turned down by the second de Gaulle veto in November the same year. The abovementioned events epitomized that enlargement was possible to be blocked for reasons very much related to crude domestic interests rather than due to the applicant’s inability to fulfill particular requirements. In view of the above concerns French attitude towards the UK’s membership did not change until Georges Pompidou replaced de Gaulle as French President in 1969. In Paris then the decisive shift took place in the perception of Britain membership in EC. Pompidou believed that the UK as a new potential member might, on the one hand, serve as a counterweight to self-confident Germany, on the other, contribute economically by opening its markets and being a contributor to the Community budget (Nugent, 2006, pp. 26-27). The UK’s position towards the EC changed due to a mixture of both political and economic reasons. It was no longer such a powerful country as it supposed to have been. What is more, British relationships with the United States weakened, on top of that, the Commonwealth turned to be an insufficient political supporter at the international stage. From the economic point of view, it could clearly be observed that the members of the EC were outperforming Britain in terms of investment, growth in trade or income. The Community proved to be successful body, gaining strong economic and political status. Since the day of joining the European Communities on 22 January 1972 Britain has been considered an “awkward partner” which has played a crucial role in slowing down the integration process. This phenomenon was especially visible from 1979 to 1997 during the Conservative Party’s term of office since it took a rather minimalist view of what the European Community/ European Union should be focusing on and what organizational shape it should adopt. Marketrelated issues, mainly the need of directing the EC/EU’s efforts towards creating an integrated deregulated European market, were primary matters at that time. The governments led by both Margaret Thatcher and John Major supported the development of intergovernmental cooperation when that seemed useful – for example in the field of foreign policy or aspects of internal security policy – but it must be stated that they almost always sought to resist supranational developments and any loss of national sovereignty. It was particularly visible in the mid-1980s when the majority of Community Member States accepted the need for further integration, the UK government, however, was again not particularly willing to go far beyond a common market and resulting from it various forms of intergovernmental cooperation. A similar stance of being minimally involved and likely to accept any proposals that implied supranational integration was adopted by the UK in the process leading to the establishment of Economic and Monetary Union (EMU). It can be observed that since the election of the Labour government in 1997, the British attitude towards the European Union has changed switching to a more cooperative one. Tony Blair declared that his government would pursue a policy of “constructive engagement” towards the EU and this more positive attitude was definitely reflected in the closing weeks of the Intergovernmental Conference. The government did not do an about-face in its policy, however, much of the UK’s isolationism on most issues disappeared. It can be proved for example by the willingness of Tony Blair’s government to incorporate extensions to supranational decision-making in the Treaty of Amsterdam and the Treaty of Nice (Nugent, 2006, p. 27). Nevertheless, the UK always seems to | 79 be in the slow integration stream, which can be demonstrated by Labour’s demand to be given an opt-out from particular treaty provisions, for example, concerning EU’s justice and home affairs policies and also by the will not to join the single currency system. 3. Opt-outs clauses The United Kingdom serves as a good example of a country in the case of which it is possible to demonstrate that the Treaties provide only a basic procedure, upon which additional requirements should be built. In general, the law of the European Union is valid in all Member States. However, occasionally negotiations of particular opt-outs from the European Union obligations are possible. Also the United Kingdom has negotiated such opt-outs, which means that the country does not have to participate in certain policy areas. 4. Schengen opt-out clause The Schengen area represents a territory where the free movement of persons is guaranteed. Signatory states to the agreement have abolished all internal borders in lieu of a single external border. Here common rules and procedures are applied with regard to visas for short stays, asylum requests and border controls. Simultaneously, to guarantee security within the Schengen area, cooperation and coordination between police services and judicial authorities have been stepped up. It should be mentioned that the Schengen area is within the legal and institutional framework of the European Union incorporated into the EU legal regulations by the Treaty of Amsterdam of 1997. However, not all countries are parties to the Schengen area. This is either they do not yet fulfil the required conditions for the application of the Schengen acquis or because they do not wish to eliminate border controls. The United Kingdom and Ireland were the only European Union members which, prior to 2004 enlargement, had not signed the Schengen Agreement. Both countries have agreements between themselves relating to the movement of persons between their territories – the Common Travel Area with passport free travel for their citizens between them and the three British Dependencies1. The UK did not take part in the adoption of Schengen Agreement explaining that it could not be party of it, for its special island status. As could be read in one of the House of Commons Parliamentary Debates, for an island, frontier controls are definitely a better and less intrusive way to prevent illegal immigration than such measures as identity cards, residence permits or registration with the police, which are very much appropriate for “partners with extensive and permeable land borders” (Parliamentary Debates, 1996). Following a separate protocol annexed first by the Treaty of Amsterdam and then by the Lisbon Treaty, the United Kingdom is entitled to conduct controls on persons at its frontiers firstly, to verify if such a person who purportedly has the right to enter the United Kingdom in fact has such a right and secondly, to determine whether or not to grant other persons permission to enter the country (Protocol No. 20, 2012, O J C326/293). An exceptional position of the United Kingdom and Ireland in respect of the Schengen acquis is regulated in a separate Protocol annexed to the TEU and TFEU (Protocol No. 19, 2012, O J C326/290). In accordance with the Schengen Protocol, Ireland and the United Kingdom may at any time request to take part in either some or all of the provisions of the Schengen arrangements on condition that the Schengen Member States together with the representative of the Government of the country in question vote unanimously in favour within the Council (Protocol No. 19, art. 4). These Member States are entitled to participate in the adoption of measures that build upon the Schengen acquis if they notify the Council in writing within a reasonable period of time that they wish to do so (Protocol No. 19, art. 5). It should be underlined that, as was clarified by the Court of Justice, such a right only exists for measures building on provisions of the Schengen acquis that 80 | the Member State under consideration has already accepted (Lenaerts, Van Nuffel, 2011, pp. 723726). Hence, those two countries in order to take part in the creation of any new measures, at first must adopt the particular area of Schengen regulations in which a new measure is created. Bearing in mind that the Schengen acquis functions as a coherent ensemble, such a solution is good to prevent the UK and Ireland from “cherry picking” of just some EU policies. The UK requested to participate in certain Schengen acquis regulations in 1999, which was approved by the Council Decision formally adopted on 29 May 2000 (Council Decision 2000/365/ EC, 2000, O J L131/43). On the basis of the abovementioned decision the UK for instance is to assume the obligations of a Member State arising from the particular Articles of the 1990 Schengen Convention (Council Decision 2000/365/EC, 2000, art. 1 a (i)), or it is considered to partially participate in the provisions concerning the establishment and operation of the Schengen Information System (SIS) (Art. 1 a (ii) and (iii)). Discussing the UK’s attitude towards the Schengen regulations there is a need to mention about the Council Decision of 22 December 2004 on the putting into effect of parts of the Schengen acquis by the United Kingdom of Great Britain and Northern Ireland (Council Decision 2004/925/EC, 2004, O J L395/70). The regulation is an expression of the UK’s intention to commence implementation of the Schengen acquisnamely related to: judicial cooperation, drugs cooperation, article 26 and 27 of the Schengen Convention, and police cooperation with special regard to the implementation of the relevant provisions of the SIS. When it comes to Ireland in June 2000, the country too asked to take part in some aspects of Schengen, roughly corresponding to the aspects covered by the United Kingdom’s request. The Council adopted the Decision 2002/192/EC approving Ireland’s request on 28 February 2002. The Commission had issued opinions on the two applications, stressing that the partial participation of these two Member States should not reduce the consistency of the acquis as a whole. 5. EMU opt-out clause When the Maastricht Treaty was concluded in 1992 the United Kingdom was granted an optout clause which was a condition for the UK to approve the Treaty as a whole. A separate Protocol (No. 25) annexed to the Treaty specifies the provisions of the UK’s exceptional status as far as the participation in the third stage of European Monetary Union (EMU) is concerned, which means that the country, may or may not take part in the third stage of EMU, even if it fulfill the basic prerequisites. Not only does it retain its monetary powers, but it is also not obliged to subscribe to the actual objective of monetary union(Treaty on the Functioning of the European Union, 2012,OJ C 326/01, art. 119(2)). It should be underlined that the UK does not have to fulfill these particular obligations which other member states with a derogation accept completely in the third stage, however, the obligation under Article 109e (4) to “endeavour to avoid excessive deficits” will continue to apply to the UK2. Besides the country shall retain its powers in the field of monetary policy according to national law as they are not affected by the Treaty. Protocol (No.15) (Protocol No. 15, 2012, OJ C 326/284) provides a list of those provisions of the Treaty on the Functioning on the European Union and those of the Protocol on the Statute of the European System of Central Banks and of the European Central Bank which shall not apply to the UK. Moreover, it should be stated that the UK is allowed to maintain its “ways and means” facility with the Bank of England as long as it does not participate in the third stage and does not adopt the euro (Protocol No. 15, art.10).The UK’s voting rights are suspended for the acts of the Council concerning the decision on the irrevocable fixing of the exchange rates between the currencies of the Member States that move to the third stage and adopt the euro and also the UK has no right to participate in the appointment of the President, the Vice-President and other members of the Executive Board of the ECB (Protocol No. 15, art. 6). The UK may give notice that it wishes to participate in EMU | 81 at any time, then the Council is to decide on its request in accordance with the procedure laid down in Art. 140(1) and (2) of the TFEU and is to take other necessary decisions to enable the UK to adopt the euro (TFEU, art. 140(3)). It is worth underlining that British governments adopted various attitudes towards joining EMU. The Labour government of Tony Blair argued that the UK should join the euro whereas the policy of the current coalition government, elected in 2010, is against introducing the Euro prior to the next general election, due in 2015. As David Cameron states in his speech delivered in January 2013, “Britain is not going to be in the single currency”, however, the country is not indifferent to issues related to the Eurozone. Bearing in mind that the Eurozone “needs to have the right governance and structures to secure a successful currency for the long term” Cameron argues that there is also a need to provide certain safeguards ensuring not compromised access to the Single Market (Cameron, 2013). 6. Area of freedom, security and justice opt-out clause The United Kingdom has also negotiated opt-outs in the area of freedom, security and justice, to be more precise, it does not participate in the decision-making proceeding concerning the adoption of measures under Title V Part Three of the TFEU, it is not bound by them and it does not bear the financial consequences of these measures (Protocol No. 21, 2012, OJ C 326/295, art. 1, 2 and 5). Before the Treaty of Lisbon entered into force, that arrangement only concerned measures adopted in the field of asylum, visa, immigration and judicial cooperation in civil matters, since then, however, it covers the whole area of freedom, security and justice along with police and judicial cooperation in criminal matters. If there is such a wish the United Kingdom may notify the President of the Council that it has an intention to take part in the adoption and application of a proposed measure (Protocol No. 21, art. 3).If after a “reasonable” period of time such a measure cannot be adopted with the United Kingdom (or Ireland) taking part, the Council may adopt it without its participation (Protocol No. 21, art. 3 (2)).If the UK does not take part in the adoption of a measure, the Council may do it by adjusted majority; in result this particular measure in not applicable in the non-participating State but following Article 4 of the Protocol (No. 21) it is possible for the UK to notify the intention to accept such a measure. The same procedure applies to measures proposed or adopted pursuant to Title V of Part Three of the TFEU that amend existing measures by which the UK is bound (Protocol No. 21, art. 4a).As far as pre-Lisbon measures adopted by the UE are concerned – these related to the police and judicial cooperation in criminal matters – it follows from Protocol (No. 36) that the legal effect of these measures will be preserved until those acts are repealed, annulled or amended in implementation of the current Treaties (Protocol No. 36, 2012, OJ C326/322,art. 9). Furthermore, in terms of police and judicial cooperation in criminal matters acts adopted prior to the entry of the Lisbon Treaty, the Protocol (No 36) provides for reduced powers for the Commission and the Court of Justice for a transitional period of five years (Art. 10 (1)). For the UK it means that, until December 1, 2014 national court cannot refer questions on the interpretation of validity of PJCC acts to the Court of Justice because this State did not make a declaration, pursuant to Art. 35 (2) EU, accepting the jurisdiction of the Court to rule on such matters. Interestingly enough, after a five-year transitional period the infringement powers of the European Commission together with the jurisdiction of the European Court of Justice will apply to all unamended police and criminal justice measures adopted under the pre-Lisbon arrangements (Miller, 2012). The UK has until 31 May 2014 to choose whether to accept the powers of these institutions or to opt out of them entirely. In that case, all such acts will cease to apply to the UK on 1 December 2014. Still, at any time afterwards, the UK has a right to notify the Council of its intention to participate in those acts which, in terms of the UK, are no longer applicable. Should the UK wish to ‘opt back in’ to an individual law, the approval of the EU institutions would be required. Such an approach of at first opting out and then selectively opting 82 | in causes a potential problem of, theoretically, being refused to re-enter once having decided to opt out en block. Summing up, such a procedure may easily be perceived by other Member States as another example of the so called “cherry picking” policy, very much typical of the UK within its membership in the EU. 7. Conclusions It can be concluded that the words which aptly describe Britain’s relationship with the EU are scepticism and awkwardness. The aim of this article was to present and analyse the uniqueness of this relationship, by some characterized as a marriage of convenience. It has been exemplified that the level of trepidation with which British society and politicians approached the European Communities and then the European Union both, before the accession and for long years of membership, is incomparable to the attitude adopted by other Member States. Now with the new government and the rise of Euroscepticism as a key trend in contemporary British politics, the future of the UK in the EU, namely the question whether to stay or withdraw, is the main subject of political discussion. The truth is that the United Kingdom’ s commitment to European integration has never been as complete and genuine as other countries’ on the continent, allowing Britain to treat EU membership as external rather than internal activity (Łazowski, 2012). It is claimed that leaving the UE does not make Britain stronger. It is also an illusion to believe that you can leave the EU and still be part of the common market which is not static but a dynamic thing. It needs improvements and new decisions to be made to fix it and to fix the euro. A positive consequence of those decisions will be a creation of a new dynamic not only for the financial sector but also for the internal market and this is what all the EU members want including the UK. The danger for the UK, however, is that there is no possibility to make use of this dynamic while not being a member of the EU. Far-reaching, distinct changes and reforms are needed in the current look of the EU, changes and reforms more likely to be successful with the UK on board. There are many benefits the UK accrued from its membership in the European Union. The country definitely has obtained more strength, it has also grown economically, become more equitable socially and proved to be more influential in world affairs. We cannot forget, however, an outstanding contribution the UK has made within forty years of its membership. As Dutch Minister of Foreign Affairs FransTimmermans states “we need Britain in Europe; we need a strong and convincing argument for Britain in Europe” (International Conference, 2013). Olli Rehn while talking about the UK versus the EU relations states that “it is in everyone’s interests for Britain to be an active player in Europe” and that in this so called game the UK is playing with the EU “it is better for British citizens to be midfielders rather than onlookers watching a show from the sidelines” (International Conference, 2013). The abovementioned words prove that in the time of challenges and uncertainties the EU is facing today, the best thing for all is to join forces and go through this difficult process of reform together. Whether Britain takes part in this process or not depends on a final decision made by the British citizens. One thing is certain leaving the club is politically and legally possible, however, as President Van Rompuy underlines, “a divorce after forty years of marriage does not come for free” (International Conference, 2013)and Britain should consider not only positive but also negative consequences of such a move”. | 83 References Carroll, D. (2013). EU chorus of disapproval against UK’s Eurosceptic rhetoric. Public Service Europe, March 4, 2013. Available at: http://www.publicserviceeurope.com/article/3167/euchorus-of-disapproval-against-uks-eurosceptic-rhetoric [Accessed 11 May 2013]. “David Cameron Speech: Britain and Europe - January 23rd, 2013” available at: http://www. europarl.org.uk/view/en/Food_for_Thought/HistoryUKMem.html[Accessed 10 May 2013]. Fetzer, T. (2007). Turning Eurosceptic: British trade unions and European integration (1961-1975). Journal of European Integration History: vol. 13, no. 2/2007. Geddes, A. (2013). Britain and the European Union. 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Available at: http://www.consilium.europa.eu/press/press-releases/european-council ?target=2013&max=75&bid=76&lang=en [Accessed 10 May 2013]. Treaty on the Functioning of the European Union (Consolidated version 2012) OJ C 326/01. Treaty on European Union (Consolidated version 2012) OJ C 326/01. Protocol (No. 20) [2012] O J C326/293 annexed to the TEU and TFEU, on the application of certain aspects of Article 26 of the TFEU to the United Kingdom and to Ireland (replacing Protocol (No. 3)[1997] O J C340/97 annexed to the EU Treaty and the EC Treaty by the Amsterdam Treaty). Protocol (No. 19) [2012] O J C326/290 on the Schengen acquis integrated into the framework of the European Union. Protocol (No 25) [1992] OJ C 191annexed to the Treaty establishing the European Community, on 84 | certain provisions relating to the United Kingdom of Great Britain and Northern Ireland. Protocol (No 21) [ 2012] OJ C 326/295 on the position of the United Kingdom and Ireland in respect of the Area of Freedom, Security and Justice (replacing Protocol (No 4)[1997] OJ C 340/99 annexed by the Amsterdam Treaty to the EU Treaty and the EC Treaty). Protocol (No 36)[2012] OJ C326/322 annexed to the TEU, TFEU and EAEC Treaty, on Transitional Provisions. Protocol (No 15) [2012]OJ C 326/284introduced by the EU Treaty and now annexed to the TEU and TFEU, on certain provisions relating to the United Kingdom of Great Britain and Northern Ireland . Council Regulation (EC) No 1466/97 of 7 July 1997 on the strengthening of the surveillance of budgetary positions and the surveillance and coordination of economic policies (OJ L 209, 02.08.1997) Available at: http://eurlex.europa.eu/LexUriServ/LexUriServ.do?uri=CELEX:3199 7R1466:EN:HTML[Accessed 10 May 2013]. Council Regulation (EC) No 1467/97 of 7 July 1997 on speeding up and clarifying the implementation of the excessive deficit procedure (OJ L 209,02/08/1997) Available at:http://eurlex.europa. eu/LexUriServ/LexUriServ.do?uri=CELEX:31997R1467:EN:HTML [Accessed 10 May 2013]. Council Decision 2010/779/EU of 14 December, 2010, [2010] O J L335/58 concerning the request of the United Kingdom of Great Britain and Northern Ireland to take part in some of the provisions of the Schengen acquis relating to the establishment of a European Agency for the operational management of large-scale IT systems in the area of freedom, security and justice. Council Decision 2000/365/EC of 29 May, 2000, [2000] O J L131/43concerning the request of the United Kingdom of Great Britain and Northern Ireland to take part in some of the provisions of the Schengen acquis. Council Decision 2004/925/EC of December 22, 2004, [2004] O J L395/70 on the putting into effect of parts of the Schengen acquis by the United Kingdom of Great Britain and Northern Ireland. Council Decision 2002/192/EC of February 28, 2002, [2002] O J L64/20 concerning Ireland’s request to take part in some of the provisions of the Schengen acquis. (Endnotes) 1 The Area’s internal borders are subject to minimal or non-existent border controls and can normally be crossed by British and Irish citizens with only minimal identity documents, however, the use of a passport is required by the airline Ryanair. 2 See the third recital to the Preamble to Council Regulation (EC) No 1466/97 of 7 July 1997 and the fourth recital to the Preamble to Council Regulation (EC) No 1467/97 of 7 July 1997. | 85 86 | Marta Samborska [email protected] Weronika Orłowska Jagiellonian University Union proposals for regulating measures to counter the crisis Abstract Due to the increasing economical crisis it is indispensable to soften adverse effects or what is more significant - to prevent the reasons. Financial and business collapse require highly developed remedies which allows maintaining economical solidarity. Methods and solutions which has been already applied are mostly unprofitable and ineffective as implemented without the farther reflection, automatically. The answer is introducing concepts which may appear dicey and unstable at the first glance but are in fact innovatory and profitable. Ubiquitous theme of media debate and government programs are the economic crisis and questing ideas to countervail the recession. The problem is that the new disbandment’s are virtually have not been found. However it is worth to go beyond the rigid framework of formulaic models and implement notions which are innovative, controversial or prima facie even risky. Indeed, the greatest threat is now not a certain amount of risk but immersing in the economic atrophy and ineffective modules. The first step to eradicate the economic crisis should be to understand that the integral part of economy are business cycles. Today, they are flattened and extended and severely converging political or even incidental fluctuations. Even if the European System of Central Banks discern this phenomenon, it staves to prevent them using automatic stabilizers of the conjuncture. Their impact, however, is long-lasting and often intended effects can be observed in already modified reality. In order to substantially stabilize the European market law should be amended to allow the universally employment of ‘discretionally instruments’. Particularly noteworthy is the creation of demand by the replete amortization , enhancing supply through co-financing certain branches of production, support for micro-enterprises with the use of the de minimis rule. To achieve results, you should consider a more controversial direct market interventions state, e.g. maintaining national monopolies in certain areas. On the axiological and legal level may be declared that, there is a conceptual interfusion of the free market, captured in a typical neoliberal apprehension, with the restrictive regulations and strong rationing. This leads to the mixing and merging of general clauses with the professionallyspecific regulations. This phenomenon, together with the dredging of the crisis, continues to accruing, while in point of fact it should be eliminated as a culprit of negative appearance referent with the law amorphousness. At the level of EU legislation it is essential to reform fiscal and monetary policy . Considerable resources are spent on the allocation and redistribution of income in the mostly arbitrary decisions of the European Commission or national governments. This problem in fact should be analyzed in relation to the I Gosse law, as the overly schematic and based on the virtually immutable axioms system, is characterized by diminishing marginal utility. As a result, resources are inefficiently disposed. The remedy seems to be the implementation of the outsourcing model, which allows to control the usage of payments to the extrinsic contributors. Requires consideration of the implementation of the single European tax. This would contribute to the harmonization of fiscal and budgetary policies of the Member States and guarantee the efficient allocation of resources. Interaction within the tax policy would allow the European Union | 87 to adopt the Tobin tax on speculative currency transactions allocated to equalize the deepening recession in the level of dissonance existence. In addition, it is worth to raise the issue of the functioning of tax havens in the antithesis way. On the one hand, limiting their existence will help to seal the system of payments and income growth, on the other demotivates entrepreneurs to merchandising and as a result enervate the economic situation. The biggest problem in the area of the EU’s monetary system is currently the convergence failures perpetrated by Member States, in particular the lack of a system of real accountability for their violations. Simple financial penalties strictly does not work because they are virtually non-enforcement. Issue that needs consideration is whether the transposition of sanctions on the ground even though the sphere of EU subsidies, or some repression in the terms of trade will bring the possibility of more efficient execution. The current legislature problem is a redefinition of rationing achieved by recognizing the correlation of antitrust policy and the system of licenses and permits. Differentiation microentrepreneurs embarking their businesses and enormous cartels and holdings - those potentially causing market monopolization, will reduce the need for system of franchises and licenses and simplify the economic conditions in times of the crisis. In conclusion, in the sphere of EU anti-crisis remedy is crucial to look at innovative, going beyond the simple implementation of traditional instruments. This will stop the clicking clock prophesying an economic disaster, because as Eckhart Tulle said “the is a hidden opportunity in every crisis. Keywords: recession, combating the economic collapse, legal institutions, European measures, innovative solutions, economic policy 1. Introduction: Innovative solutions in times of the economic crisis The era of economic stagnation, financial collapse, business breakdown, petrificating means and measures but also the time of freezing operations recession and the financial problems. One word - a crisis. The crisis, which affects the individual member states and the European Union in general. It can be observed at the regional, national, but also international level (SzołnoKoguc&Pomorska, 2011, p.105-106). Downturn in the global economy is the most visible, but also the most severe. But paradoxically, at the local level, as a rule they are pursued actions to combat the crisis (Miłek&Wilk-Jakubowski, 2009, p.164-165). There is a lack of solutions to cope with the negative phenomena at the more general level . It can be seen a progressing atrophy of solutions based on solidarity and pan-European harmonization of the factual and legal instruments with a broad spectrum of influence (Kowalski&Ślusarczyk, 2010, p.45). Making the implementation of economic thought in the real sphere of legislative impact can be appealed to the first Gossen law. This allows to form the thesis of diminishing marginal utility of national activities what justifies the necessity of taking operations at a European level (Nalepka, 2008, p.337). The above-mentioned diminishing utility of Member States countries activities is possible to speak to a large extent - they are guided by political interests rather than fiscal issue. In addition, they duplicate repeatedly identical schemas and models, and thereby multiplies faults. Currently, no state can be considered as closed, abstracted from economic reality enclave (Stabryła, 2010, p.63-64). Although at that time no one uses the term mercantilism, it can be stated that the doctrine of Colbert is still functioning and seems to be valid in economic turnover. Figuratively speaking, governments do not realize the relevance of statements ‘import forms export’(Molendowski&Polan, 2007, p.93). It can be presented the thesis that the existing solutions are ineffective and inefficient. 88 | Further, their farther use and reliance on old modules will not bring any changes. As a result the crisis will became more pronounced and intense, because there will be implemented no effective measures. Therefore, it is worth to take the debate on new forms of action and innovative methods. Departure from developed schemes and certain modes of action may seem sometimes risky, imprudent and even reckless (Winiecki, 2009, p.63-64). However, only such a drastic solution can fully resist the wave of the crisis and economic stagnation. Therefore, the aim of this paper is to present the possibly widest catalog of proposed solutions. They relate in fact to all sectors of the economy, from financial, by monetary and fiscal matters to the or regulations of the banking sector (Van Hoa, 2002, p.1-5). 2. The interdependence of antitrust policy and the system of licenses and permits One of the suggested measures to combat the economic crisis is the redefinition of model of taking up business, achieved by recognizing the correlation of anti-trust system of concessions and permits. Reducing the degree of regulation in the activities of new entrants has greatly contributed to the increase in competitiveness, which would have a significant impact on the promotion of antitrust policies (Kohutek, 2012, p.459-460) . As a result, it could result in heterogenization micro entrepreneurs and companies that start business and those potentially threatening monopolization or oligopolization on the market. Self noticing the already mentioned relations is possible at the level of doctrine and policy (Materna, 2009, p.28-29). Within the meaning of doctrine means to describe the scale and perspective of strengthening the impact of that interaction (Wojtkowska-Łodej, 2003, p.338). An additional tool to support micro-entrepreneurs may be the de minimis aid understood as a partial subsidy business relations inter partes without the involvement of the European Commission (Ruśkowski, 2010, p.293). Until now, this type of support was perceived as having implications for the individual subjects. Such an understanding is by definition the most adequate, but a kind of novelty of thought is an extension of the understanding and the scope of the de minimis rule over individual entrepreneurs. A broader view of the subsidization process reveals the benefits to the economy, which are manifested in the economic growth. This therefore allows claiming that the activity of micro-entrepreneurs was the real rudimentary, basis for economic development (Cioch, 2011, p.315). All kinds of differentiating the premises or business conditions will inevitably lead to heterogenization in treatment of entrepreneurs. Making a simple subsumption of this state of affairs leads to the conclusion that this may result in violation of the principle of equality (Kohutek&Sieradzka, 2008, p.1043). Strikes in fact in a principle of equality before the law, as the addressees of legal norms are not treated in a equivalence way in the application of the law and what is more significant, undermines de facto equality in the law, since the legal situation is radically differentiated at the point of creating different standards. In reality, though, paradoxically, it may be that this differentiation of economic operators can lead to a strengthening of the principle of equality, because equality in the positive aspect can never be understood as an absolute (Szydło, 2010, p.147). The current problem is also relationship of European and national antitrust and competition law and consumer protection, in particular, different adjustment by Member States of the European Union of certain facts belonging to purely internal matters than has been made ​​in the norms of Union (Gajda-Roszczynialska, 2012, p.148-150). As a result, due to the use often stricter than EU national legislation follows à rebours discrimination, commonly known as reverse discrimination (Wróbel, 2010, p.197-198). Theoretically, no legislation explicitly prohibits such practices, because it would be perceived as a risk infringement the internal autonomy of the national legislature. However, it is considered that when on the EU level, certain harmonization | 89 measures have been applied that should also be referred to the internal affairs of Member States, which allows indirectly imply a prohibition this type discriminatory practices (Brzeziński, 2010, p.342). This is particularly important since it is a response to the possible objection that admission to the above-described differentiation of economic operators, however, will be a disturbance of the principle of equality. It seems that the EU principle of is remedy for any breach of uniformity of treatment between operators appearing on the national scale. It is worth to emphasize that the behavior of non-discrimination is a fundamental step for the strengthening of positive models. The standards are necessary during the time of economic crisis (Ellis&Watso, 2012, p.12-13). 3. Conjuncture cycles as an integral part of the economy The sine qua non condition to take all the economic considerations is accepting that the phenomenon in fact inevitable is occurrence of cyclical fluctuations, seasonal and trade cycles or political oscillations (Nasiłkowski, 2004, p.316-320). Regardless of whether it is assumed that these are short Kitchin cycles or periods of almost a century of specifying the Kondratiev or van Ewijk it should not be undermined their very presence (Włudyka&Smaga, 2012, p.149-153). The key is to notice that the current cycle is considerably flattened and lengthened. The reality is dominated by the mutually antagonistic phases of violent and sudden breakdowns and the economy booms. This is why it is so relevant when appropriate counter-cyclical policy tool of the state are used. In Community law can be observed a tendency to use mainly the autonomous stabilizers (Kosikowski, 2011, p.323). Even though they are so widely utilized, they paradoxically often prove to be ineffective although progressive taxation, budget transfers and unemployment benefits are associated with engaging substantial financial resources. This ‘automation’ implies a lack of adaptation to rapid changes (Dach, 2011, p.16-17). The effects of the implemented activities can always be seen in the changed reality. Reassure the economic kaleidoscope can implementation of a wider range of discretionary instruments of the state. It should be pointed out on the measures which are classically calculated - as the change in interest rates or tax rates, investment on the market, direct subsidies for businesses and creating demand, which can be made up by the use of tax credits, extended system of public procurement or accelerated promotion, and even the total amortization (Góral, 2011, p.85-86). Although undoubtedly this remains controversial we should also consider whether in exceptional and specific breakdowns of market equilibrium it can be to allowed highly interventionist measures such as the creation of monopolies controlled by the state (Barczyk, 2006, p.139-140) (Jacobs, 1998, p.163-166). 4. Awareness of barriers to growth as a step to overcoming them It can be said that an obstacle to the economic growth is the unconsciousness of the existence of thereof barriers. Noticing some boundaries is necessary to take steps to mitigate or even permanently derogate them (Orłowski, 1999, p.132-134). At the forefront is crossing institutional boundaries - revision of outdated economic legislation, streamlining bureaucratic procedures combined with assigning on the decentralized decision-making authorities and improving the banking system and information system about state of the economy, while also preventing the phenomenon of inflation of the legislation proceedings (Matejun&Szczepańczyk, 2010, p.180). It is also worth considering how the modernization of antitrust policy could be correlated with the reduction of the licensing business. So far generally not have been perceived relationship of these two areas, and in fact preventing monopolization of the market can manifest in differentiation, specifically mitigation requirements establishment by new entities and microentrepreneurs (Kohutek, 2012, p.499-501). Within the structural barriers it is noteworthy that sectorical is currently misperceived (Szłono-Koguc&Pomorska, 2011, p.394). It does not help in 90 | the efficient organization and systematization of market activity, but in fact becomes the cause of preferential differentiation and underdevelopment branches of industry producing capital goods and technology. Therefore sectoral glance would be abolished in favor of widening the view of mutual permeation of the correlation of individual market segments (Kawecka-Warzykowska, 2009, p.178-179). 5. Constitutional values in the perception of crisis In the economic debate focused on the implementation of specific solutions it is definitely forgotten about constitutional values (Dudek, 2009, p.26-28)​. The social market economy, even though is the rule of the political system is displaced constrictive dispute Keynes-supporters with the neoliberals. It is forgotten that the conflict is in fact not necessary, because the concept of the third way has already been to the Polish legal system implemented. Although there is no basis of enforcement of the soziale Marktwirtschaft assumptions from the public authorities and the nature of specific standards-based norm ordoliberalism premised on mental concept can be used in daily practice to refer to the constitutional principles the presumption of constitutional interpretation and waking reservation rules (Tokarczyk, 2010, p.92-93) (Włudyka&Smaga, 2012, p.433-434). In addition to raise awareness the legal and political standards must also be ensured compliance with the postulate of legal certainty. This is particularly important for the economy, especially in the area of tax law. Legal certainty can embody freedom of each individual (Mastalski, 2008, p.75-76). 6. Economic separatism The development of economic thought should also take into account the trimming levels of the regions. It is ignored currently the phenomenon of economic separatism, and it is worth noting that the reason for the conflicts are no longer ethnic disputes, religious or cultural arguments, and begin to escalate disputes caused by the widening of the income and financial capacities of particulars areas (Dickerson, Flanagan&O’Neill, 2009, p.188). Therefore it is worth seek to objectify the rules for the distribution of resources and the implementation of EU principle of forecasting. On the national basis real instrument is the use of regional contracts allowing for the allocation of general national budget in accordance with local needs (Wlaźlak, 2010, p.72). The effect of economic separatism may be intensifying the dissonance between national and local level policy, growth of antagonisms - ultimately leading up to armed conflicts, difficulties in arranging a uniform system of payments, foreign exchange or tax, and at the EU level inhibition of European integration (Weidefeld&Wessels, 2002, p.45-46). As an example may be provide, within the created solutions within the European Union, multi-level governance, so the distribution of decision-making processes at different levels of governance, including regional. The development of the theory of multi-segment management facilitates blurring the boundaries between external and internal policies, and engage the public in a direct way in a smooth policymaking (Hooghe&Marks, 2001, p.2-4). A similar step to the appropriate application of the theory of multi-level governance in regional policy can provide the conceptual expansion the multicentricity of legal system of local regulations (Wróbel, 2010, p.369-370). In the procedure for application and interpretation of the law to a greater extent, especially in matters directly affecting the region, considered should be local laws (Croston, 2004, p.121-125). Another solution is to mitigate the negative effects of economic separatism may be more active lobbying of regional markets, enabling the participation of stakeholders in the efficient formation of financial position as close as possible to the citizen level (Spencer, 1998, p.12-15). As an example, may be given the creation of regional offices - local | 91 authorities independently determine the scope of their competence, tasks and measures for the development of EU policy (Babiński&Kapiszewska, 2009, p.428). Importantly, the operation of the office is not at the same time arbitrary and does not expose on the loss of national authorities, as the boundaries of freedom of action are so called. codes of conduct for lobbying. Effective solution can also be expanding catalog of forms of cooperation between local authorities and central bodies, for example by organizing the mediation of local governments with state agencies (Tomaszewski, 2007, p.74-75). 7. Policy mix The main task of the public authorities should be Implementing the concept of the policy mix that is appropriate balancing of monetary and fiscal policy. In the doctrine it is indicated the allocative , redistribution and stabilization function as an elementary tasks. In practice, these features can be observed wider, and not recognizing their impotence predisposes somehow infirmity of their conscious realization (Organization for Economic Cooperation, 2010, p.252-254). It is worth to indicate here at least at the preventive function to mitigate the negative effects of a crowding out effect. To ensure the harmonious development vital importance has also the local government fiscal policy - is also essential fiscal policy - self-absolutely is need of a proper selection of ceded to government actions. Too wide catalog can cause significant difficulties for their implementation, too narrow, in turn, excessive centralization (Organisation for Economic Cooperation and Development, 2008, p.49). It should also be noted that any budget activity needs to be drawn state financial forecasts relevant to the concept of the budget task (Ruśkowski, 2009, p.7-9). Currently, the forecast includes more than 20 areas of economic policies, for foreign, to regulation of the labor market. The problem is only the extension of this directory that it would not have happened his ossification, even by high-tech industry or innovation infrastructure. Another option may be a general departure from sectority and enabling permeation of the individual standards (Aerdt&Houben, 2000, p.36-37). It is worth seeing defects in fiscal policy and mitigate the its negative aspects, such as low flexibility, delayed reaction or the phenomenon of deficit spending, the application of monetary policy. For the sake of the absolute primacy of the anti-inflation aim, with the classic triad key of the monetary policy instruments are open market operations guaranteeing the widest spectrum of activities (Ötker&Hohnston, 1999, p.3-4). Trading in securities and foreign exchange and issuing their own debt guarantees a real impact on the maintenance of the inflation target at a specified level (Nojszewska, 2010, p.408-410). Determinant in this area is the autonomy of the central bank. Therefore it is necessary to create such legal instruments that prevent pressure from the executive (Włudyka&Smaga, 2012, p.209-212). 8. The control and audit system in times of crisis Indispensable for improving the operation of the economy is the system of internal control and audit in public finance sector. The basis is the control of compliance of business operations and finance with the financial plan and transparency of administer the funds. There are not also irrelevant prudential and remedial procedures (Ofiarski, 2010, p.20-22). But it is worth noting that besides typically conceived economic surveillance consisting of a simple intervention using supervisory measures, preventive and repressive. It is also worth respect the soft-law provisions (Strzyczkowski, 2011, p.61-63). Codes of corporate governance, deontological, based on ethics or adopted market praxis’s may be in practice more important than rigid prescriptive regulations. The reason for this is quickly adapt to the market changes and no need to application period, because somehow infirmity of automaticity of such solutions can be seen (Zacharzewski, 2010, s.167-170). 92 | 9. The accession to the euro zone - the conditions of convergence In the analysis of the problems of economic growth cannot be overlooked international influences, especially in the context of considering whether accession to the euro zone is only a hypothetical vision, or a real necessity. It can be assumed this is not merely a specific model the economic fad and the political system that requires implementation. In terms of comparatives consequences not adopting the euro can be presented in the negative catalog . This leads to the creation of a kind of enclave, which hinders trade relations with neighboring countries, generates the need for costly exchange resulting in unnecessary accumulation and freezing means of payment and the risk of currency speculation (Beblavý, Cobham&Ódor, 2011, p.148-149). The adoption of an opt-out option requires a specific political system and above all the tradition, which in Poland is not sufficiently well established yet such as it can be observed even in the UK (Great Britain. Parliament. House of Commons, 2012, p.1-6). As a result, comparing prices is based on the complex indexes and indicators, what for the average participant in the market can be very complicated. In addition, is growing, commonly overlooked and ignored - so the more dangerous economic separatism. The hotbed of conflict often are no longer grounds ethnic, religious or cultural, and lack of understanding that the best solution would be to create a “Schengen II” in terms of full freedom of movement of capital union u (even more relevant when the euro is slowly displacing the dollar as a function of global currency). Analyzing historic foundations of the implementation of the euro is worth noting that the very idea is a a solution firstly tested in practice as to range of the functioning of both de lege lata and de lege ferenda in a significant number of Member States and secondly based on rather than innovative thinking on the worked out in a certain continuity, practically since the sixties when it was published Marjolin memorandum (Hogan, 1987, p.347) (Singleton, 2010, p.261-262). It is worth noting that while the euroisation phenomenon in itself, as introducing the euro in a unilateral and contrary to the concept of economic and monetary union, it is negative, it can be competitive for a national economy, which should lead to an accelerated decision-making (Jesień, 2008, p.199-200) (Patena, 2010, p.164). It should be emphasized that the regulatory system based only on the national solutions is very limited in perspective and limited with the claustrophobic framework his own restricted in certain aspects legal system, and additionally exposed to the interference of government bodies (Kosikowski, 2011, p.529-530). Solutions adopted with the accession to the euro zone may be effective in this regard, if not the only remedy. The excessive deficit procedure and determination convergence criteria, particularly price stability and the requirement to keep the deficit and public debt at a reasonable level, despite the apparent repressive nature have a positive impact on the economy of the state (Wojtkowska-Łodej, 2003, p.142). Meeting these after all logical presumption should be vaguely automatically. These are necessary conditions, and not exorbitant expectancy for the proper functioning of the banking system, stock market, and especially antiinflation policy. It is worth remembering, especially in view of the temporariness of Euro system that its violation as a kind of meta-political values can cause an avalanche of economic chaos and long-term disruption (Konopacki, 2009, p.81-86) (Panfil, 2011, p.140-141). 10. Tax issues, the Tobin tax, a uniform EU tax The impact on the economy outside strictly speaking fiscal instruments includes a number of tax mechanisms. One of them, which in the current debate is subject to the attention is the implementation of the single European tax, which will contribute to the harmonization of the financial policies of the Member States, and as a result was a guarantee a fair allocation of public contributions. The interaction of tax policy within the European Union requires consideration of | 93 the adoption a Tobin tax (Sulmicki, 2005, p.80), the tax on speculative currency transactions (Brzeziński&Kosikowski, 1998, p.140-141). The current debate on the tax is controversial because of the contradictory perception. There are two dichotomous currents in the interpretation its provisions. On one hand, the doctrine indicates a purely ideological concept, abstract, detached from specific solutions. On the other hand, may be considered the actual introduction of the Tobin tax to legislative agendas (Sulmicki, 2002, p.80). Referring to the example of the Federal Republic of Germany, it is worth mentioning that these solutions is the real way to prevent margin dealings threatening market confidence. What’s more, it is possible to realize solution, provided on its being implemented on a wider scale. The scale of the world’s economic powers such as the United States, China, and even in the changing reality India and the European Union seen as a collective. It should also be given to the purpose for which will be possible for the Tobin tax income (Wojtkowska-Łodej, 2003, p.142). Currently accepted and leading aim is a redistribution of these amounts on a global scale in order to prevent the problems of civilization, such as poverty. However, it is peculiar postulate to redistribute accumulated income only within the European Union in a order to compensate in a level of existential dissonance, which shines the demand of social egalitarianism. The next step in the unification of the tax system of the European Union’s is demand for further reduction in tax heavens. This also leads to seal the payment system and, consequently, to an increase in revenue in the strict sense (Szołno-Koguc&Pomorska, 2011, p.6162). 11. Summary: The hidden opportunity in every crisis Sometimes it is worth to ensure economic development go beyond the traditionally regarded instruments. Ultimum game (Włudyka&Smaga, 2012, p.69) clearly shows that the main criterion for making a “business” decision is not rationality. So it is worth consider moving the institution of leapfrogging on the ground. economically As in practice goes to implement new technologies without the prior stages of development also in the field of economics should be able to deploy new solutions without the need for laborious process of gradual recodification. Such a solution may be even reception on the Polish ground. conditions and occupied by the general public as dominated by the will and the opinion of the public authorities, addressing a public hearing or approval of large-scale lobbying (Castells, 2007, p.216-217). In conclusion, in the sphere of EU anti-crisis remedy is crucial to look at innovative, going beyond the simple implementation of traditional instruments. This will stop the clicking clock prophesying an economic disaster, because as Eckhart Tolle said “there is a hidden opportunity in every crisis. Crisis as an opportunity to reform the system, the new solutions the shift of thinking social economy solidarity, clarifying roles and shape of the euro area (Parry, 1990, p.3-4). References Aerdt, C.F., Houben, J. (2000). The evolution of monetary policy strategies in Europe (pp.36-37). Boston [u.a.]: Kluwer Acad. Publ. Babiński, G., Kapiszewska, M. (2009). Zrozumieć współczesność (pp.428). Kraków: Oficyna Wydawnicza AFM Barczyk, R. (2006). Nowe oblicza cyklu koniunkturalnego (pp.139-140). Warszawa: Polskie Wydawn. Ekonomiczne Beblavý, M., Cobham, D.P., Ódor, L. (2011). The Euro area and the financial crisis (pp.148-149). Cambridge ; New York: Cambridge University Press Brzeziński, B., Kosikowski, C. (1998). Harmonizacja prawa podatkowego Unii Europejskiej i Polski 94 | (pp.140-141). Warszawa: Polskie Wydawn. Ekonomiczne Brzeziński, P. (2010). Unijny obowiązek odmowy zastosowania przez sąd krajowy ustawy niezgodnej z dyrektywą Unii Europejskiej (pp.342). Warszawa: Wolters Kluwer Polska – Oficyna Castells, M. (2007). Mobile Communication and Society (pp.216-217). Massachusetts: Massachusetts Institute of Technology Cioch, H. (2011). Prawo spółdzielcze (pp.315). Warszawa: LEX a Wolters Kluwer Polska Croston, M. (2004). Shadow separatism: implications for democratic consolidation (pp.121-125). Burlington, VT: Ashgate Dach, Z. (2011). Polityka makroekonomiczna w warunkach kryzysu i jej wpływ na gospodarkę: teoria i praktyka (pp.16-17). Warszawa: Wolters Kluwer Polska Dickerson, M.O., Flanagan,T., O’Neill, B. (2009). An introduction to government and politics: a conceptual approach (pp.188). Toronto: Nelson Education Dudek, D. (2009). Zasady ustroju III Rzeczypospolitej Polskiej: Stan prawny na 1 września 2009 r. (pp.26-28). Warszawa: Warszawa Wolters Kluwer Polska Ellis, E., Watson, P. (2012). EU Anti-Discrimination Law (pp.12-13). Oxford: OUP Oxford Gajda-Roszczynialska, K. (2012). Sprawy o ochronę indywidualnych interesów konsumentów w postępowaniu cywilnym (pp.148-150). Warszawa: Wolters Kluwer Polska Góral, L. (2011). Zintegrowany model publicznoprawnych instytucji ochrony rynku bankowego we Francji i Polsce (pp.85-85). Warszawa: Lex a Wolters Kluwer business Great Britain. Parliament. House of Commons (2012). Treaty on Stability, Coordination and Governance: impact on the eurozone and the rule of law: sixty-second report of session 201012. Vol. 1, Report, together with formal minutes, oral and written evidence (pp.1-6). London: Stationery Office Hogan, M.J. (1987). The Marshall Plan: America, Britain and the Reconstruction of Western Europe (pp.347). Cambridge University Presss Hooghe, L., Marks, G. (2001). Multi-Level Governance and European Integration (pp.2-4). Oxford: Rowman&Littlefield Publishers, Inc. Jacobs, J. (1998). Econometric business cycle research (pp.163-166). Boston [u.a.]: Kluwer Jesień, L. (2008). Zmiana i kontynuacja: polityka europejska wybranych państw Unii Europejskiej (pp.199-200). Warszawa: Polski Instytut Spraw Międzynarodowych Kawecka-Wyrzykowska, E. (2009). Polityki gospodarcze Unii Europejskiej (pp.178-179). Warszawa: Szkoła Główna Handlowa w Warszawie - Oficyna Wydawnicza Kohutek, K. (2012). Praktyki wykluczające przedsiębiorstw dominujących: prawidłowość i stosowalność raguł prawa konkurencji (pp.499-501). Warszawa: Lex a Wolters Kluwer business Kohutek, K., Sieradzka, M. (2008). Ustawa o ochronie konkurencji i konsumentów: komentarz (pp.1043). Warszawa: Lex a Wolters Kluwer business Konopacki, S. (2009). Polska pięć lat w Unii Europejskiej (pp.81-86). Łódź: Ibidem Kosikowski, C. (2010). Prawo Unii Europejskiej w systemie polskiego prawa finansowego (pp.5758). Białystok: Temida2, Wydawnictwo Stowarzyszenia Absolwentów Wydziału Prawa Uniwersytetu w Białymstoku: przy współpr. Wydziału Prawa Uniwersytetu w Białymstoku Kosikowski, C. (2011). Naprawa finansów publicznych w Polsce: (przyczyny, metodologia, kierunki i propozycje) (pp.529-530). Białystok: “Temida 2”, Wydawnictwo Stowarzyszenia Absolwentów Wydziału Prawa Uniwersytetu w Białymstoku: przy współpr. Wydziału Prawa Uniwersytetu w Białymstoku Kowalski, J., Ślusarczyk,Z. (2010) Unia Europejska: proces integracji europejskiej (pp. 45). Poznań: | 95 Polskie wydawnictwo prawnicze Mastalski, R. (2008). Stosowanie prawa podatkowego (pp.75-76). Warszawa: Warszawa Wolters Kluwer Polska Matejun, M., Szczepańczyk, M. (2010). Aktualne problemy zarządzania małymi i średnimi przedsiębiorstwami: praca zbiorowa (pp.180). Łódź: Wydawnictwo Politechniki Łódzkie. Materna, G. (2009). Pojęcie przedsiębiorcy w polskim i europejskim prawie ochrony konkurencji (pp.28-29). Warszawa: Oficyna Wolters Kluwer Polska Miłek, M., Wilk-Jakubowski, G. (2009). Stan realizacji polityki społecznej w XXI wieku (pp.164165). Kielce: Wydawnictwo Stowarzyszenia Współpracy Polska-Wschód. Oddział Świętokrzyski Molendowski, E., Polan, W. (2007). Dyplomacja gospodarcza: rola i znaczenie w polityce zagranicznej państwa (pp.93-93). Warszawa: Lex a Wolters Kluwer business Nalepka, A. (2008). Organizacje komercyjne i niekomercyjne wobec wzmożonej konkurencji oraz wzrastających wymagań konsumentów (pp.337). Nowy Sącz: Wyższa Szkoła Biznesu – National-Louis University Nasiłkowski, M. (2004). System rynkowy: podstawy mikro- i makroekonomii (pp.316-320). Warszawa: Wydawnictwo Key Text Nojszewska, E. (2010). Podstawy ekonomii (pp.408-410). Warszawa: Wydawnictwa Szkolne i Pedagogiczne Ofiarski, Z., (2010). Prawo finansowe (pp.20-22). Warszawa: Wolters Kluwer – Oficyna Organisation for Economic Co-operation and Development (2008). OECD Economic Surveys: Poland 2008 (Polish version) (pp.49). Ministry of Economy, Poland Organization for Economic Cooperation an (2010). Oecd Science, Technology and Industry Outlook 2010 (pp.252-254). Organization for Economic Orłowski, R. (1999). Bariery i szanse rozwoju gospodarki rynkowej w Polsce: prace dedykowane Profesorowi Wacławowi Grzybowskiemu w siedemdziesiątą rocznicę urodzin (pp.132-134). Poznań: Wydawn. Uniwersytetu Marii Curie-Skłodowskiej Ötker, I., Johnston, R.B., International Monetary Fund (1999). A Modernized Approach to Managing the Risks in Cross-Border Capital Movements (pp.3-4). Washington, D.C.: International Monetary Fund Panfil, P. (2011). Prawne i finansowe uwarunkowania długu Skarbu Państwa (pp.140-141). Warszawa: Lex a Wolters Kluwer business Parry, G. (1990). Coping with crises (pp.3-4). Leicester: British Psychological Society ; New York, NY: Routledge, Chapman & Hall Patena, W. (2010). Podręcznik do bankowości: rynki. regulacje, usługi (pp.164). Warszawa: Wolters Kluwer Polska Ruśkowski, E. (2011). Instrumenty nowego zarządzania finansami publicznymi wybranych krajów Unii Europejskiej (pp.7-9). Białystok: Wydawnictwo Temida 2 Ruśkowski, E., Bogdanìvna Zaveruha, I. (2010). Public finance and financial law in the context of financial crisis in Central and Eastern Europe (pp.293). Białystok: “Temida 2”, Wydawnictwo Stowarzyszenia Absolwentów Wydziału Prawa Uniwersytetu w Białymstoku: przy współpr. Wydziału Prawa Uniwersytetu w Białymstoku Singleton, J. (2010). Central banking in the 20th century (pp.261-262). Cambridge: Cambridge University Press Spencer, M. (1998). Separatism: democracy and disintegration (pp.12-15). Lanham, Md. ; Oxford: Rowman & Littlefield 96 | Stabryła, A. (2010). Zarządzanie w kryzysie (pp.63-64). Kraków: Mfiles.pl Strzyczkowski, K. (2011). Publiczne prawo gospodarcze (pp.61-63). Warszawa: Wolters Kluwer – Oficyna Sulmicki, J. (2002). Kryzysy walutowe: strefa EURO - współczesne wyzwania dla Polski (pp.80). Zamość: Wyższa Szkoła Zarządzania i Administracji w Zamościu Sulmicki, J. (2005). Stabilność rynków finansowych a wejście Polski do strefy euro (pp.80). Warszawa: Szkoła Główna Handlowa w Warszawie Szołno-Koguc, J.M., Pomorska, A. (2011). Ekonomiczne i prawne uwarunkowania i bariery redukcji deficytu i długu publicznego (pp. 61-62). Warszawa: Lex a Wolters Kluwer business Szydło, M. (2010). Nadużywanie pozycji dominującej w prawie konkurencji (pp.147). Warszawa: Oficyna a Wolters Kluwer business Tokarczyk, R.A. (2010). Współczesne doktryny polityczne (pp.92-93). Warszawa: Wolters Kluwer Polska – Oficyna Tomaszewski, K. (2007). Regiony w procesie integracji europejskiej (pp.74-75). Warszawa: Wolters Kluwer – Oficyna Van Hoa, T. (2002). Economic crisis management: policy, practice, outcomes and prospects (pp. 1-5). Cheltenham [u.a.]: Elgar Weidefeld, W., Wessels, W. (2002). Europa od A do Z. Podręcznik integracji europejskiej (pp.4546). Wrocław: Wokół nas Winiecki, J. (2009). Kryzys globalny: początek czy koniec? (pp.56-58). Gdańsk:Regan Press Wlaźlak, K. (2010). Rozwój regionalny jako zadanie administracji publicznej (pp.72). Warszawa: Wolters Kluwer Polska – Oficyna Włudyka, T., Smaga, M. (2012). Instytucje gospodarki rynkowej (pp.69). Warszawa: Wolters Kluwer – Oficyna Wojtkowska-Łodej, G. (2003). Polska w Unii Europejskiej: uwarunkowania i możliwości po 2004 roku (pp.338) (pp.142). Warszawa: Szkoła Główna Handlowa w Warszawie Wróbel, A. (2010). Stosowanie prawa Unii Europejskiej przez sądy, Tom I (pp.197-198) (pp.369370). Warszawa: Wolters Kluwer – Oficyna Zacharzewski, K. (2010). Prawo giełdowe (pp.167-170). Warszawa: Wolters Kluwer - Oficyna | 97 98 | II. The new challenges for human rights and the effectiveness of their protection | 99 100 | Christopher Harding University of Aberystwyth (United Kingdom) [email protected] Joanna Beata Banach-Gutierrez University of Warmia and Mazury in Olsztyn [email protected] EU criminal law and the protection of human rights: the emerging interface Abstract The discussion here examines the emerging phenomenon of ‘EU criminal law’, as an increasingly significant body of policy and law, especially since the changes brought about by the Treaty of Lisbon, and the relation between the application of these European rules and the protection of human rights. There is evidence already of a growing amount of argument and litigation which seeks to balance the enforcement of EU criminal law norms and the need to ensure the protection of basic individual rights, especially in the context of the principle of mutual recognition. It is argued that such legal activity will increase in both amount and significance, rendering the EU legal order an important site or ‘laboratory’ for the working out of policy issues and legal solutions within the still diverse European environment of crime policy, penal policy, criminal law and criminal justice. Keywords: EU; criminal law; crime policy; human rights; mutual recognition. 1. Introduction For many, the term ‘EU criminal law’ will appear as a novel and contestable term, prompting fundamental questions regarding its meaning and legitimacy. But, moving further into the second decade of the twenty first century, its reality cannot be doubted, as a perusal of a number of new textbook titles, reflection on an increasing body of legislation and case law within the EU legal order, and a closer reading of the competence of the EU institutions in the post-Lisbon Treaty on the Functioning of the European Union (TFEU) should quickly demonstrate. Linked to the Area of Freedom, Security and Justice (AFSJ), the EU now possesses a clear legal basis for taking action on criminal law matters and steering the policy and practice of Member States in relation to crime and criminal law issues. While the nature and direction of this body of policy and law remains a matter for discussion and analysis, and in particular the relationship between EU and national rules in the criminal law field will remain a matter of on-going development for some time to come, undoubtedly the emergence of this new European criminal law regime does and will have implications for the protection of basic rights at both the national and the European level. Criminal law has a significantly expressive, intrusive and coercive character and as such quickly engages with the interests typically protected through the system of basic or human rights. A retrospective glance at the experience and case law arising from resort to the European Convention on Human Rights (ECHR) over the years will show that the use of criminal law powers and the process of criminal justice have accounted for a significant proportion of the applications put forward under the ECHR.1The two areas of law have thus a strong association. It is the intention in this paper to sketch some main points about the relation between criminal law and human rights protection in the context of the EU and its likely trajectory of development. | 101 2. The emergence of the EU as a significant regime for the protection of basic rights: the main lines of development It may be helpful first to say something about the EU as an actor in the field of human rights protection. While its present significant role in this respect may easily be taken for granted, in the light for instance of the EU Charter of Fundamental Rights and a considerable case law on the subject from the work of the EU Courts, it is worth recalling that the such a mission did not appear in the original concept of the Common Market, nor was it regarded seriously in that (EC) context until the beginning of the 1970s. Earlier attempts to introduce rights protection argument in litigation before the Court of Justice were rebuffed, and it was not until the gauntlet was thrown down by German Courts that the Court of Justice deftly seized the opportunity to legitimate further the role and commanding status of Community law by appropriating that protective mission for the new sui generis Community order.2 Yet, from the beginning, the Court of Justice was clear that protection of basic rights would be on the Community’s own terms,3 signalling an approach that might run parallel to that of the ECHR regime and those of the Member State constitutions but was nonetheless formally and conceptually distinct. Although this has remained a subject of puzzlement for the layperson and ordinary citizen, the Strasbourg and Luxembourg Courts and jurisdictions continue as distinct entities, going forward in comity rather than convergence or fusion. It is well to remember that the ECHR system, located in the Council of Europe, is formally and operationally intergovernmental, and largely reactive to national actions, whereas whatever has developed in this respect within the EC/EU system has followed the supranational lines and served the supranational objectives of sui generis Community and Union. In this way, protection of basic rights in the EU system has proven opportunistic, and even idiosyncratic and haphazard. With the benefit of hindsight, some forty years since this process began, it is possible to recognise some main strands of legal development. One important motor of development was the Common/Single Market mission itself, wherein there occurred a kind of colonisation of basic rights argument in support of Single Market goals. Thus the underlying policies and principles for achieving the Single Market gave birth to more specific basic rights, associated with economic freedom and opportunity and freedom of movement - broadly speaking, market liberalisation rights. To some extent some such rights were already embedded in provisions in the Treaty of Rome (e.g. free movement of persons) but also there was some progressive and imaginative extrapolation of some entitlement in the case law of the Court of Justice (e.g. trading rights, economic self-determination, or to deal with property), within a framework of general principles (equality, non-discrimination, proportionality, legitimate expectation), and drawing upon analogies in the ECHR and national constitutions (especially that of Germany)4. In due course, the assertion of such market liberalisation rights encountered argument which asserted opposing interests, such as those of consumers, or in relation to environmental or health protection, so that basic rights relating that kind of interest, were also brought within the expanding EC panorama of rights protection argument.5 A second line of development has been rather different and relates to a significant issue of agency. In relation to trading activity in a broad sense, but also – and importantly – in relation to the more specific field of competition regulation, which had been distinctively handed over to the EC Commission as a domain of direct enforcement, there emerged a corporate assertion of entitlement. This in effect provided the opportunity to the Court of Justice, and also in due course the CFI/General Court, to set up a supranational legal laboratory to explore the extent of basic rights entitlement for companies and powerful economic actors. As the EC Commission’s regulation and control of business cartels became more vigorous, resorting to increasingly intrusive investigations and escalating sanctions from the 1980s onwards,6 the often large and well-resourced companies subject to this regime responded with energetic appeal arguments, invoking a range of basic defence and procedural rights, transforming this kind of issue into a major aspect of the EC/EU courts’ jurisdiction.7 In this way, the EU Courts became expert in handling a large number of cases in which reliance on basic economic and procedural 102 | rights was addressed in detail, but mainly in the context of corporate rather than human individual claims. Put another way, the emergent body of EU competition law dealing with cartels comprised a significant element of basic rights law, the provenance of which was distinctively supranational and corporate. But once again, this legal development was being worked out subject to the overriding objectives and needs of Single Market competition policy. With the advent of EU criminal law, it is now possible to identify and predict a third significant line of development, within another context. This context is, first, the AFSJ, where the mission is may be characterised as EU rather than old style EC, and secondly crime control and ‘core’ criminal law. In so far as freedom, security and justice, as major EU objectives, necessarily call upon and address the use of national criminal law, this newer directive role for the EU inevitably brings on board basic rights arguments. But here the agency is on the whole different – the interests at risk, and the consequent entitlement to protection attach to human individuals rather than economic and corporate actors. The claimants in this context are for the most part smaller and more vulnerable and in this sense the arena for debate and legal argument is closer to the classic setting for human rights argument, focussing on the well-established civil and political rights. For the EU Courts this is a move into less familiar territory, away from the economic and social centre of gravity of the original Communities and the prevailing Single Market mission which provided the trigger for the first and earlier EU forays into basic rights law. Post-Lisbon, and in the drafting of the TFEU, EU crime policy and criminal law has become mainstreamed, with a more explicit Treaty basis and legitimation, while the role of the EU Charter of Fundamental Rights has also been consolidated.8 More can therefore be expected, at both legislative and judicial levels, of the kind of basic rights argument that has hitherto been more in the domain of national constitutional law and the ECHR. The EU is moving into the domain of criminal law, but also into that of classic human rights law. 3. EU criminal law as a management system Any understanding of how the EU system of basic rights protection is being worked or will in the future be worked out requires some appreciation of the nature of the corpus of policy and rules now being spoken of as ‘EU criminal law’.9 What, then, is EU criminal law all about ? A first point to make in answer to that question is that it does not look like the familiar criminal law at the national level and its function is in most respects rather different. The clue to understanding this largely different role resides in its supranational location and in the distinctive legal methodology of the Communities and the Union. If note is taken of the fact that, to date, most EU criminal law has appeared in its basic form in framework decisions and directives, then it will become evident that the EU criminal law regime is not so much criminal law de novo, but rather the co-ordination and steering of national criminal law and procedure. Despite the more colloquial reference to ‘Eurocrimes’, the EU has not invented new rules of criminal law or different kinds of offending conduct, or devised new types of criminal proceedings or sanctions. In this sense, criminal law and procedure in the broad European context remains predominantly the domain (although no longer the sacrosanct and untouchable domain) of the Member States, and based on the model of the national approach. In essence, the EU has commandeered the use of national criminal law and process for certain European-wide purposes, requiring or restricting its use in certain ways. Even the more specifically EU mission of protecting the financial interests of the EU, incorporating the possibility of direct EU investigation10, ultimately relies on the application of national rules of criminal law, established national categories of offending, and processes of trial and sanctioning at the Member State level. After all, there is as yet no EU criminal court,nor anyEU penal institutions. It is also timely at this point to recall that, in the distinctive field of EU competition law, despite the Commission‘s original powers of investigation, prosecution and sanctioning, the latter are formally cast as an ‘administrative’ (and not criminal) procedure, dealing with ‘infringe- | 103 ments’ (and not offences), and imposing ‘sanctions’ (and not sentences). The choice of language is not merely semantic, but is legally significant and points to an important distribution of competence within the EU legal order. Sure enough, the EU legislator or Court may require a certain outcome as a matter of Member State criminal law. But that outcome is formally dependant on trial and conviction and sanctioning at the national level. This co-ordinating or ‘management’ role on the part of the EU becomes clear on a reading of one the key provisions of the TFEU in this area – Article 83, which now lays down some of the main areas of EU competence in criminal law matters. This Article appears within Chapter 4 of the Treaty the heading of which is, significantly, ‘judicial cooperation in criminal matters’ (note – cooperation), and sets down two main areas of competence. First, Article 83(1) refers to the legislative competence to establish minimum rulesregarding the definition of criminal offences and sanctions in ‘areas of particularly serious crime with a cross-border dimension’ (for instance, terrorism, various forms of trafficking, financial crime, corruption and organised crime). This list comprises the so-called ‘Eurocrimes’, although remembering that the crimes as such are defined and dealt with under national Member State criminal law. Secondly, Article 83(2) refers to a similar legislative competence to establish minimum rules on the definition of offences and sanctions when approximation of national criminal law is ‘essential to ensure the effective implementation of a Union policy’. In both situations this is a kind of instrumental competence, intended to enhance a European control of transnational criminality or implementation of an EU policy. The role of the EU legislative bodies, and of the EU Courts, is to direct, steer and co-ordinate what is happening at the Member State level, and to exploit the existing infrastructure and rules of national criminal law and procedure. 4. EU criminal law and the protection of basic rights If the emergent phenomenon of EU criminal law and criminal policy is understood in this managerial sense, it is then necessary to say something more about the methods adopted in this field and how these may raise questions regarding the protection of basic rights. Returning to the important example of Article 83 of the TFEU, it is clear that what is being laid down there as a major task for the EU and for Member States is the establishment of minimum rules – or more precisely, a common approach, based on an agreed minimum standard and embodying a shared philosophy of crime control and criminal justice. Agreement on agreed minimum rules and standards is commonly expressed in the context of European integration as a matter of harmonisation or ‘approximation’, a legal process of removing to a certain extent existing national differences so as to achieve a common or uniform position. As such, this is a familiar exercise in comparative law and transnational legal policy, embodied for instance in projects aimed at ‘uniform codes’, multinational treaty-based ‘codifications’ of international rules, and significantly in the on-going integration process of the EC/EU. The interest in and perceived advantage of such harmonisation may be quickly achieved and agreed, but more difficulty may lie in the detail of such aproject and finding the political will to take it forward. In short, harmonisation may prove more easily spoken about than done, quickly referred to in the good intentions and rhetoric of politicians and policy makers, but agonised over and argued about in the subsequent work of negotiating lawyers and of legislators with an eye on the votes of interest groups and need to carry a perhaps more sceptical opinion. In this way the actual alignment and standardisation of legal provisions across a number of jurisdictions may prove in practice to be a slow-moving and problematical process. And this is the case a fortiori in the present context of (a) a large number of EU member States encompassing a diversity of legal culture and experience (what may be termed the phenomenon of the ‘legal and penal rainbow’), and (b) a field such as criminal law, where there may be deeply embedded political, constitutional and cultural differences across the Member State spectrum. 104 | In the case of themoves made by the EU, acting under the AFSJ, towards minimum rules in relation to criminal law and criminal justice, it became evident that, whatever might be agreed broadly at an EU Council level, securing any necessary legislative change at the Member State level might prove to be very slow and difficult, if not contentious in some circumstances.11 And already, one of the obstacles appearing in the way of this kind of enterprise was part of the ‘justice’ aspect of the AFSJ, in the form of basic rights argument. The formulation and drafting of a minimum rule or standard might run counter to the assertion of basic rights and constitutional principles guaranteed and laid down in national law, or even in the ECHR, other Council of Europe instruments, or in international treaties (examples). Predictably enough, perhaps, a natural tension between the harmonisation project (for the most part aimed at securing ‘freedom’ and ’security’) and the assertion of basic rights for individuals came to the fore in the new territory of EU criminal law and criminal justice approximation. From this situation emerged the alternative approach and method, soon popular as a more effective supranational strategy, embodied in the concept of mutual recognition: rather than struggle for the same position everywhere, it might be easier instead to agree to recognise and accept some differences, in order to use quickly and easily a number of transnational procedures of co-operation, such as extradition, transfer of evidence and enforcement of sentences. In a short space of time, mutual recognition emerged as a preferred approach, part of its appeal lying in the sense that it could avoid some of the timeconsuming and protracted argument in legislative debates and the process of implementation of EU directing norms.12 However, mutual recognition is necessarily based on a willingness on the part of Member State systems to trust each other’s approach even in the event of differences, but there was not a sufficient will to make this acceptance of any differences automatic, and some space was left for reservation, when a State had serious doubts about the approach being taken elsewhere. In effect, this compromise has allowed some of the debate on existing diversity in criminal law and criminal justice to be transferred from the arena of harmonisation to that of mutual recognition, and has led to an impressive case law at both the national and EU levels which has tested such issues. In the case of criminal law, a particular problem resides in the sensitivity and special national constitutional values inherent in criminal and penal law, so that in a transnational and European context the different standards of other States may be less readily accepted and trusted. The fact, for instance, that the same conduct is criminalised in one State but not another may reflect strongly embedded but differing national philosophies, traditions and values, which may not be readily compromised (and indeed may already have appeared as obstacles to harmonisation). Politically, therefore, it was quickly apparent that there should be some tolerance of host or receiving State reluctance to accept unreservedly the standards elsewhere, and so some qualification of the automaticity of mutual recognition. Legally, this could be done through a number of devices, notably the agreement at EU level on agreed ‘minimum’ standards (as a limited harmonisation measure, an approach now embodied in Article 82 TFEU, as the main provision on criminal law mutual recognition); or through derogation from the obligation to recognise, based on either a test of functional equivalence or comparability, or the recognition in turn of ‘mandatory requirements’ as a trump card to be played by the host State. Thus, realistically, mutual recognition in this field has not proven automatic, but subject to a balancing of diverse criminal law and penal interests, mediated through a legislative working out of minimum standards or a judicial assessment of claims to derogate. As such it has emerged as a revealing field of legal discourse on crime policy and constitutional standards across the European ‘criminal or penal rainbow’. There is a further connected argument relating to the role of mutual recognition in this field as compared to the Single Market context as the original home of the mutual recognition strategy. In the latter area, the role of mutual recognition is rights-enhancing for individuals, in promoting freedom of movement and economic opportunity. In the context of the AFSJ and criminal law, | 105 however, it operates differently, promoting the movement (or more exactly, extra-territorial effect) of official decisions against individuals,13 and thus rights-restricting in outcome. This fact has contributed to the concern regarding an enforcement priority within the EU criminal law field, leading to argument in favour of the more explicit integration of human rights protection (for example, the promotion of defence rights), and the coupling of legislative provision of minimum standards with mutual recognition obligations. 5. Criminal law mutual recognition as a testing ground for basic rights argument Mutual recognition, then, has been used significantly during the first decade of the century as a basis for EU criminal law cooperation in some crucial areas of enforcement: arrest and transfer for trial or custodial sentences,14 the enforcement of financial penalties,15 and two measures in particular, the Framework Decisions on the European Arrest Warrant (EAW)16 and the European Evidence Warrant (EEW),17 have led to both extensive comment and some important litigation, at both national and European levels. Such mutual legal assistance legislation has in a relatively short space of time codified a set of obligations to cooperate in criminal law enforcement across MemberState boundaries and to do so promptly, without formality, and without too many questions. The thrust of this policy was most evident in the terms of the EAW Framework Decision, itself coming into being speedily, almost as a species of emergency legislation later in 2001. The obligation on the part of the requested State to surrender individuals was not automatic but was strongly presumptive, especially regarding the removal of any double criminality requirement in relation to more serious offences,18 the scope of the mandatory and optional grounds for refusal, and the Court of Justice’s subsequent confirmation that the measure complied with general principles of legality.19 Unsurprisingly, resort to the EAW procedure became a fertile site of legal appeal and challenge, and questions regarding the compatibility of Member State implementing legislation with national constitutions in a number of countries.20 One notable outcome of such resistance and concern has been (somewhat ironically) to fall back on harmonisation, in the form of an EU framing of minimum standards of legal protection for suspects and defendants, as laid down in the 2009 Roadmap21 and a later programme of Directives, and in the 2009 Framework Decision on double jeopardy (or ne bis in idem).22 The level of concern regarding the enforcement imperative contained in the EAW provisions has also been reflected in the greater element of compromise evident in the later Framework Decision on the EEW, which was subject to a much longer process of legislative negotiation and not enacted until 2008. This measure is more explicit about human rights and other constitutional safeguards – there are clear references to necessity and proportionality in the collection of evidence, and a greater concession to the principle of double criminality.23 The longer term prospects for the EEW have been rendered more uncertain by the appearance of a new proposal, to be embodied in a directive, for a European Investigation Order, which, among other things, would enable investigations to be undertaken in other States, but this proposal has already been subject to critical scrutiny.24 To be sure, the technique of mutual recognition has released a vigorous and full rehearsal and debate regarding the need to balance potentially competing enforcement, defence and other interests in the criminal justice process across the European spectrum. 6. The assertion of basic rights in the context of a European criminal law and penal ‘rainbow’ As noted above, the growing number of EU framework decisions and more recently (post-Lisbon) directives in relation to criminal law matters has spawned in turn a growing amount of litigation and body of case law at both national and European levels, some of which has involved a resort to the 106 | protection of basic rights as a response to the application or implementation of EU criminal law and criminal justice norms and requirements. Some notable examples have involved the balancing of defendants’ and victims’ rights, the extradition of nationals, the use of concurrent sentences , and application of the nebis in idem (double jeopardy) principle. The Pupinoruling of the European Court of Justice (ECJ) in 200525 was notable as both an opportunity for the ECJ to consider the relationship between victim and defendant interests and rights, and as an application of the EU doctrine of indirect effect to a situation involving the application of provisions of a Third Pillar framework decision. At issue here was the protection of victims as laid down in the 2001 Framework Decision on the standing of victims of crime in criminal proceedings. It was argued that children alleged to have suffered abuse from teachers should be allowed to testify in criminal cases under a special procedure, as laid down in the Framework Decision. In relation to proceedings before the Italian courts, it was argued that, under the Italian Code of Criminal Procedure, this would only be possible in the case of alleged sexual offences, or offences having a sexual background. The ECJ was willing to give effect to the broader provision of the Framework Decision, by invoking the doctrine of indirect effect, hitherto a doctrine of enforcement used only under the First Pillar. In a preliminary ruling, the Court argued that the provision in the Framework Decision was binding on Italy, subject only to any assertion of defence rights compatible with Article 6 of the ECHR, by virtue of the doctrine of indirect effect. In relation to extradition, it has already been mentioned how the EAW Framework Decision sought to expedite the surrender of alleged offenders from one Member State to another. A number of provisions in the Framework Decision provoked concern and legal challenge in national courts regarding its strong presumption in favour of a speedy surrender and the impact of that approach on the protection of individual rights. For instance, the fact that incompatibility with human rights protection was not listed as a ground for refusal to surrender led to critical comment in some national Parliaments, and by defence lawyers and the media.26 In 2005, the German Federal Constitutional Court in the case of Darkazanli ruled that the German legislation implementing the Framework Decision was contrary to Article 16(2) of the Constitution since it did not transpose the territoriality ground as a reason for refusing to extradite.27 The Constitutional Court emphasised the importance of the bond between citizens and their State and their consequent expectation of protection within their State of belonging. In relation to Article 16(2), the Court pointed to the significance of territorial location for German citizens, since trust in the German legal system had a high value which should be taken into account in deciding on any ‘exceptional’ extradition of German nationals to another Member State. In the same year, the Polish Constitutional Tribunal in the case of Maria D held that the corresponding Polish legislation was contrary to Article 55(1) of the Polish Constitution.28 The Court considered that this latter provision embodied an absolute right for Polish citizens to be tried for criminal offences before a Polish court, and this right would be violated by the surrender to another Member State under the provisions of the EAW. In this way, the implementing law (the Polish Code of Criminal Procedure) was incompatible with the Constitution. The implementing legislation was not, however, declared immediately void, but its validity was extended for 18 months pending a solution from the Polish legislature. The use of the EAW gave rise to a different issue in relation to Polish law in the case of Jakub T in 2008, in relation to the transfer of sentenced persons and the possibility of concurrent prison terms.29 The individual in this situation, a Polish national, had been convicted of offences of rape in the UK and sentenced there to two concurrent terms of life imprisonment, but then subsequently transferred back to Poland under the mutual recognition of judgment provisions of the EAW, for the sentence to be carried out there. On his return to Poland, the convicted defendant argued that a sentence to concurrent terms was contrary to the Polish Penal Code. Even though this argument was not originally accepted by the Polish Supreme Court, legislation was subsequently enacted to enable the sentence to be modified in accordance the principles in force in the receiving State. This example demonstrates a significant divergence of penal policy and practice, and indeed sentencing philosophy, within the | 107 spectrum of the European penal rainbow, relating to differing sense of proportionality and basic penal rights arising therefrom. A final example of a significant issue at the interface of EU criminal law and basic rights argument relates to the application of the nebis in idem principle – the rule of fair treatment to avoid ‘double jeopardy’, guarding against the repetition of legal process in relation to the same offending conduct. In a transnational context, in which an increasing amount of criminal law business between and across jurisdictions may now be anticipated, this is likely to become a more contested issue, as the risk of repetitive procedure and accumulation of sanctions becomes all the greater. A first example relates to a case concerning cigarette smuggling across Europe (Greece-Italy-Germany-UK), as dealt with by the ECJ in Kretzinger in 2007.30The detection of the offences gave rise to criminal proceedings in both Italy and Germany, the former resulting in convictions (in two Italian courts in respect of two separate consignments) and sentences in absentia (suspended and actual prison terms), while in Germany the outcome was conviction and prison sentences imposed in relation to the offence as committed in Greece. The legal action taken in Germany was challenged as being contrary to the nebis in idem principle, as laid down in Article 54 of the Schengen Convention, and the view of the Court of Justice was that it was indeed a violation of the principle, since transportation of the smuggled goods across successive borders was a single continuing act, and enforcement had already taken place in Italy, albeit through a suspended term of imprisonment imposed in absentia.The significance of the legal argument in this case lay not only in the interpretation of ‘same act’ for purposes of determining double jeopardy , but also in the less explicit consideration of the idea of trust between legal systems, which of course is a necessary underpinning of mutual recognition. In Kretzingerthe matter reached the ECJ through a reference for a preliminary ruling from the Bundesgerichthof in Germany, and the latter seemed implicitly to be asking whether ne bis in idem would apply in a situation where another Member State was deemed not to be taking its criminal law enforcement obligations seriously. Or, as Mitsilegas31 has expressed the point: would final decisions not properly enforced in one Member State bind the hands of activist courts in another State through the application of ne bis in idem ? Here, the matter is not so much an assertion of basic rights under national law in relation to a transnational enforcement process as a testing of fair treatment – or more specifically the right not to be punished twice in relation to the same act – as a matter of EU law. While the Kretzinger ruling involved reference to ne bis in idem as laid down in the Schengen Implementing Convention, it is also possible to invoke other European norms, in particular under the Human Rights Convention and the EU Charter of Fundamental Rights (Article 50 of the latter neatly converts the double jeopardy principle into the basic right not be tried or punished twice in criminal proceedings for the same criminal offence). A more recent case which is revealing in terms of the scope for basic rights argument in this context is that of Bondain 2012.32 This involved another reference to the ECJ, here from the Polish Supreme Court, concerning the accumulation of proceedings and penalties in a case of subsidy fraud. The defendant had been convicted and sentenced to a suspended term of imprisonment and a fine in Polish criminal proceedings, but also subject to an administrative penalty (exclusion from receiving agricultural aid for a period of three years) as required by an EC regulation of 2004. The Supreme Court’s question concerned the possible categorisation of the administrative penalty, actually implemented by a Polish authority, as a criminal law sanction and a consequent violation of the nebis in idem principle as laid down in the Polish Code of Criminal Procedure. But in the view of the ECJ the exclusion measure was not a criminal penalty and the Court argued that that finding was consistent with the criteria of criminal proceeding and sanction as worked out by the European Court of Human Rights in relation to Article 6 of the ECHR. Ne bis in idem is clearly a relevant and pervasive principle in the context of EU criminal law in its role of coordinating criminal law enforcement across Member States, and translates easily 108 | into an assertion of basic rights, as in the case of Article 50 of the EU Charter. There is therefore considerable scope for future legal argument and litigation on this point, but across a number of jurisdictions (national and EU) and drawing upon a number of legal sources – for instance, Member State legislation and constitutions, the EU Charter of Fundamental Rights, the Human Rights Convention, and the Schengen Implementing Convention, with the ECJ acting increasingly as the main clearing house for the resolution of these arguments and questions, as in the examples of both KretzingerandBonda, discussed above. 7. Institutional trends Finally, by way of summarising and bringing together these observations, and taking a more prospective view, something may be said shortly about the evolving institutional roles in the domain of EU criminal law. Since the Treaty of Lisbon, and the ‘mainstreaming’ of criminal law matters under the TFEU, the institutional dynamic has changed, as the subject has moved from the largely intergovernmental Third Pillar to the supranational approach under the TFEU. This is reflected for instance in the change in the legislative method and form, with the former Third Pillar framework decisions being replaced by directives. At the same time the possibility for a greater exercise of initiative and opportunity for a proactive approach should be noted in relation to both the Commission and the EU judiciary. The Commission’s interest and initiative in criminal law questions is evident for instance in its Communication, issued in September 2011, ‘Towards an EU criminal policy’.33 Although a somewhat meandering discussion, this document has a number of points of interest and at least provides some indication of how the Commission, as a policy-making institution contributing to the EU legislative process, is starting to formulate ideas and views on the use of criminal law by Member States. For example, the Communication stresses the incursive nature of criminal law and, referring to the ultima ratio principle, urges care in the resort to criminalisation and the consideration of alternative sanctions and criminalisation impact assessments. Similarly, the Commission has contributed to the energising of the legislative process in the criminal law field, by breathing some life into the proposed programme of ‘defence rights’ directives, which may be seen as something of a counter-balance to the dominant security emphasis in earlier EU legislation in the criminal law field.34Justice Commissioner Viviane Reding referred to the tranche of defence rights directives as ‘an important first step to correct the existing imbalance between the rights of the prosecution and the better and stronger rights of the defence in Europe’.35 The developing and potential role of the ECJ and other courts, including those at the Member State level, is perhaps even more significant. Within a fairly short space of time, case law has become a site of comparative criminal law laboratory work, as the opportunity grows to explore and resolve the problems of diversity across the Union, described above as the ‘European criminal law and penal rainbow’. It has been explained how the strategy of mutual recognition has supplied a fertile ground for both legislative and more especially judicial attempts at reconciling differing policies and philosophies among the Member States. Courts at both national and European levels are being presented with arguments and puzzles relating to criminal law cooperation across the EU, so enabling the resolution of legal argument and policy debate to be worked through by the judicial method. As a route of resolution this is likely to prove both challenging and dynamic, and may both allow and require matters to move forward more swiftly and perhaps differently than would be the case at just the legislative level. Judicial resolution is by its nature reactive to pressing issues and demands, and real rather than hypothetical cases. It is also more distanced from political considerations, and the ECJ has already shown in its earlier history that much might be achieved by an independently minded and proactive European judiciary. Just as the ECJ performed a dynamic role in developing the concept and practice of a sui generis legal order within | 109 the framework of the Single Market, something similar may be happening in the field of the AFSJ and EU criminal law. In the same way that the practical demands of economic integration were translated into a logical transfer of sovereign power, so too the imperatives of criminal law cooperation may now translate into a similar logic of legal integration, which for political reasons may be difficult to spell out in Treaty terms but may be articulated through judicial intervention. It is possible then to anticipate the opportunity through judicial process for both more practical solutions and for the development of doctrine and principle. Two points in particular may be noted in connection with possible judicial developments in this field. The first concerns a growing emphasis on the protection of basic rights, as noted in the examples presented above, and an increased willingness and opportunity to draw upon instruments such as the EU Charter of Fundamental Rights for this purpose. The second point relates to another opportunity – and perhaps even growing need – for a judicial elaboration at the European level of basic principles of criminal law and criminal justice, a kind of European ‘general part’ of criminal law. The ECJ and other courts may find themselves grappling with issues concerning conditions of criminal liability, agency in criminal law (especially in relation to corporate actors), or the forms of participation in criminal activity. Underlying much of this discussion, and drawing together criminal law and basic rights protection, there is the fundamental constitutional issue of legitimation: what justifies the claim of the EU over criminal law matters ? Up to a point the Commission’s 2011 Communication probes this question, hinting at the role of EU criminal law in safeguarding the interests of Europeancitizens. It should be remembered that EU criminal law falls within the umbrella of the AFSJ, and Article 3(2) of the TFEU proclaims that the Union shall offer its citizens an area of freedom, security and justice, with the implication that criminal law is an important component of that social and political contract. In that sense, criminal law and rights protection are interlinked as part of the mission of freedom, security and justice, and working out their interrelation will be an increasingly important legislative and judicial role in the EU context in the near future. References S. Alegre and M. Leaf, ‘Mutual Recognition in European Judicial Co-operation: A Step Too Far Too Soon ? Case Study – The European Arrest Warrant’, 10(2004) European Law Journal200. Damien Chalmers et al, European Union Law: Text and Materials (Cambridge University Press, 2006). Paul Craig and Gráinne de Būrca, EU Law: Text, Cases and Materials (Oxford University Press,5th ed.,2011). Sionaidh Douglas-Scott, Constitutional Law of the European Union (Longman, 2002). European Commission, Communication of 2000,‘Mutual Recognition of Final Decisions in Criminal Matters’, COM (2000) 495 final. European Commission, Communication of 2011, ‘Towards and EU Criminal Policy: Ensuring the effective implementation of EU policies through criminal law’, COM (2011) 573 final. Christopher Harding, Uta Kohl and Naomi Salmon, Human Rights in the Market Place: The Exploitation of Rights Protection by Economic Actors (Ashgate, 2008) Christopher Harding and Julian Joshua, Regulating Cartels in Europe (Oxford University Press, 2nd ed., 2010). Christopher Harding and Joanna Beata Banach-Gutierrez, ‘The Emergent EU Criminal Policy: Identifying the Species’, 37 (2012) European Law Review 758. Steve Peers, EU Justice and Home Affairs Law (3rded, Oxford University Press, 2011), at p 715. ValsamisMitsilegas, The Constitutional Implications of Mutual Recognition in Criminal Matters in the 110 | European Union’, 43 (2006) Common Market Law Review 1277. ValsamisMitsilegas. EU Criminal Law (Hart Publishing, 2009). ValsamisMitsilegas, ‘The Limits of Mutual Trust in Europe’s Area of Freedom, Security and Justice: From Automatic Inter-State Cooperation to the Slow Emergence of the Individual’, (2012) Yearbook of European Law 319. (Endnotes) 1 Especially regarding the ‘fair trial’ rights laid down under Article 6 of the Convention, and also the right to respect for family and private life (Article 8), and the right to an effective remedy (Article 23). 2 For an overview of these developments, see Sionaidh Douglas-Scott, Constitutional Law of the European Union (Longman, 2002), at pp 255-9 and 266-74; Paul Craig and Gráinne de Būrca, EU Law: Text, Cases and Materials(Oxford University Press,5th ed.,2011) at p 362 et seq. 3 See Christopher Harding, Uta Kohl and Naomi Salmon, Human Rights in the Market Place: The Exploitation of Rights Protection by Economic Actors (Ashgate, 2008), at pp 90-3. 4 For a convenient summary, see Damien Chalmers et al, European Union Law: Text and Materials (Cambridge University Press, 2006), at p 237 et seq. It is possible now to list a large number of substantive trading, and other economic, social and civil rights which have been affirmed for a range of actors in the Single Market context, in the field of free movement of goods, services and persons, employment law, consumer and environmental protection, data protection, and cultural activity, to mention just some areas. 5 See generally Harding et al, Human Right in the Market Place, note 3 above. 6 See Christopher Harding and Julian Joshua, Regulating Cartels in Europe (Oxford University Press, 2nd ed., 2010), Ch 5. 7 See Harding and Joshua, Regulating Cartels in Europe, note 6 above, Ch 7. 8 The provisions of the Charter are now legally binding on the EU and the Member States, subject to the opt-out provisions for the UK, Poland and Czech Republic as laid down in Protocol No 30 to the Lisbon Treaty, 9 For a convenient overall account of what now falls under the heading of EU criminal law, see ValsamisMitsilegas. EU Criminal Law (Hart Publishing, 2009). 10 See generally on this area:Mitsilegas, note 9 above, at p 210 et seq. 11 See the Commission’s Communication of 2000, ‘Mutual Recognition of Final Decisions in Criminal Matters’, COM (2000) 495 final. 12 In the Third Pillar context of criminal law cooperation, mutual recognition was seized upon in the late 1990s (largely on the initiative of the UK Presidency of the EU in l998) when EU harmonisation of standards was proving slow and difficult to achieve. The strategy was rapidly taken on board – endorsed by the European Council in its Tampere Conclusions as the ‘cornerstone’ of judicial cooperation in criminal matters, explored as such in a Commission Communication of 2000 (note 11 above), and adopted as the preferred method in relation to a proposed programme of 24 measures in the field in 2001. 13 What Mitsilegas, for instance, has termed the ‘enforced movement’ (as compared to ‘free movement’) of individuals: ValsamisMitsilegas, ‘The Limits of Mutual Trust in Europe’s Area of Freedom, Security and Justice: From Automatic Inter-State Cooperation to the Slow Emergence of the Individual’, (2012) Yearbook of European Law 319, at p 319. 14 Council Framework Decision on the application of the principle of mutual recognition to judgements in criminal matters imposing custodial sentences or a measure involving the deprivation | 111 15 16 17 18 19 20 21 22 23 24 25 26 27 28 29 30 31 32 33 34 35 of liberty for the purposes of their enforcement in the EU, 27 November 2008, 2008/909/JHA, OJ 2008 L327 . Council Framework Decision on the application of mutual recognition to financial penalties, 22 March 2005, 2005/214/JHA, OJ 2005 L76. Council Framework Decision on the European Arrest Warrant and the surrender procedures between Member States, 13 June 2002, 2002/584/JHA, OJ 2002 L190. Council Framework Decision on the European Evidence Warrant, 18 December 2008, 2008/978/ JHA, OJ 2008, L250/72. See for instance the discussion in S Alegre and M Leaf, ‘Mutual Recognition in European Judicial Co-operation: A Step Too Far Too Soon ?Case Study – The European Arrest Warrant’, 10 (2004) European Law Journal 200. Case C-303/05, Advocatenvoor de Wereld VZW v Leden van de Ministerraad(2007) ECR 1-3633. Germany, Cyprus, Poland, Czech Republic – for instance, in relation to the extradition of nationals. TheStockholm Programme’s Roadmap with a view to fostering protection of accused and suspected persons in criminal proceedings (European Council, 1 July 2009, 11/45709). Framework Decision 2009/948, 30 November 2009, on prevention and settlement of conflicts of exercise of criminal jurisdiction in criminal proceedings (OJ 2009, L328/42). See Article 7(a) of the EEW Framework Decision, on necessity and proportionality, and Article 14 on double criminality. See for instance: Steve Peers, EU Justice and Home Affairs Law (3rded, Oxford University Press, 2011), at p 715. Case C-105/03, Maria Pupino, Criminal Proceedings (2005) ECR 1-5285. See ValsamisMitsilegas, ‘The Constitutional Implications of Mutual Recognition in Criminal Matters in the European Union’, 43 (2006) Common Market Law Review 1277. Judgment of 18 July 2005, 2 BvR 2236/04. For an English language version, see (2006) 1 CMLR 16. Judgment of 27 April 2005, P 1/05; Re Enforcement of a European Arrest Warrant (2006) 1 CMLR 36. The case of Jakub T, in 2008. The original sentence was passed in Exeter Crown Court. See: UchwałaSąduNajwyższego z dnia 3 marca2009r., I KZP 30/08 OSNKW 2009 (Resolution of the Polish Supreme Court of 3 March 2009, ref. no. I KZP 30708 OSNKW 2009); Article 607s§4 of Polish Code of Criminal Procedure, as amended by Act of 20 January 2011 in connection with Article 607 t§2 of Polish Code of Criminal Procedure. This approach was officially confirmed by the Polish Supreme Court in 2011 - PostanowienieSąduNajwyższego z dnia 6 czerwca 2011, sygn. akt V KO 18/11 (Decision of the Polish Supreme Court, 6 June 2011, ref. no. V KO 18/11]. Case C-288/05, JurgenKretzinger(2007) ECR 1-6641. ValsamisMitsilegas, EU Criminal Law,note 9 above, at pp 150-1. Case C-489/10, Criminal Proceedings against Lukasz MarcinBonda, judgment of 5 December 2012, Press Release 71/12. European Commission, ‘Towards and EU Criminal Policy: Ensuring the effective implementation of EU policies through criminal law’, COM (2011) 573 final.See the discussion by Christopher Harding and Joanna Beata Banach-Gutierrez, ‘The Emergent EU Criminal Policy: Identifying the Species’, 37 (2012) European Law Review 758. The directives are based upon the Stockholm Programme’s Roadmap with a view to fostering protection of accused and suspected persons in criminal proceedings, note 22 above. Press Release IP/10/1305 (Brussels, 8 October 2010). 112 | Magdalena Sitek University of Warmia and Mazury in Olsztyn [email protected] New challenges in the European Union sustainable tourism policy Abstract Tourism is the fastest developing sector of economy. More and more people are enjoying this sector and at the same time they find employment there. Therefore, the important matter becomes protection of human rights of both these social groups. However, such the protection is becoming more and more difficult because of the restrictions resulting from environmental protection and maximizing the profits. This can lead to numerous abuses towards the human being. As a result the European Union tends to make the policy of sustainable development of tourism sector. Such the policy allows protecting both, the environment and the human rights. Keywords: natural environment, protection of human rights, maximizing the profits, sustainable development. 1. Introductory issues On 20th June 2010 the European Commission released the Report addressed to the European Parliament, Council, the European Economic-Social Committee and the Committee of Regions. The Report is entitled Europe- the most popular direction of tourism all over the world – new political frames for the European tourism sector (COM(2010) 352 final version). This is the document belonging to soft law, thus to the legal regulations of iuscogens. On the one hand, the document constitutes the summing up of the Union tourism policy. Tourism sector of economic activities has the potency to stimulate the economic growth and the employment increase in the EU, and at the same time it contributes to the economic and social development and integration, particularly on the rural regions, in the mountains, by the seaside, on islands and in the outskirts and the remote converged areas. As a sector with 1.8 mln companies, most of which are small and medium ones, employing about 5,2% of the whole labour force (i.e. about 9.7 mln places of work, where young people are mostly employed) the European tourism brunch creates over 5% GDP (Gross Domestic Product) of the European Union.On the other hand, the document includes the instructions for the future policy of this important European economic sector (Item2.1. Report). The Commission stressed particular accent on the sustainable tourism development. This notion, although it does not have the legal definition, it still repeatedly appears in numerous European Union documents. The first time it appeared in the community programme of activity for the development of tourism for the years 1991–1992–Action Plan to Assist Tourism(Sitek, 2007, p. 36). The notion sustainable tourism derives from the notion sustainable development, understood as protection of bioethics resources. Sander (Sander, 2008, s. 161) gives such the definition of sustainable development, however, the other definitions are also given in literature, they are more complex, but they do not present so relevantly the essence of notion(Sitek, 1999, s. 82-83). Klenowska says even about the philosophy of sustainable development whichreflexes the necessity to integrate the economic and social development with the requirements of protection of the environment which is the living space for present and future generations(Klonowska, 2009, s. 114 n). Tourism makes use of the resources of natural environment more than the other sectors of economy. It often negatively influences on its condition and development. Hence, there is postu- | 113 lated to make the tourism development coherent with the policy of protection the environment, worked out by the Union law. Otherwise, the excessive exploitation of the environment can lead to some dysfunctions between the natural environment and tourism. The sustainable tourism leads to equalize the interests of tourism sector and the natural environment. Whereas, the management of natural resources must lead to realize the economic, social and esthetic needs at the same time. Moreover, there is necessary to maintain the cultural integrity of the essential ecological processes, the biological differentiation and the systems of life protection(Sitek, 1999, s. 36). The subject of this paper is to reveal the new elements of the European policy in tourism sector in the light of the report of the European Commission, linked with the analysis of the national legal regulations towards seeking the similar solutions. Hence, the basic method of research is the method of exegesis of the legal texts. Whereas, the following method is the descriptive method, on the basis of which there will be presented the new elements of European tourism policy(Breński, W. Oleksiuk, A. 2008). 2. The need of changes in tourism sector The need of changes of activities in the touristic service sector results from the series of exogenic factors, such as: • Economic crisis; • Ecological disasters; • Demographic crisis; • Increase of the world competition; Since 2008 the economic and financial crisis has been paralyzing and limiting the development of many sectors of economy and tourism as well. The demand for touristic services has significantly decreased. As a consequence, the citizens of the European Union, and Polish people as well, have been adopting the touristic needs to the existing situation, particularly the financial resources they have at their disposal. Thus, the demand for short and not far tours has increased, together with limiting the expenditures when being somewhere. This new tendency is noticeable in the decrease of turnover in the European touristic branch at about 5.6% in 2009. Whereas in some of the European regions, particularly in the east, in Poland as well, the decrease was even 8%. The increase of touristic sector turnover was predicted in 2010 and 2011 (BarometrUNWTO,vol. 8, January 2010). The nextfactors which influence on the European tourism development are the ecological disasters. In April and May 2010 the European touristic sector was blocked by the eruption of Eyjafjoll volcano situated on Iceland, exactly where the most air channels run. That eruption stopped the flights of planes and significantly limited the touristic movement in Europe; there were 2 million tourists less than usually from all over the world. The operators of touristic movement lost almost billion euros. The account includes the losses of hotels, transport and tourist agencies. That disaster and its influence on the tourist industry was the subject of the videoconference organized by the European Commission for the ministers and secretaries of the tourist department on 28th April 2010. The other ecological disasters also have to be mentioned, they had the influence on the tourist sector services, as for example the natural environment degradation in many European areas, particularly in the Mediterranean Sea basin. This degradation is the effect of too expansive tourist policy. What is more, the climatic changes can cause the complete transformation of travelling models and influence on the choice of tourist directions in Europe.The example is the diminishing snow layer in the mountain areas in Europe, particularly in the Alps, which can result in limiting 114 | demand for winter tourism. At the same time raising the sea levels can transform tourism on the coastal areas. The following factor that has the meaningful influence on the touristic branch is the increasing world competition. The real threats are the USA, Canada and Australia, the countries with highly developed tourist infrastructure. Nowadays the tourist movement is directed towards the Asian countries, particularly to Thailand, China, Japan, South Korea, Singapore and Indonesia. There are the countries which economies are quickly developing and which have perfect natural attractions. Warm seas and wonderful beaches. They are also competitive in prices. Looking at such the offer Europe has to present the high quality sustainable tourist offer, using its comparative predominance, particularly emphasizing its landscapes differentiation and its unusual culture wealth (300 out of 800 of objects on the UNESCO list of World Heritage are situated in the EU). European Union should also tighten the cooperation among these countries, where the citizens are ready to travel to Europe as their standards of life increases. Finally, implementing the differentiated tourist offer has its meaning (Krajewski, 2011, p. 394-398). The demographic changes occurring in our contemporary world, particularly in Europe, have their influence on the tourist sector development. These changes require the fast adaptation to the needs of market and keeping the competitiveness. The demographic changes are visible because of the increase of retired people. By 2020 the group of people over 65 will increase till 20% of the society. This social group, consisting of persons disposing not only the spending capacity, but also free time, has an enormous economic potential, but it requires also some kind of adaptationof the tourist sector because of their specificity. The similar situation is with the increasing number of tourists with limited mobility (according to the last assessment this is the group of 127 mln people), whose individual needs should also be taken into consideration in the tourist service offer(Kurek, 2008, s. 425). There are also the other structural challenges which should be entirely considered in the touristic policy. Therefore, the touristic offer should take into consideration the difficulties linked with the climatic changes, the shortage of water and electric power supplies, the risk of losing the biological differentiation and the threats which brings mass tourism for the cultural heritage. The companies of this sector should limit the consumption of drinking water in case of the threat of draught, diminish the heating gases emission and minimize their ecological trace. Policy, both on the European and domestic level, should consider all the structural changes using the measures to fight with structural unemployment, and looking after the proper investments division in tourism. 3. The purposes of new activity frames for touristic branch in Europe The commentaries of the European Union organs within the touristic services sector are not expressisverbis the result of the treaties regulations. Implicitewhile they result from the 195 article of the European Union Founding Treaty. According to that notation the Union institutions and organs can: • Support the competitiveness of companies acing in this sector and create the conditions benefiting their development, • Support the cooperation among the Member States, particularly through the exchange of good practices, • Work out the integrated approach towards tourism and to assure considering this sector in the other areas of the Union policy. In the title of item 5.2 of the Commission report, together with the previous reports, there are some new Union policy elements for the touristic sector. This title is: Supporting the sustainable development of the responsible high quality tourism. This notation reflexes the rule of subsidiarity | 115 of functioning the Union institutions and organs. Therefore, tourism does not belong to the Union competences. This means that the touristic markets, particularly the companies, the Member States governments and the regional and local authorities, administrate the basic actions towards the development of this sector. They are automatic in their decisions. The Union institutions and organs take the actions only when the ‘main players’ of the touristic market are not ready to solve any of the issues. The activities of the Union institutions and organs can be also undertaken on the basis of the complementarity rule, which fill in the subsidiarity rule. According to this Union regulation they are able not only to support but also to complete the activities of the other subjects and tourist organizations, but they do not replace them (Moreabout the subsidiarityregulationsee: Haładyj, 2002, s. 116-127). Next to the sustainable tourism there are the new elements, the responsible high quality tourism. a. Stimulating the competitiveness of the touristic sector in Europe The way to develop tourism in Europe is to raise its competitiveness. To achieve this purpose there should be implemented some innovative actions in tourism, the general quality of the touristic offer should be improved, the professional competences of the workers in this sector should be better, there should be find the solution of the problem of seasonal demand, the touristic offer should be differentiated, the quality of statistical data and touristic analyses should be completed. The necessity is to implement the wider cooperation among the touristic companies and the craftsmanship and the creative professions, which can contribute to keep the cultural heritage and to the development of the local economies(Chojka, 2008, p. 9-24). The biggest importance to the touristic sector development has the offer differentiation, supporting the tourism within Europe through valorization the subject touristic products on the European scale. Whereas the supranational synergies can help to promote and to present the tourism to make it visible, they can also involve the whole unusually rich heritage (in it the cultural routes), the contemporary artistic creativity, the natural protected monuments, the relaxing and health supporting tourism (the thermal objects), educational tourism, wine-gastronomic tourism, historical, sport, religious tourism, agro tourism, rural tourism and even the tourism focused on the sea and underwater cultural heritage or the industrial heritage or the economic structure of particular regions. Taking into consideration what was said above there are planned such the activities as: • Working out the coherent strategy of promoting the differentiated touristic offer and more intensive valorization of the European common heritage, which will be supported on the sign of European heritage and the other activities, such as European Days of Heritage and the European Union Prize linked with the Cultural Heritage. • Supporting the integration of touristic strategies within the natural heritage, where in this context, there are plans to implement the common signs. To develop the innovations in the touristic sector there are some activities planned: • Starting the “TIK and Tourism” platform, which will have the task to enable the adaptation of touristic sector and the active companies to the developing market of new informative technologies and raising their competitiveness, totally using the synergy between these two sectors(Sirko, Kałamucki, 2006, s. 357-369). • Preparing the report about the electronic trade on the national market, where there is going to be presented the assessment of implemented regulation about the electronic trade, the Commission will analyze the possibilities of the better consideration of the touristic sector within this area. European Union is planning to encourage the employees of touristic sector to take up the 116 | trainings and improve their qualifications. The Commission is going to inform about the possibilities which are offered in different EU programmes, such as Leonardo Programme or the frame programme for competitiveness and innovativeness and its part: “Erasmus for young entrepreneurs” and “E-skills for innovativeness”. The improvement of the European tourism competitiveness can be achieved also through the extension of the touristic season. In this way the existing infrastructure and the workforce will be exploited better after the touristic season. The first step in this direction was implementing the CALYPSO (CALYPSO is the preparatory activity accepted by the European Parliament in 2008 for three years period. Its idea is to support the partnerships: among the public sector, private one and the social economy, inspired by the European Commission. CALYPSO is going to focus on after seasonal flow of the tourists belonging to four target groups (youth, older people, persons with limited mobility and the families with law income), such flow has to involve at least two member states or candidate countries) initiative, thanks to which there was created the list of good practices applying in the Member States. Moreover, there are some activities planned: • Improving the mechanisms of free touristic exchange among the Member States (Existing good practices, particularly from the Iberian Peninsula, prove that the public sector can sponsor for such kind of mechanisms and can achieve the positive profits return from investments (over1.5euro for each spent euro), if we consider the profits return resulting from creating the new work places, additional possibilities for the private sector and income from taxes gaining due to intensification of economic activity. These benefits have also the positive influence on the country of origin), enabling traveling mainly after the touristic season for some target groups, such as young people, older people, people with limited mobility and the families with lower income. • Working out the mechanisms of voluntary Internet information exchange, which improve the coordination of school holidays terms among the Member States, considering the cultural traditions of Member States. b. Responsible tourism The notion responsible tourism is not new and it does not bring any new content to the European Union touristic policy. To maintain the rules of sustainable development of tourism include numerous aspects: responsible applying of natural resources, taking into consideration the influence of touristic activity on our environment (production of waste, decreasing of water reserve, influence on the quality of soil and the biological diversity and others), applying “clean” sources of energy, protection of heritage, maintaining the natural and cultural coherency of touristic regions, the quality and stability of created work places, the economic consequences from the perspective of the local societies, the quality of service. Therefore, the notion “responsible tourism” is linked with two other Union activities i.e. with sensibilisation of the consumers on the ecological problems, also within the touristic sector and the ecological education of the participants of this sector(Merska, Kościelnik, Merski, 2008, s. 127157). The basic assumption of ecological education of the consumer-tourist is to emphasize to consider not only the price while choosing the service, but also the demands of environment protection. The European Union, the Member States and the non-governmental organizations undertake numerous activities within this area. The first document, in which the EU initiates shaping the ecological consciousness of consumers, but not tourists, was the fourth community programme of activities within the natural environment (This programme was implemented 1987-1992. More about the programme see: European Community Deskbook. The Environmental Law Institute, Washington 1992, p.47 and following).As a consequence there are some companies organized to | 117 make the European tourists aware what directions of tourism should be chosen, which means of transport, the connections with local people in the visited regions and the fight with exploitation the children and women. However, first of all there is emphasized shaping the tourists consciousness about the protection of natural environment. The ecological education problem was also undertaken in the fifth programme and in the Green Paper about the Union and Tourism (COM (95)97), Barcelona Convention about protection of the Mediterranean Sea and the Alps Convention (COM (2005)244). The tourists ecological education issueand the conscious choice of touristic offer still return in Community documents and further in the Union ones. Among others, in item 2.2 of the Agenda for sustainable and competitive European tourism there was stated that the demand of both the relaxing-entertainment services market and the services for entrepreneurs should send stronger and more coherent signals. Tourists should be asked to develop and strengthen their critical abilities of choice towards the sustainable development. Developing the consciousness of the need of sustainable development and ethic can help to create responsible individual attitude and practices among the tourists. Better understanding the problems of sustainable development among the consumers can influence on the behaviour of entrepreneurs and make them express their interest in this issue and undertake suitable activities. Therefore, the tourist operators have to use the database connected with the natural environment and the scientific –technological achievements in reconstructing and further development of touristic infrastructure. What is more, there is necessary to improve the qualifications and ecological skills of the staff employed in this sector. People interested in development of the touristic services sector have to improve their ecological knowledge and cooperate with the community, national and local organs(Borsuk, 1997). There are numerous examples of ecologization or sensibility of the touristic firms. The example of ecological net of hotels is Scandic, the net existing in Sweden and North Europe. There are over 150 such the hotels altogether. The management of these hotels organizes their own system of ecological education by means of interactive computer programme(Bohdanowicz, 2005, s. 183-184). Summarizing the notion of responsible tourism, there should be stated that this is the complex of activities on the protection of environment, undertaken by the individual initiative, by all the players of touristic sector, both, the consumers (tourists) and the touristic firms. The institutions and the Union organs, and the Member States governments act especially within the subsidiary rule. c. High quality tourism The content of the notion high quality tourism reflexes not only the activities towards the responsible tourism, but first of all the activities to work out the specific standards distinguishing the European tourism and allowing to maintain its leading position in the world. Precisely the quality of the European tourism has to be its determinant differentiating it from more and more fashionable directions of holiday destinations Asia, North America or Africa. The responsible tourist means not only theoretically educated person, called eco- tourist, but there is also somebody who chooses the touristic offer consciously, taking into consideration the requirements of the natural environment, naturally related with the other factors, particularly the social ones. Creating the European signage “High quality tourism” will be helpful for tourists. The purpose of this signage will be improvement of the safety and consumers trust towards the touristic offer and awarding these entrepreneurs who take wide ranging measures looking after the high quality of services and the clients satisfaction. Therefore, the conscious tourist tries to use the renewable sources of energy, disposes the wastes, uses the biodegradable cosmet- 118 | ics, uses the transport with electrical energy power, diminishing in this way production of CO2. Whereas the products bought in the places of rest destination should have proper ecological signage(Krzystkiewicz, 2010). The activities leading to ecological education and sensibilization towards the ecological problems will include also the touristic firms, and particularly their workers. The companies are obliged to implement the high quality technologies that mean such ones, which do not devastate the natural environment and theydo not produce non-degradable wastes. The same refers to the cleaning supplies used in the touristic places. According to the Commission report this is necessary to help the European touristic sector to identify the threats referring to the climate changes. It will allow avoiding inappropriate investments and examining the new possibilities to develop the alternative touristic offer. The necessity to implement the new technologies, friendly to the environment is mentioned in the sixth Community programme of activities within the natural environment in art.3item4, there is decided there that the constant standards of production and consumption will be supported through effective using the ecological policy to internalization both, the negative and the positive influence on the natural environment through applying different instruments, together with the market and economic instruments. The high quality tourism requires undertaking the following tasks: • According to the NECSTouR and EDEN nets, working out the indicators for sustainable management of the touristic directions. On the basis of such the set of indicators the Commission will work out the signage useful to promote the touristic directions. • Proposing the chart of sustainable and responsible tourism and creating the European prize for the entrepreneurs and touristic objects which are the best in applying the assumptions included in the chart. • Creating the European signage “ High quality tourism”, on the basis of the previous experiences of the Member States. Its purpose will be the improvement of the safety and the consumers trust towards the touristic offer and awarding the entrepreneurs who offer high quality services and they undertake the wide range of measures to look after the clients. • Helping the European touristic sector to identify the threats linked with the climatic changes, which will allow to avoid inappropriate investments and to check the new possibilities of alternative development of the touristic offer. • Offering the strategy of sustainable seaside and coastal tourism. • Approaching or tightening the cooperation among the European Union and the biggest rising economies(China, Russia, India, Brazil) and the Mediterranean Sea region countries towards popularizing the sustainable development models of tourism and exchanging the best experiences. 4. Conclusions The conclusions of this paper are the same which are known from the European Commission Report of 20th June 2010. According to that document,the European touristic policy needs a new stimulus. Having the challenges, which require specific answers and flexibility, the acting subjects in the touristic sector have to decide to consolidate their power and undertake the cooperation within consolidated political frames, where the new European Union priorities are considered. Taking into consideration the new EU power within tourism, this report defines the ambitious frames, due to which the European tourism will become competitive, modern, sustainable and responsible. The Commission is planning a lot of substantial initiatives, which provide tourism the needed measures to adaptation and development. These activities constitute the implementa- | 119 tion of the Member States policies and their purpose is to coordinate the activities, and at the same time to define the measures, which bring the real European added value. The success of this strategy will be mainly depended on the involvement of all the interested parties and their ability to the cooperation during the implementation. According to every initiative related with tourism, the Commission will support the regular, substantial and clear opinion exchange among the Member States and the touristic sector. To realize this purpose the Commission will be supported by the Advisory Committee on Tourism. This will also allow the public administrations to inform regularly the interested parties about the Commission initiatives on the national and regional levels. Consolidated legal frames means barely the first step. Therefore, the Commission is continuing its reflections about the projects which are possible to implement in tourism. On November 2010 at the European Tourism Forum the Member States discussed the detailed activity plans. The public and private European actors of touristic sector evaluated the strategy which allowed to assess its effectiveness to make further progress. References: Bohdanowicz, P. (2005). Turystyka a świadomośćekologiczna, Toruń: Wydawnictwo A. Marszałek. Chojka, K. (2008). Turystyka i dziedzictwo kulturowe jako wyróżnik regionu w warunkach integracji europejskiej, In: Ochronaśrodowiska, turystykaidziedzictwokulturowePogórzaDynowskiego: V KonferencjaNaukowo-Techniczna „Błękitny San”. Materiałykonferencyjne, Jabłonka, 24-25 kwietnia 2008, Dynów, ZwiązekGminTurystycznychPogórzaDynowskiego, s.9-24. Haładyj, A. (2002). Zasada subsydiarności w europejskim prawie ochrony środowiska, Ekonomia i Środowisko, 1, s. 116-127. Kenig-Witkowska, M.M. (1999).Koncepcja Sustinaible development w prawie międzynarodowym, In: PiP 53(8), s. 45-58. Klonowska, K. (2009). Zrównoważony rozwój a prawo do korzystania ze środowiska należytej jakości, In: J. Ciechanowicz-McLean, T. Bojar-Fijałkowski, (red.). Gospodarcze prawo środowiska, Gdańsk 2009, s. 114 n. Krzystkiewicz, M. (2010). Odpowiedzialnaturystyka – co to jest? In: <http://wiadomosci.ngo. pl/x/360554> [27 VII 2010]. Kurek, W. (2008). Turystka, Warszawa: Wydawnictwo Naukowe PWN. Merska, M. Kościelnik, J. Merski, J. (2009). Edukacja ekologiczna a turystyka, In: Ochrona środowiska, turystyka i dziedzictwo kulturowe Pogórza Dynowskiego: V Konferencja Naukowo-Techniczna „Błękitny San”. Materiały konferencyjne, Jabłonka, 24-25 kwietnia 2008, Dynów: Związek Gmin Turystycznych Pogórza Dynowskiego, s. 127-157. Program ten byłrealizowany w latach 1987-1992. Więcej o tym programie zob. European Community European Community. (1992). Desk book. The Environmental Law Institute, Washington. Borsuk, S. (red.) (1997).Ekologia bez granic. II Polsko-Litewska Konferencja Naukowa (materiały pokonferencyjne Instytut, Bydgoszcz: Wydawniczy Habitat. Fundacja CBiOŚCz. Sander, J. (2008). Zrównoważony rozwój szansą dla ludzkości, Warszawa, s. 161. Sirko, M. Kałamucki, K. (2006). Mapa turystyczna jako źródło informacji o regionie, In: Ochrona środowiska, walory przyrodnicze i rozwój turystyki w dolinie Sanu: III Konferencja Naukowo-Techniczna „Błękitny San”. Materiały konferencyjne, Dubiecko, 21-22 kwietnia 2006, Dynów: Związek Gmin Turystycznych Pogórza Dynowskiego, s. 357-369. Sitek, M. (1999). Sustinaible development – ciągły czy zrównoważony rozwój? In: PiP 54(2), s. 8283; Sitek, M. (2007). Polityka ochrony środowiska w sektorze usług turystycznych świetle prawa Unii 120 | Europejskiej, Olsztyn: UWM. Breński, W. Oleksiuk, A. (2008). Strategiczne szanse polskiej gospodarki w kontekście globalizacji, Warszawa: Difin. Krajewski, P. (2011). Cultural Values in Times of Globalization, In: B. Sitek, J. Szczerbowski, A. Bauknecht, G. Dammaco, Human rights, Spiritual Values and Global Economy, South Jordan: Ecko House Publishing, s. 394-398. | 121 122 | Kinga Flaga-Gieruszyńska [email protected] Aleksandra Klich University of Szczecin The problem of legal exclusion on the example of access to justice in civil cases1 Abstract The basic issue requiring analysis is the problem of legal exclusion as one of the aspects of social exclusion, manifested also in the lack of access to justice in civil cases. As a consequence, persons that are excluded or persons at risk of exclusion are not able to protect their civil rights, which negatively affects various spheres of their lives. Through the analysis of the current state of law, also in the perspective of the evolution of the guarantee for access to justice, Authors want to assess the real level of access to the civil courts in the Polish legal system. At the same time, they outline sociological aspects relating to the perception of this problem by the persons at risk themselves in the scope of access to justice, as well as praxeological problems – relating to the the efficiency and effectiveness of the Polish system of legal aid in civil cases. Against this background, basic features of the system should be indicated at every stage of the proceedings - the pre-trial stage and during the civil suit, and as a consequence - chosen aspects of necessary legislative and organizational changes. In this regard, according to Authors, particular importance should be held by the postulate for the institutionalization of the system of free legal aid and for the implementation of the concept of the co-existence of the state judiciary and other methods of civil disputes settlement. Keywords: civil procedure, the rights of the poor, legal aid, legal exclusion, access to the courts 1. Introduction The right to justice, even in civil cases, is seen as an aggregate of rights that must be implemented together for one to be able talk of full compliance of State authorities with the standards of this right. Among these rights there is access to the courts, seen as an opportunity to obtain legal protection before an independent and impartial State authority, established by law. Its importance stems not only from the fact that this access is a component of the right to justice, but most of all, because it determines the implementation of other components, including the right to be heard and the right to a fair trial finishing in a judgement issued within a reasonable time. Without ensuring full access to the courts, a party may not properly use the procedural rights available to them already at the stage of examination proceedings in the first and second instance of proceedings and enforcement proceedings, as well as ancillary proceedings. What’s more, in this case we can talk of feedback, because failure to provide the parties with the opportunity to participate, which can be described as a fair trial, the inability to carry out the judgement, etc., makes access to the courts an illusory entitlement, and this state of affairs is contrary to the fundamental values ​​of the democratic rule of law. In addition, there is no doubt that the right to justice, including access to the courts, should be seen not only in terms of the holding true and application of the law, but also in economic and social terms. It becomes obvious that one needs to notice significant consequences of adherence to standards of the right to justice even in these non-legal spheres. This issue was spotted by the | 123 European Court of Human Rights (hereinafter: the EHCtR) on the basis of the interpretation of Art. 6 of the European Convention on Human Rights and Fundamental Freedoms of 4 November 1950 (hereinafter: the EHCR), arguing that the Convention should be interpreted taking into account present conditions. It aims to provide the individual with real and concrete protection. It protects mainly civil and political rights, however many of them have effects of economic and social nature. One cannot therefore reject a particular interpretation of the Convention only because it would entail the risk of entering the grounds of economic and social rights. No impassable boundary separates them from the areas covered by the Convention.2 Therefore, repercussions for non-compliance with the right to justice (also in terms of access to the courts) in all its aspects should be viewed in various dimensions: a) legal - referring to the content of standards relevant to the implementation of the right to justice interpreted out of generally applicable laws, as well as to the application of these standards by State authorities (such as in the scope of conditions for exemption from court costs), in this case - the civil courts ; b) economic – relating to State expenditures necessary not only for the creation of effective and efficient judiciary structures, mechanisms of the rights of the poor, but also for building of a proper system of free legal aid, levelling barriers to access to the courts; on the basis of Art. 6 paragraph 1 the obligation to ensure effective access to the courts is not merely the absence of interference, but also the requirement that the State undertakes a variety of other actions;3 c) psychological - if a citizen sees civil proceedings as inefficient and alien (because of their “theatricality” and formalism), “he does not use their services”; while it is true in this case, there is an increased scope for alternative methods of dispute resolution, but often citizens are unaware of opportunities in this area and remain in an uncomfortable legal position; in such cases, citizens are afraid to go to court or do not trust the court, and therefore a psychological barrier closes off effective access to the courts for them; d) social – there are social groups, environments, which can be described as “rejected”, “marginalised” (in some countries it is the minorities, in others - the homeless, the unemployed, etc.), affected by legal exclusion, whom the ineffective judiciary in civil cases cannot reach due to a number of reasons: too much complexity, opaque procedures, a different value system, etc. These multi-faceted obstacles may become a factor influencing the actual level of implementation of the right to justice, especially in terms of access to the courts. Hence the need for them to be diagnosed for the needs of each legal system. This requirement of diagnosis individualisation results from the fact that social, economic and other conditioning is specific to individual countries, embedded in different legal cultures and societies shaped differently from the historical perspective. Verification of these factors may be the starting point for creating solutions allowing to expand the availability of thee common judiciary. 2. Attempts to define legal exclusion as a social phenomenon and a legal category The basic idea of the modern human rights system is that the poor or those in other special situations (for example, because of their origin, race, etc.) hold the right of access to the courts without any discrimination and the right to a fair trial, understood as the right to being treated fairly, effectively and efficiently by the judicial system (Sepulveda, 2012, p. 4). At the same time, however, one does not dispute the position that the right does not have the character of an absolute right and may be subject to restrictions (Osman v United Kindgom, ECJ). According to the jurisprudence of the European Court of Human Rights, restrictions on access to the justice system are allowed to the extent that they are proportionate to the legitimate aim, and as long as they cannot limit or restrict access allocated to physical persons in such a way or to such an extent that 124 | the substance of the right is affected. The proportionality of a particular obstacle to a large extent depends, therefore, on the specific circumstances of the case (EUAFR, 2010, p. 70). Undoubtedly, it is the proportionality imbalance that can cause legal exclusion in procedural terms. The essence of legal exclusion is the deprivation or significant limitation of the opportunity to use by given individuals or entire communities their rights and freedoms, as well as competences (e.g. in the scope of the voting right). Legal exclusion normally stands in a significant correlation with social exclusion. These links in a particular case may be diverse, for instance, legal exclusion may lead to social exclusion (for instance in cases where a person unaware of their rights, having no legal aid is dispossessed of the right to live in the premises, becomes homeless and falls into social exclusion), and sometimes legal exclusion may be a consequence of the social one (e.g. due to the fact that a person living in a hermetically sealed environment, marginalised by the majority of society members, over time loses the opportunity to obtain full information about their rights and falls into the state of legal exclusion). Thus, the correlation between these types of exclusion has a different character depending on the individual circumstances of the person at risk of or affected by the exclusion. In any case, practitioners acting against legal exclusion rightly point out that the concept of legal exclusion should be considered not only in the context of the access alone, possibilities to take advantage of certain institutions or legal arrangements, but also in terms of a legal sense or legal awareness of the individual. Legal awareness is shaped by the knowledge of the law and its evaluation. The attitude towards the law is a particularly important issue in view of the fact that it is an important factor shaping the effectiveness of the law. The law is effective when it is observed, therefore, when its recipients represent proper attitudes. It is emphasized, therefore, that legal exclusion as an individual’s lack of legal awareness can be a cause of discrimination, but also – as a lack of access to legal protection and assistance - the result of it. This means, therefore, that the role of educating the public, especially groups vulnerable to discrimination, is tremendous in the scope of anti-discrimination law (Zima, 2012). Certainly, legal awareness is largely determined by the factual, and sometimes legal, situation in which a person will be found due to certain circumstances (health, disability, crimes committed, loss of a job or reaching a certain age). M. Zima-Parjaszewska (Zima-Parjaszewska, 2013) pointed out on the example of incapacitated people with intellectual disabilities that incapacitation causes a gradual loss of legal awareness in the incapacitated. It is impossible not to notice that long-term experience of exclusion makes the incapacitated person begin to see themselves as permanently deprived of equal participation in the society. Consequently, this leads to the fact that the incapacitated person thinks of himself as someone devoid of opportunities for a better life, he begins to agree to his fate and minimises his expectations of life. The Author points out that the institution of incapacitation seriously restricts freedom and the right to make decisions about one’s personal life, causing social and legal exclusion. According to the Author a person excluded socially and legally, with an intellectual disability or a mental illness has no chance of returning to social life. Considering the problem of legal exclusion in terms of access to the courts, we can talk of two aspects of exclusion. In the first aspect, one must specify substantive and legal aspects of legal exclusion, when a given person or a community does not have information and does not use their rights and freedoms - political, social and economic – (e.g. the right to education, voting rights, rights relating to welfare benefits). And we can talk of legal exclusion of procedural significance in a situation where a person is aware of their rights in a particular sphere of life (commonly, they sense it intuitively, or use the superficial “knowledge of word of mouth”), but they are not able to or cannot enforce these rights because they do not know the formal mechanisms ensuring their opportunities to obtain legal protection, or possibly, despite of their relative knowledge, they do | 125 not have the resources to take advantage of this way of asserting their rights. A person affected by this type of exclusion is not able to take advantage of court mechanisms (in the scope of both, civil and criminal law), and is not able to effectively take advantage of administrative proceedings or other procedures of an extra-judicial character. In summary, legal exclusion remains in a strong relationship with social exclusion, taking on different forms and intensity. It should be diagnosed in three areas: its causes, scope and extent, and also mechanisms of prevention and countermeasures. Accuracy of such a diagnosis combined with State’s effective actions in the third area will help to reduce the phenomenon of legal exclusion in relation to individuals or entire communities at risk of or affected by exclusion. 3. The effect of restricting access to the courts on the state of legal exclusion – selected aspects In the legal dimension, the significance of restricting access to the courts was clearly defined by the European Court of Human Rights, which stated that in civil cases, it would be difficult to build the rule of law without providing the ability to provide access to the courts. Article 6, paragraph 1 of the Convention should be read in the light of two legal principles: the principle of the rule of law, as well as the principle according to which a civil and legal claim “must enshrine the opportunity to be submitted to the consideration of the court.” It is one of the generally recognised principles of the law and principles of international law, which prohibits “denial of justice”. Therefore, the right of access to the courts is an integral part of the right contained in Art. 6, paragraph 1 of the Convention, which grants anyone the right to bring before a court or a tribunal any action (claims) concerning their rights and obligations of a civil and legal character (Garlicki, 2010, p. 288). Often in practice, legal exclusion concerning certain social groups is unintentional, that is, State authorities do not intend to conduct a policy based on discrimination, but their passivity or incompetent problem solving inevitably lead to this situation or introduce a risk of exclusion. On Polish grounds, an example of such legal exclusion, unintentional but tolerated by State authorities, is the situation of people in informal relationships. There are no adequate mechanisms of substantive law (e.g. inheritance law, family law and medical law) that would secure, to a sufficient extent, the rights of a life-partner in various areas of their shared life. Similarly, there are no effective procedural means that would provide for the establishment or enforcement of rights based on the running of the same household, having children together and other circumstances. After all, taking actions in accordance with Art. 189 of the Code of Civil Procedure of 1964 (hereinafter: the CCP) for said establishment is unacceptable in this case because this establishment may relate to the existence of a right or a legal relationship, but not factual state, which cohabitation (partnership) is. In addition, there is no need for establishing in the mode of a civil suit a state, which results in no significant legal consequences on the basis of the substantive law, as indicated earlier. It should be noted, however, that the effects of restricting access to the courts are significant especially in the social dimension. In reference to this problem, H. Genn, uses the term justiciable event, calling so those events or activities that should potentially be the subject of consideration and decision of a common court of law, but they never reach it. The source for this state of affairs is the fact that the people who should seek legal protection before a court suffer all kinds of negative emotions or represent withdrawn attitudes: they are ashamed of their situation, distrustful or not intellectually or financially able to meet this challenge. In this way, according to the Author the so called ‘justice pyramid’ is formed.4 At the top of the pyramid there are the issues conditioned by the civil courts, and at its base there is a much larger number of cases that should reach the courts, but for the reasons mentioned did not. Numerical disparity between the two groups of cases is mainly due to financial 126 | barriers and a psychological barrier of the individual’s or the community’s (e.g. national or ethnic minorities) perception of the justice system of many countries (including democratic ones). This also applies when in the awareness of those seeking legal protection the judicial system is too uncertain as to the timing and outcome of the procedure, too complicated, with a structure too fragmented and unclear (as exemplified by the number separate proceedings in Polish civil procedural law), and at the same time giving too many opportunities to those dispute participants who do not want a speedy resolution of the case (for example, due to a lack of effective procedural measures to counteract the dragging out of a civil suit). In a situation where the state does not create instruments to support (e.g. in the form of the so-called rights of the poor) and also to educate (“familiarising” common jurisdiction), some of those seeking legal protection will fall into a state that can be classified as a risk of or proper legal exclusion. One result of the lack of support for those at risk of or affected by the exclusion in their relations with the authorities of the justice system is also a phenomenon that R. H. Mnookin and L. Kornhauser (Mnookin and Kornhauser, 1979, p. 950), using the example of divorce cases, defined as negotiations “in the shadow of the law”, and therefore agreements between parties made informally, outside the courtroom. At the same time, it needs to be remembered that it’s not about recognising cases in the mode of alternative methods of dispute resolution (ADR), as these are applicable to only some of the cases that potentially should be the subject of legal proceedings and are an assisting element of the judiciary. We are talking primarily of those most vulnerable, agreeing (economically, psychologically, etc.) to the solutions proposed to them by the opposing party in the pre-court stage due to the lack of faith in the justice system, or even the fear of having to participate in a civil suit. P. Pleasence (Pleasance, 2006, p. 10) shows on the example of the English and Welsh justice system that, for instance, only 16% of employment-related cases reach the courts, 12% of cases involving welfare benefits or 5% of cases of various forms of discrimination. Those deprived of real access to the courts, at risk of or affected by legal exclusion agree to terms that the other party proposes, considering that they will not be able to gain more before a court. In summary, access to the courts for a few reasons is a significant right in counteracting the strengthening of legal exclusion as a negative phenomenon associated with poverty, social exclusion (including legal) and other forms of de-favouring of specific social groups or individuals. Firstly, persons deprived of effective legal protection, at risk of or affected by legal exclusion are particularly vulnerable to acts of violence (including in family relationships), to attempts at using their forced situation and other acts of a tortuous or felonious character. The presence of such events in their lives has a huge impact on their perception of the environment (often deepening their marginalisation), and sometimes determines their subsequent life attitude (the tendency to pathological behaviour or illegal activity), thereby exacerbating exclusion up to the social isolation. Secondly, in some cases, access to the courts is an instrument to overcome the causes of exclusion, such as poverty and homelessness, if it turns out that this person has the right to certain claims or benefits in their family or business relationships, or within the social security system. Court judgements will allow for these claims (benefits) to be enforced through state coercion. And thirdly, those who cannot find legal protection within the justice system, have to rely on themselves, which in turn causes an increase in aggressive or illegal behaviour, and on the contrary the tendency to accept unjust solutions and unacceptable behaviour (e.g. in the case of domestic violence victims unaware of their legal status). Therefore, effective and accessible justice system can significantly reduce the volume of unwanted behaviours, as well as offset the number of cases where a person violating someone’s rights and freedoms feels unpunishable (United Nations Development Programme, 2005, p.3). Moreover, a detrimental phenomenon of a vicious circle arises in this case. An excluded person, not being able to use legal remedies under the existing justice system, increases their susceptibility to violation of their rights. In turn, this vulnerability and progressive exclusion impede the possibility of exercising legal remedies. Consequently, freeing | 127 such a person from this self-driven process of the deepening of the exclusion is extremely difficult. 4. Polish procedural guarantees shaping standards of access to the courts in civil cases in the material sense As already indicated, access to the courts is one of the elements of each individual’s right to justice, constituting a guarantee regulated both in the Polish legal order (Article 45 of the Constitution of the Republic of Poland of 2 April 1997), and as well as international (Article 6 of the ECHR), as evidenced by national and international law. Going beyond the legal framework, attention should be drawn to the satisfied security needs of every human being by ensuring their equal access to the courts. This issue is repeatedly downplayed or even ignored. However, close attention should be paid to it, because the creation of effective in practice instruments of implementation of the right to justice will have a positive impact on increasing the sense of stability and security, which come under fundamental needs of every human being. Procedural safeguards in the Polish legal order, affecting standards of the right to justice need to be derived from European standards, and strictly speaking, from Art. 6 of the ECHR which sets out clearly a set of guarantees of a fair trial. The said regulation guarantees the right to fair and public judicial proceedings in general, while being applicable to the justice system in the countries which are parties to the Convention (Garlicki, 2010, p. 251). Regulations of the Polish legislator relating to the catalogue of cases brought before common courts of law is much wider than the regulation resulting from Art. 6 of the ECHR, as the European legislator does not contain the restriction in question on access to the courts in terms of its connection to specific categories of cases. In light of the above one needs to agree with the thesis that the right to justice has a wider range than international standards for the protection of the law (Siudowski, 2013, p. 7). Significant impact on the Polish standards of development of access to the courts lies in the case law of the ECtHR. Article 6 of the ECHR provides efficient and effective right of access to the courts, which may cover a right to free legal aid. The literal wording of Art. 6 paragraph 3(c) of the Convention suggests that the right to free legal aid and a professional appointed ex officio refers to cases of criminal law. Although there is no literal reference of the indicated regulation to the civil procedure, it is possible to introduce such measures by States that are parties to the Convention. This solution is used by the Polish legislator, forming the so-called rights of the poor, which should include legal aid ex officio, as well as the institution of exemption from court costs in civil cases. These elements constitute a procedural guarantee for providing access to the courts under the Polish legal order, while at the same time reflecting effective and real access to the courts (Garlicki, 2010, p. 292). One of procedural facilitations for the realisation of the right of access to the courts is to provide the party to the proceedings with the opportunity to demand the establishment of an attorney or legal counsel by the court. The legislature does not place restrictions on the possibility of establishing legal representation ex officio to parties that were granted exemption from court costs in civil matters, because according to Art. 117 of the CCP, this right belongs equally to the party previously exempt from court costs, to a physical person non-exempt by a court from court costs, as well as to a legal person or an organisational unit to which the law grants the capacity to be a party in civil proceedings. Court establishment of an attorney or legal counsel to represent a party in given proceedings is tantamount to granting the power of attorney ad litem, and the attorney ex officio is required to take any actions related to the case, and to represent the party until a valid and final conclusion of the proceedings. The exception here is cases in which according to the court decision the obligation to represent the party terminates at an earlier date (Pietrzykowski, 2013, p. 43). 128 | The regulation adopted by the Polish legislator explicitly implements the provisions of Art. 6 of the ECHR and Article 45 of the Constitution of the Republic of Poland, according to which the tasks of the State include creating a legal framework to ensure the effective implementation of citizens’ right to justice, whose element is providing legal aid ex officio to people who are at risk of legal exclusion. At this point, we need to refer to the efficiency and fairness of activities of an attorney ad litem ex officio. The European Court of Human Rights has repeatedly stressed the essence of the effectiveness of assigned legal aid. In its judgement of 13 February 2003, the Court found that it is the State’s duty to ensure that the applicant receives effective legal aid. This decision was made in the Bertuzzi v. France case, where the applicant, despite having been granted legal aid, was not represented at all due to the fact that the applicant’s opponent was a lawyer, and the assigned professionals were his friends, who did not set out to represent the applicant before the court. Under the Polish legal order, an attorney or legal counsel may apply for exemption from the obligation to represent a party in legal proceedings. Should the court release an attorney or legal counsel from representing a party in the proceedings, the court is required to apply to the competent council to appoint another attorney or legal counsel (Article 118 § 3 of the CCP). A similar regulation is introduced in Art. 28 of the Law of 26 May 1982 - Law on the Bar, under which a lawyer may refuse to give legal aid ex officio only for valid reasons, at the same time informing the person concerned, whereas doubts as to the possibilities of representing a party ex officio are settled by the competent Council of the Bar, and in urgent cases – the dean. Effective legal aid should not be equated with actions in accordance with the wishes of the constituent, which is confirmed by the position of the Supreme Court that the role of a professional assigned ex officio should be construed as an obligation to offer legal advice to the party (SC resolution of 2000). Thus, the professional is to act in the best interests of the constituent and not in accordance with the wishes which may constitute a favourable solution for his procedural situation. Regulations relating to legal aid ex officio are undoubtedly the implementation of the provisions of the Convention. However, activities of a legal professional assigned by the court should not be equated with the operation of state bodies, as handling the case is in principle based on an individual relationship between the party to the proceedings and his attorney. And the duty of the State is to take actions in situations where there are any problems with legal representation, because, as the Court points out, it will depend on the circumstances of the case whether the competent authorities should take action in a given situation, and also whether legal representation is regarded as essential and necessary.5 This thesis is confirmed by the fact that both the right of access to the courts, as well as its components are not absolute, therefore the State can impose limitations in this regard, however, subject to the supervision of the Court in relation to the implementation by the States of provisions of Art. 6 of the ECHR. A problematic issue with regard to legal representation ex officio is the opportunity to lodge a cassation appeal under the applicable Polish legal order. Establishing limits for lodging a cassation appeal, involving the attorney-legal counsel coercion is not inherently contradictory to Art. 6, par. 1 of the ECHR, but the introduction of such a requirement orders to secure access to the courts for the poor, which entails the need to provide possibilities for the establishment of free legal assistance of an attorney ex officio. As noted by Hofmański (Garlicki, 2010, p. 296), while granting this legal aid, State action must be marked with due care in such a way as to provide these people with a real opportunity to effectively make use of the rights guaranteed by the Convention. Of key importance for Polish legislation is the Court’s judgement on Siałkowska v. Poland (ECtHR judgement of 22 March 2007), in which the Court emphasizes that the duty of the State is to provide the necessary balance between the effective use of access to justice and the independence of the profession of the lawyer. Consequently, in this particular case, the right of access to the courts will be preserved if the State authorities create an effective mechanism to support people at risk of social exclusion in terms of the opportunity to use the services of a professional. | 129 An important procedural guarantee of access to the courts under Polish procedural law is also the institution of exemption from court costs in civil cases, in some cases closely related to legal aid ex officio. This regulation is of a non-code character, because it is contained in a separate law - the Law of 28 July 2005 on court costs in civil cases (hereinafter: the LCCCC). The requirement to pay fees and incur additional court costs may constitute a restriction of the right of access to the courts.6 Despite the absence of its absolute nature and the possibility to introduce by the State of such restrictions, it is necessary for the State to introduce instruments to ensure the protection of the individual against inability to implement the right of access to the courts because of the financial barrier that may be manifested by too high court costs. The costs necessary for the conduct of given proceedings cannot be set by the State at an excessively high level, preventing effective implementation of access to the courts. An important factor in this case is financial resources of the party and the assessment of the proportionality of their amount is subject to assessment in relation to the specific facts of the case. In support of this thesis is the judgement delivered by the Court in the Kreuz v. Poland, case in which the Court points out that the requirement to pay a registration fee (court fee) in civil cases must not be regarded as a restriction of access to the courts and, in some circumstances, the amount of these costs, as well as the capacity for them to be paid by the party is of great importance to determining whether the right of access to the courts is guaranteed. The Court also emphasized that conditioning the hearing of the case on the payment of a court fee is not in accordance with Art. 6 par. 1 of the Convention, if it does not correspond to a legitimate aim and if there is no reasonable relationship of proportionality between the means employed and the aim for achieving them. As noted by Nowicki (Nowicki, 2005, p. 599), the Court does not rule out the possibility that interests of fair administration of justice may justify the introduction of a specific financial restriction affecting the individual’s access to the courts. The Author emphasises that, pursuant to Art. 6 of the ECHR, the obligation of the State in providing access to the courts does not exclude the possibility of taking additional actions. This does not mean, however, that an unlimited right to free legal aid in civil cases or free civil procedure has been introduced. It should be noted clearly that the requirement to pay court fees and to bear procedural costs cannot be regarded as a restriction of the right to justice. Summing up the considerations in this regard, it needs to be noted that basic procedural guarantees in respect to the provision of access to the courts under Polish procedural law is the right to the appointment of legal representation ex officio, as well as the right to be exempt from bearing court costs. With regard to these issues, one should primarily point to institutions developed by the Polish legislator which are available to people who are at risk of legal exclusion. These principles support the position that the State fully implemented the obligation to secure an effective possibility of referring a given case to civil proceedings for each individual. High court costs can be a significant barrier limiting access to the courts, this is why the legislature introduces the so-called rights of the poor, which is the basis for the implementation of said right (Zieliński, 2010, p. 333). The court’s duty is, therefore, total or partial exemption of the party from bearing court costs, or even assigning a professional attorney for such a person. The indicated court’s obligation unambiguously stems form the discussed regulations, therefore any discretion in this regard is inadmissible. 5. The development of the system of free legal aid as an instrument counteracting legal exclusion in civil cases The risk of social exclusion is an increasingly important prerequisite for the creation by the Polish legislator of a legal framework to increase access to litigation. In order to achieve this goal the so-called procedural facilitations are introduced, serving to reduce barriers in access to the 130 | courts (e.g. the introduction of pleadings forms or distinct modes of pursuing claims). One such simplification should be a system of free legal aid. In light of existing legislation the importance of barriers to citizens’ access to the courts is emphasised. A citizen comes across these barriers in access to the courts already at the stage of his decision to initiate an action or of taking a defence in the proceedings already pending. For the system of free legal aid of crucial importance is, however, free advice, which has a positive effect on raising legal awareness among citizens. Despite the existence in the Polish legal order of the institution of legal aid ex officio there is a noticeable need to create separate regulations relating to free legal aid, closely related to free legal advice. Free advice is carried out within university (student) legal aid offices, also known as legal clinics, that after 1998 were created at almost all departments of law in Poland. The range of advice provided covers all areas of the law a citizen may encounter in his daily life. The advice is given to people whose financial situation does not allow for the use of professional legal assistance. In the 2011/2012 academic year legal clinics operated in 16 academic centres in Poland, reaching a total of 25 (Fundacja Uniwersyteckich Poradni Prawnych, 2013, p. 2). In addition to an educational goal achieved by students cooperating in their structures, these clinics play a very important social function as their activity is directed towards those at risk of social and legal exclusion. While in the early years of legal clinics’ operation their advisory activities (in most legal clinics, the work of volunteer law students was limited to issuing written legal opinions based on the real facts of the case, under substantive supervision of a tutor who was a legal professional) was sufficient, nowadays with the increase in the number of cases examined by legal clinic (for comparison, in the 2003/2004 academic year 6,596 cases were examined, and in the 2011/2012 academic year – 13,379), a growing need for comprehensive legal aid, which will be of unpaid character, is emphasised. This is not possible without creating a system of free legal aid based on relevant legal standards and regulations (Fundacja Uniwersyteckich Poradni Prawnych, 2013, p. 2). The need for the introduction of free legal advice in Poland was signalled at the turn of 2004/2005, when the first drafts of the so-called Law on free legal aid were created, in response to calls from NGOs and the Ombudsman. In 2005, the government tabled a draft bill (form No. 29) regulating access to free legal aid granted by the state to physical persons. In support of this project the increasing society demand for legal aid, especially those at risk of legal exclusion, was emphasised. The authors of the draft stressed the dual perspective on the proposed solution - on the one hand they pointed to the need for providing social assistance, on the other hand - to the guarantee of exercising other constitutional rights, including the right to justice. One must agree with the fact that regulations introduced into the Code of Civil Procedure relating to the so-called rights of the poor, including on the one hand, legal aid ex officio, and on the other - the institution of exemption from court costs is not a sufficient solution, because the model of representation ‘ex officio’ is not a sufficient solution to meet the social demand for free legal aid (The Sejm Paper, 2005, pp. 3-5). Attempts taken repeatedly in 2004-2010 aimed at the adoption of the Law on free legal aid were unsuccessful, so that to this day in Poland access to free legal aid out of court has not been uniformly regulated, despite the signalling of this problem by an increasing number of non-governmental organizations, as well as institutions working for people at risk of social exclusion. The development and introduction of a harmonised system of free legal aid is supported by emerging barriers at the stage of implementing the right of access to the courts, faced by people at risk of legal exclusion, sometimes having low legal awareness. The solution to the problem of citizen’s poor legal awareness, as well as the financial barrier in access to professional legal advice requires reforming the regulations existing so far and the introduction on the statutory level of solutions comprehensively regulating this matter. Polish civil procedural law refers to these matters in a residual way, as the issues of, e.g. exemption from court costs were moved out of the Code of Civil Procedure and into a separate act, and regulations on legal aid ex officio were left in the CCP. | 131 Moreover, the fragmentation of legislation relating to the rights of the poor has a negative impact on the transparency of the discussed system (exemption from court costs in civil cases is regulated outside of the Code of Civil Procedure, and legal aid ex officio by a remaining Code regulation). Free legal aid should not be limited to access to the courts, often equated with the moment of the initiation of proceedings. Therefore, it should be in a greater part (if not primarily) associated with the preceding stage, as a crucial role at this point may be played by organizations dealing with free legal advice (the already mentioned legal clinics, Citizens Advice Bureaus or other non-governmental organizations engaged in providing free legal advice). In my opinion the best and most reliable preparation of the party in the pre-court stage will contribute to more effective exercising of the right of access to the courts, which will result in minimising the occurrence of barriers to access to the courts. The issue of public access to out-of-court free legal aid entails the need of introducing systemic solutions. As noted by Bojarski (Bojarski, 2011, p. 11), changes involving the system of free legal aid should apply to access to legal information, as well as to out-of-court legal assistance. One of the most important issues is, however, harmonising procedures for obtaining legal aid before the courts (in administrative, civil, criminal or court and administrative proceedings). A comprehensive look at the issue of legal aid should relate to two areas: the pre-court stage and legal assistance at the stage of judicial proceedings. While in the second case the applicable provisions of the civil procedure refer, to a smaller or larger extent, to the previously discussed legal aid ex officio, to the exemption from bearing court costs or to legal assistance in specific stages of the proceedings, the lack of clear regulations relating to the pre-court activities, equated with general and pre-court legal information (the former refers to passing basic information on legal assistance provided in cases where there is no litigation, as well as in relation to legal assistance ex officio, and the latter needs to be referred to the provision of individual legal advice, based on the specific facts of the case). In the case of pre-court legal aid and related legal information, problematic issues are not so much those of providing the information, but the advice and representation of the party in the activities at the pre-court stage, or at the time of bringing an action. There is no doubt that out-of-court legal aid requires special treatment from the legislator. An ideal solution seems to be a combination of both modes and regulating them in a single act of law, thus creating a strong foundation for a system of free legal aid in Poland. However, looking at the efforts and actions taken by many NGOs, and on the other hand, at the dilatory treatment of the issue by the Polish legislator, only in the sphere of questions does the attempt to answer one remain: whether and when the Polish legal system will be complemented by a complete model of free legal aid, including also free legal advice. A model fitting into the “justice system” as a structure ensuring an optimal level of legal protection also for those at risk of or affected by social exclusion. 6. Summary As shown in practice, it is important to construct a “justice system”, which would be close to people, both mentally and geographically. In order to ensure access to justice for people at risk of or affected by social exclusion, one needs to create a well-functioning judicial system that is not based on rules reflecting the rights of the wealthy and occupying an appropriate position in society, but also takes into account the existence of people with low incomes and with different dysfunctions which expose them to social marginalisation (Sepulveda, 2012, p. 20). Justice is not only a judicial decision, it is also noticing by State authorities of the diversity of situations in which members of society expecting legal protection operate. 132 | It is therefore appropriate to speak of “justice system” as a chain, a set of instruments and legal and organizational solutions, which consists of two basic components: a coherent and accessible system of free legal aid and the judiciary with the same characteristics. Thus, the system of justice is an aggregate of activities primarily for the benefit of people at risk of or affected by legal exclusion, providing the possibility to restore their due legal status allowing full enjoyment of rights and freedoms, including the right to justice. These activities, in a dynamic perspective, should consist in the first place of various forms of legal aid (opinions, legal advice) provided by specialised organisational units, for free or for a minimal charge (in particular with regard to persons benefiting from social security benefits), at the pre-court stage. Skilful actions at this stage would allow, with regard to certain cases, to use instruments of a non-adjudicating character (and therefore inherently antagonising the parties to the dispute), such as mediation, conciliation, expert opinion, etc. In case of the inability to resolve the dispute in such a formula, a person seeking legal protection, with professional support, could take, already at the stage of judicial proceedings, further actions in order to use the institution of the rights of the poor existing under the rules of civil procedural law - exemption from court costs by a judicial decision and attorney ad litem ex officio. The creation of such legal frameworks, however, is only the first step in ensuring access to the courts to those at risk of or affected by the legal exclusion, because alongside legal conditions, appropriate attitude of judges is also important. They need to begin to analyse in a wider scope the social situation of those seeking to exercise the rights of the poor, in order for negative arbitrary resolutions in this regard to be cases actually deeply considered and unfounded. Pulling away from the hard realities of life sometimes causes an inability to perceive the real situation that is subject to assessment. How important this issue is is evidenced by the fact that research on access to justice of particular social groups is still being carried out. The latter confirms that in addition to legal instruments mental changes in the justice system are significant. As the Authors of the report on the anti-discrimination law in judicial practice indicate, in terms of sources and causes of discrimination (and thus also legal exclusion), judges, in correspondence interviews, most often pointed to stereotypes and prejudices functioning in the society. Such a belief corresponds to the one represented in the subject literature. As the most common causes of unequal treatment and discrimination, the literature reports the lack of knowledge about groups at risk of exclusion and the lack of education in this area. It is surprising, therefore, that only five judges in this study pointed to these factors. It is interesting, however, that as many as 11 judges surveyed believed that the cause of discrimination is the behaviour and attitudes of minority groups themselves. One need to agree with the Authors that, first of all, this view should be considered completely unjustified. Determining the causes of discrimination in the behaviour and attitudes of groups at risk of unequal treatment may in fact lead to the reinforcement of stereotypes and prejudices already existing in the society. What is more, it may constitute the consent for people whose behaviour discriminates others (Wieczorek et al, 2012, p. 125). This is one of the elements of social conditions which must be taken into account when creating a support system of access to the courts for those excluded Therefore, as stated in the introduction, access to the courts - as well as legal exclusion – has essential premises, but also effects of various non-legal nature. Studies show that when people think of access to the courts, they do not necessarily only refer to the judiciary sensu stricte. UNDP has conducted surveys in India on the perception of access to the courts through the prism of other aspects of their lives. In the area of ​​poverty, it turned out that access to the courts is associated with economic conditions, among the members of the lower castes restrictions on access to the courts were related to their social situation, and members of national minorities sought the source of the problem in government policy which is not conducive to this type of minorities (United Nations Development Programme, 2005, p.4). 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[ebook] Bangkok: United Nations Development Programme, Available through: http://www. hrea.org/erc/Library/display_doc.php?url=http%3A%2F%2Fregionalcentrebangkok.undp. or.th%2Fpractices%2Fgovernance%2Fa2j%2Fdocs%2FProgrammingForJustice-AccessForAll. pdf&external=N [Accessed 28 June 2013], p. 3. Wieczorek M., Bogatko K. & Szczerba – Zawada A. (2012). Postawy sędziów wobec zjawiska dyskryminacji oraz ocena przepisów antydyskryminacyjnych – wyniki monitoring. [e-book] Warszawa: Polskie Towarzystwo Prawa Antydyskryminacyjnego. Available through: <http://ptpa. org.pl/public/files/Prawo%20antydyskryminacyjne%20w%20praktyce%20s%C4%85dowej(1). pdf>, [Accessed 17 June 2013]. 134 | Zieliński A. (2010). Koszty sądowe w sprawach cywilnych. Komentarz. Warszawa: C. H. Beck. Zima M. (2012). Edukacja antydyskryminacyjna jako narzędzie przeciwdziałania wykluczeniu prawnemu, [online] Available at: <http://pomocnik-ngo.kph.org.pl/artykuly/prawo.html>, [Accessed 28 June 2013]. Zima-Parjaszewska M. (2013). Ubezwłasnowolnienie w świetle Konstytucji RP oraz Konwencji o prawach osób z niepełnosprawnościami. Warszawa: Polskie Towarzystwo Prawa Administracyjnego. Available through: <http://ptpa.org.pl/public/files/publikacje/Ekspertyza_OSI_-_ Ubezwlasnowolnienie.doc>, [Accessed 28 June 2013]. General sources Airey v Ireland (1981) ECtHR Judgement §22 et seq. Annoni di Gussola and Others v. France (2000) Applications Nos. 31819/96 and 33293/96. ECtHR Judgement. Artico v Italy (1980) ECtHR Judgement, Series A No 37, p. 18, §36. Bertuzzi v France (2003) ECtHR Judgement §31. Code of Civil Procedure (64). Journal of Laws (64) 43/296. Constitution of the Republic of Poland of 2 April 1997. Journal of Laws (97) 78/483. Convention for the Protection of Human Rights and Fundamental Freedoms of 4 November 1950, Journal of Laws (93) 61/284. Daud v Portugal (1980) ECtHR Judgement. Reports of Judgements and Decisions 1998-II, p. 749, §38. Kreuz v. Poland (2001) Application No. 28249/95. ECtHR Judgement. Law on court costs in civil cases of 28 July 2005. Journal of Laws (05) 167/1398. Law on the Bar of 26 May 1982. Journal of Laws (09) 146/1188. Consolidated text. Osman v United Kingdom (1998) No 23452/94, ECJ Judgement. SC Resolution 2000/ III CZP 14/00. Siałkowska v Poland (2007) Application No. 8932/05. ECtHR Judgement § 112. The Sejm Paper of 19 September 2005 on the rationale for the draft law on access to free legal aid granted by the State to physical persons alongside draft implementing regulations. (Endnotes) 1 Introduction, parts 1-3 and conclusions were elaborated by K. Flaga-Gieruszyńska, parts 4 and 5 were prepared by A. Klich. 2 Compare: Annoni di Gusola and others v. France – ECtHR Judgement of 14 November 2000. 3 Compare: Kreuz v. Poland – ECtHR judgement of 19 June 2001. 4 See more in: Genn H. (1999). 5 Compare: Artico v Italy (1980) ECtHR Judgement and Daud v Portugal (1980) ECtHR Judgement. 6 Compare: Airey v Ireland, ECtHR Judgement of 6 February 1981 §22 et seq. | 135 136 | Paweł Polaczuk University of Euroregional Economy [email protected] Political, Ethic and Moral Applications of the Human Nature Category on the Basis of the Discussion on Same-Sex Civil Partnerships Abstract The purpose of the article is to outline the importance of diverse perceived human nature category in political and moral discourse. The first part of the article is devoted to the category of human nature in political philosophy. There will be outlined the classical presentations of human nature and their implications in the contemporary political philosophy. The first section also contains some comments on the character of requirement of compliance with human nature in ethical discourse. In the second part, devoted to the category of human nature in political and moral discourse, there will be presented and analyzed an argument indicating contrary to the nature. It appeared in the Polish public debate on the positive regulation of civil partnerships. There will be argued the thesis according to which a specific feature of political and moral discourses is their orientation precisely on the contradiction with human nature (not on compliance with the nature or the restrictions that a person is subordinate). Keywords: human nature, philosophy of politics, ethics, public morality, civil partnership 1. Introduction The purpose of this article is to outline the importance of diverse perceived human nature category in political and moral discourse. There will be discussion on the positive regulation of civil partnerships. The enemies of so-called “the legalization of civil partnerships” claim that same-sex relationships are contrary to human nature and their legalization is unconstitutional (K. Pawłowicz, 2013, p. 244). These arguments were put forward during the parliamentary debate on bill projects and during street demonstrations propagated the slogans of “Poland free of deviance”, “A man is born normal, not a gay” (Marsz Krucjaty <The March of Crusades>, 2013). The role of the category of human nature can be perceived from two perspectives: the argument indicating the contradiction with human nature or the argument indicating compliance with nature. Deliberations on the category of human nature in political and moral discourse there will be begin with the outline of the importance of assumptions connected with human nature in political philosophy and the importance of the human nature category in ethical discourse. Anticipating the further discussion, it should be noted that the assumptions on the human nature were regarded as essential to a good society organization. Today, the category of human nature appears indirectly. The philosophy of politics has a greater interest in the limits to which human nature is subordinated in the light of established historical assumptions and of science findings concerning the biological needs of a man. In the ethical discourse there is a dispute concerning the nature of the requirement of compliance with the nature. Its origins are associated with the charge of naturalistic fallacy. However, in both political and moral discourse there is a dominant argument indicating conflict with nature. It was mentioned the relationship of the assumptions about human nature and the good organization of society. As an example, there can be shown the justification of the strong social institu- | 137 tions in the active state, referring to assumptions unfavorable to a man (sinful, evil, etc.). In other words, it is said that a state should have strong institutions and should be active in trying to tame the dominant traits in human nature that are in contrary to such organization of the community (Etzioni, 1997, p 215). It should be noted that today we do not talk about the facts of human nature. Only some assumptions about the nature are made. They deserve our attention for the sake of their impact. Amitai Etzioni writes, for example, about the impact of assumptions concerning human nature on paradigms that shape the theoretical and practical discourse on the state apparatus, its policy direction, the shape of institutions, etc. (Etzioni, 1997, pp. 215, 229). This is not a direct effect as it was in the past but indirect effect. In the mentioned discourses there are some dominated arguments not strictly connected with human nature but the arguments constituting the normative implications of the assumptions concerning this nature. In the theoretical discourse these are some limitations that a human is subjected to. In the practical discourse (including the political practice) there are some issues that can be identified and characterized in general as restrictions of the implementation of the “normative course” that is in opposition to assumptions regarding human nature. Here, the costs that could be increased by the state activity concerning the realization of purposes that will not be infringed on by the restrictions of the human nature are discussed above all (Etzioni, 1997, p 230). After Etzioni we can repeat the assumption concerning human nature that it consists of characteristics features shaped by biological needs (e.g., by the need to satisfy hunger) and by the experience of human socialization (e.g., child care). The author notes, and the observation can not be ignored, that the approach oriented on universal features of human nature that characterizes political philosophy stands in contradiction to the attitudes oriented on individual features. Etzioni gives as an example a differentiation that comes from the individual genetic determination (Etzioni, 1997, pp. 216-216). Comments on the category of human nature in political philosophy will be followed with some comments of the classic approaches. There are assumptions with indisputable historical significance. The systematic and characteristics of these approaches can be presented referring to the subject literature. After Etzioni we can distinguish some assumptions that make up the anthropological optimism, pessimism, and finally the establishment of human nature as a collection of properties emerging in the fight. The first of them are considered to be the core philosophy of the Enlightenment world view. It is assumed here that a man is inherently good and capable of shaping itself as a being full, complete. This assumption is preferred by the advocates of individualism, the apologists of progress, the forces of reason, science and technology as the key categories that shape community life - changing it for the better (Etzioni, 1997, pp. 215-216). Anthropological pessimism - the second of the approaches that in Etzioni systematic seems to be classic- includes assumptions according to which a man is violent, impulsive, irrational and sinful being. The virtues of a man, says Etzioni, must be instilled through indoctrination and control of human behavior (Etzioni, 1997, p 220). This approach is characteristic to the trends in political philosophy, which does not share the belief in progress, it depreciates the present and valorizes the glorious past – as a period in which the desirable virtues were practiced (Etzioni, 1997, S.220). Community is claimed as an appropriate to the practice of virtues. To fulfill duties and to displace the temptations of human nature through the control over them (control desire and willingness) is here the virtue. As a virtue can be also assumed being guided by the tradition and healthy superstitions (prejudgements), which are stronger than the pulse to which nature made ​​us vulnerable (Etzioni, 1997, p221). The last of the classic approaches to human nature can be reconstructed with the demands of the society organizations in the formula of the order based on voluntary, on the order that is equilibrated by respecting the autonomy of an individual. It is a dynamic approach to human nature. In the very nature a man would have been wild and uncouth, but capable of a virtuous life. Therefore, the assumption adopted in two approaches that are perceived as classic is combined here (Etzioni, 1997, p.221). 138 | In the introductory remarks there was mentioned the requirement (the warrant postulate) of compliance with nature in ethical discourse. In this form the category of human nature in ethics is present the most efficiently. In the subject literature it is emphasized that this requirement could have been regarded as ethical in the past. Today, it is not have such a character. Dieter Birnbacher who analyzed that ethical discourses paying special attention to the compatibility with nature as a criterion for evaluations of human behavior, he is of the opinion that the criterion to have been discredited. Any attempt to make them it moral criterion has to deal with criticism that is based on two key charges.The naturalistic fallacy is the first charge. Secondly, any attempt to base the ethics on the mentioned criteria must face allegations of unreliability of ethical discourse and ideology. An example would be the position of the Congregation for the Doctrine of the Faith, where the practices of birth control measures to prevention the pregnancy are defined as a method of unnatural and discarded. Another example can be nineteenth socio- Darwinism (social Darwinism) that sees in the nature the mandate for applying the right of stronger in a society (Birnbacher, 2006, p. 17). 2. The category of human nature in political and moral discourse Following these observations, we can move on to the second part of our discussion. They relate to the category of human nature in political and moral discourse. It should be noted that deliberation concerning the place of human nature assumption discussion we undertake in specific and concrete conditions. Thus, our analysis can not pass for a comprehensive treatment of the problem. However, these conditions limit only valid justification. Whether or not justification is exhaustive, it has no influence on the thesis that is proposed. We even have reason to believe that the conditions imposed on our reasoning support the clarity of this thesis; however, they are sufficient to justify it. According to this thesis, in the contemporary political and moral discourse (discourse on public morality), in Poland there is a dominated argument concerning the contradiction with human nature. This is because it is difficult to find a political debate where, for example, assumptions that make up the anthropological optimism are lively discussed. Such a discussion it would be a debate on the reduction or increase of state intervention. The debate on this issue was raised in the West, that the effect of competition or market mechanisms allows for the elimination of anti-social behavior and promotes / supports the behavior that reflect a “good” human nature, while the interventionism was presented as a source of dependence that do not allow for the expression of human nature (Etzioni , 1997, pp. 215-216). We identify easily political disputes in Poland where there is an argument concerning the contradiction with human nature, unnaturalness (in vitro fertilization, partnerships between persons of the same sex). It is difficult to find the instance of a dispute in the field of public morality, in which the argument appealing to the public was compliance with human nature. It is very interesting that, according to Birnbacher, who refers to the moral discourse in the West, demands of compliance with nature (naturalness) play in the moral discourse an immeasurably greater role than in the ethical discussion. In other words, what is considered natural obtains higher legitimizing power on the level of public morality than in ethics. This statement also concerns out moral assessments that means the attitude towards something that is worth to (Birnbacher, 2008, p 21). Of course, we can assume that in the Polish society there are preferred things, behaviors, etc., which we consider to be natural before those that we assumes artificial (Birnbacher, 2008, p 22). In other words, we prefer something that is natural. However, this preference is not expressed in the positive arguments (e.g., non-interference in the effects of natural risks) raised in moral discourse. We also know instances in which conflict with nature hits at feelings or moral convictions and inflames the public debate (civil partnerships). | 139 3. The context of the argument concerning the contradiction with nature It is important to begin with a few remarks organizing the second part of the discussion. The first observation concerns the circumstances in which there is an argument indicating the contradiction with human nature. The context there will be now discussed, with the belief that such a term more accurately reflects the temporariness of the conditions that we assume carrying the research on social changes (including progressive mental changes). In this context, the subject of discussion and its place where there is raised the argument concerning the contradiction with nature. The discussion is related to the positive legal regulation of civil partnerships, which would also include persons of the same sex. These civil partnerships are not illegal which means they are not prohibited by the law. There has not been established so far the legal norms, the subject of which is the conclusion of such a relationship, and accordingly its cessation or termination. There has not set up the rules of law relating to the rights and obligations of persons engaged in the selection of this form of living. It should be noted that the opponents of such changes argue against the “legalization” of these civil partnerships but they are not prohibited by the law. Also, proponents of these changes in the legal system determine in discussion such changes as “the legalization of civil partnerships” (Biedroń, 2013). However, it should be noted that “legalization” in this case is defined as the change in the status of the persons in these relationships in law (“the formalization of their marriage and the inclusion of (...) (it, the own note of P.P.) by the law regulations”) (Uzasadnienie, 2013, p 2). Individuals and organizations advocating for these changes in the law determine the subject of the discussion as “the introduction of” civil partnerships. However, there are not here well-established rules, it seems possible to note the trace of the regularity: the term of legalization of civil partnerships is relevant in the case of persons who are not married under the current law but tied with the set of relationships and some of which are married and are regarded by the legislature as constituting marriage relationships. Here, there are taken into account the relationship of emotional, spiritual and material character, in the case of the heterosexual couples also procreative which due to the intensity and the relationship between them are referred to be bonded. With this formula the charge of infringement on freedom of the establishment of relationships and discrimination against persons in such relationships can be connected. But we should not forget that the term of “legalization of civil partnerships” can shape the belief that the partnerships formed by pairs of the same sex are prohibited by the law. It seems that on this purpose the opponents of changes in the legal system use proposed draft laws on partnerships and set the rules for the implementation of the civil partnership act (rejecting the projects in toto). But there is no sociological research that could have been used to justify this assertion. However, it is significant the similarity of argumentation of the members of parliament against further proceeding of deputies reported bills and arguments against decriminalization of sexual relations between persons of the same sex. We confine ourselves here to the reference in the field of philosophy of law, which is a polemic of R. Dworkin with Lord Devlin’s concerning depenalization (Dworkin, 1998, p. 429-460). On account of this regard, the subject of discussion in which it was raised the objection of “contradiction with nature”, it will be described as a debate on the positive regulation of civil partnerships between persons of the same sex and abbreviated as a positive regulation of civil partnerships. The word “positive” is not an evaluative (it should not be read as a regulation abolishing discrimination against people living in relationships who are not married). The positive regulation is a change in the statutory law made by ​​ the authorized state body. It was mentioned that the argument concerning the contradiction with human nature had appeared in the discussion on positive regulation of civil partnerships. When it comes to the place where this argument was raised, it should be noted that it was not only a plenum body endowed with powers to legislate. In other words, the debate about the positive regulation of civil partner- 140 | ships between persons of the same sex involved many individuals and organizations active in the public sphere. It is very important that the charge indicating the contradiction with nature is also raised by the so called social opponents of legalization of civil partnerships. 4. The human behavior as violation of public morality The first observation connected with the above characteristics concerns the political discourse. In this discourse, the nature of the objection has been associated with the violation of public morality. In other words, the prohibition of behavior that is contrary to the nature is perceived in the sphere of ethics and it is claimed that the violation of this prohibition is condemned in society. It will be - according to this argument - a matter of public morality such as the fact of being in a same-sex civil partnership as a public figure. This fact will be negatively evaluated in moral discourse. Categorical prohibition of conflict with nature and a negative assessment of the violations refer here to the evaluation of the forms of co-existence of people behaving in a certain, “unnatural” way. It should be noted that the assessment in terms of public morality can be also seen in politicians’ reviews of behavior in the public sphere, for which the source is given in breach of morality or aesthetics. For example, the member of parliament - K. Pawlowicz - said during the session of the Parliament on the 24-th of January 2013 that “Projects [of the legalization, own note] (...) in exhibitionistic way allow to show off publicly the sexual preferences, which affect the sense of aesthetics and morality of most Poles” (Speeches, 2013). It could be taken into account that, that the legalization of same-sex partnerships will “flaunt” and will demonstratively show of the sexual preferences through behavior indicating a link between homosexuals. Even then, the sense of aesthetics and moralist will be infringed. So, various aspects of the behavior of two homosexual persons that can be indexed by the moral believes of public members (eg, positive emotional connection among people or socially approved terms of the bonds) are - in the politically entangled assessment - devalued from the perspective of the contradictions of human nature such that such sexual proclivities. It should be noted that this argument appeared in the first reading of parliamentary bills on civil partnerships (forms no. 552, 553, 554, 555, and no. 825) rather not in criminal law sanctions of sexual relations between persons of the same sex. It is also raised in critical positions of the ways in which gay people demonstrate in public spaces. Allegation of “obscenity” and “the lack of conformity with customs “of homosexual street demonstrators behavior is n not only against such behavior, but also to the admissibility of demonstrating of political demands by homosexuals (Düwell, 1999, passim; Świda-Ziemba 2010, p.110). The admissibility of raising the persons who are proponents of legalization of same sex partnerships and claims concerning their legal status in a public sphere is also negated. The above assumptions incline to the following notice. In political discourse there is a ban on contradiction with human nature in the sphere of public morality (in the moral discourse). It was referred to the moral practice of the majority. There were used such notions as the sense morality and the sense of esthetic which have an individual character, but here there were perceived as the “majority of a society”. It was also used the category of (common) decorousness, exhibitionism in the public sphere (the sphere of everybody and for everybody). The social opponents of the legalization of civil partnerships argued in a different way. Here, the difference concerns the structure of argument transferring the ban on behavior contrary to human nature in the area of ​​moral practice at the level of moral discourse (public morality). In the argument it appears the requirement of compliance with human nature, which gives it moral asset preservation. At the level of mentioned above statements of the opponents of the legalization of civil partnerships, determination and justification of conduct contrary to human nature, then exhausts indication of what is in compliance with the human nature. Often the argument here goes into the other direction: to determine such and such behavior as contrary to nature leads to | 141 the identification of behavior deemed to be natural. In particular, especially explicit statements were introduced by the people connected with the Catholic Church. Both the reasons for this requirement and determine the compliance rate behavior or practices that conflict with nature are judged negatively, then draws from the position of the Catholic Church. Caring for communication here could be dictate the abandonment of further justification, and even reminder that some behaviors lying in the nature of man is immoral, even if this assessment will loose the focus in the moral practice. This fact is not without importance for the assessment of the significance of the plea contrary to human nature on the basis of moral beliefs in society, most of which declares the Roman Catholic religion. Firstly, it requires careful assessment of the arguments that appeal to Christian theology. Secondly, it requires careful evaluation of the nature of the prohibition of conduct contrary to the nature of the practice of moral members of society declaring in most Roman Catholic religion. The thing is that the objection with human nature can be echoed in society, but whether moral sentiments shoots require a belief that certain behaviors required to comply with nature is understood by society as a moral imperative in the “science” of the Catholic Church. Otherwise, the question may pose a doubt if the contradiction with nature by the accident is not referring to dislike, phobias, feelings of disgust, etc.The interpretation that reject the suggestion favorable of the anti-legalization of civil partnerships would dictate to recognize a special moral sensitivity to contradiction of some but not all the elements of human nature. It is argued if the behavior or practices of the intimate sphere, therefore, private or behaviors that are interpreted based on the category of carnality. Such an assumption can be made ​​because of the authority of the Catholic Church and religious activity in the categorical assessment of partnerships as unacceptable include on account of lack of procreative relationship between the partners (and the assessment of in vitro fertilization, euthanasia and abortion). This interpretation does not allow to accept submission that the requirement or demand of compliance with nature (behavioral) is understood as an ethical imperative in the moral practice of society members and even less to assess its significance as a binding force in public morality. It seems obvious, as long as we remember that in the “religious consciousness” religious orders and prohibitions do not have their source in human nature, and we know that they were in the past, social justification / empowerment / rooted in assumptions about certain aspects of human nature (of which the purpose of making theology or religious recognition of natural law), while today more audible is stigmatizing the contradiction with nature (Mandry, 2002, pp. 48, 84, 260; Seidl, 2003, pp. 31-69). It may be justified by the fact that the voice of the Catholic Church led to the consignee different in many ways than a theologian or philosopher. This would explain the kind of “brevity” of the assessment of behavior or practices, manifesting in stigmatization of contradiction with nature. An important factor is also the fact that rated phenomena and practices are rooted and their original social context which is not controlled by the Catholic Church. As an example may serve behavior or practices derived from secularized Western societies and approved by the ideologically neutral states in Western Europe. In the case of certain behaviors or practices that make use of advances science (especially medical) is not without significance the fact that the areas of science, from which the discovery of passing into the realm of social practice, they are all controlled by the Catholic Church. Thus, the assessment of these behaviors and practices is consequent. In a way, the uncompromising of negative assessments compensates the imitative nature. By the way, it can be noted that we cannot eliminate that the argument focused on the conflict with nature (that what is contrary to is perceived immoral), contributes to the valorization of behaviors consistent with the nature in the public eye. In other words, it is possible that it affects moral practice in such a way that what is consistent with the nature rises to the rank of the source of moral imperatives and bans. It may include the behaviors that are considered immoral (selfishness, marital infidelity, etc., a process that enhance the results of the research, which puts a “scientifically” proven thesis in the style of the claim that a man is not naturally monogamous, man is by nature selfish, etc.). This piece of 142 | discussion it can be summed up by the assumption that the objection of human nature may but do not need to violate moral feelings. The claim that the behavior is unnatural for a man cannot let us understand the nature of the prohibition in the minds of individuals. We can conclude that the violation of this prohibition has become a matter of public morality in the political debate and through the authority of the Catholic Church that clergy publicly denounce violations of this prohibition. We have to accept that this is a significant ban in the minds of individuals. However, the negative evaluation of behavior affecting ideas on human nature, cannot be moral assessments, and if they are, the evaluation of these behaviors made ​​from the perspective of public morality can lose focus in the practice of moral members of society (stronger than the charge of immorality it cannot be because it would have been outside the category of morality through the determination of not falling into the negative moral feelings). We can assume that more behaviors we consider consistent with the nature in the area of moral practice, and less when we refer to the moral feelings that we considering the conflict with nature or arousing resentment or anger by means of that kind of conflict. 5. The strength of the argument concerning the contradiction with human nature It is reasonable to assume that the contradiction with human nature is a strong charge in the sense that it hits the beliefs and feelings of society. The strength of this claim can be inferred also from the context in which it appears. It is made up - which was noted in the beginning, arguing to adopt as a part of determining a neutral context – be the discussion concerning the positive regulation of civil partnerships. The argument indicating the contradiction with nature relates to a particular form of human coexistence. Therefore, it hits the society, leading to negative evaluations of projects concerning the form of life of citizens, the evaluation unit is typically associated with individual plans of life and the values that prioritize regarded as a matter of individual choice. So, we have to adopt a strong presumption that the assessment of this form of coexistence based on the belief that it is incompatible with the nature of the expression of preferences / tendencies. The charge indicating contradiction with nature also applies to individual behavior which is the “expression” of these tendencies. Thus, incompatible with nature are some sexual preferences, the behavior that is the emanation and compounds based on these tendencies. We can consider here again that sexual relations between persons of the same sex are not punishable, even with low legal awareness this fact cannot remain unnoticed. Similarly, in the case if that kind of situation we would have appealed to the legal awareness or to the beliefs about what is just and what is unjust. We mention this because in Western Europe dates back to such beliefs even when it comes to changes in the law, changes concerning the relationship based on emotional ties. As an example it can serve the amendment of law that was introduced in 2000 in the Republic of Austria. For the clarity, its object was the joint care of the child of divorced parents. The amendment emphasizes the joint care of the child, changing the current paradigm of indivisible care (according to the existing paradigm it was considered that the spheres of divorced spouses have been separated from each other, the amendment introduced in this field the modification concerning the prolongation of the relationship between divorced parents on the period after the divorce; the relationship between them is based on the obligation to care of the child and give him the support and creation of conditions for the development of the child’s personality, the principle of the child’s welfare requires avoidance of any conflict of the loyalty) (Holzlheitner, 2001, p 236). Elisabeth Holzleithner, who discusses the change in the context of justice in the relations between closely related persons, notes that the issue of relationships based on emotional ties becomes the object of interest of politics, and applies to it the demands of justice and when it is necessary breakdowns such relationships that have been settled. According Holzleithner the appeal to the demands of justice is not unfounded. The demands of justice are recognized in the | 143 context of limited resources and the conflicting interests. The demands of justice concern the allocation of these resources and the interests of the both sides. In this case, the ideal family situation based on the bond of love goes into a set of close relationships resulting from the division of the existing bond between spouses who are parents (feelings of the child to the parents and each parent to the child) (Holzleithner, 2001, pp. 236-237). The above arguments concerning justice in emotional relationships between closely related individuals also appeared in the debate about the positive regulation of civil partnerships. It was argued, among others arguments related to access to medical data the issue of rights to the flat in a housing cooperative when the partner is dead. So, there were varied needs identified (material and emotional), the conflict of interest associated with the resource, without which you cannot meet those needs, and finally to understand the consequences of the lack of fulfillment of the needs. Despite these argumentative efforts, referring to the sense of justice, it failed to convince that same-sex partnerships are not only based on specific and unnatural inclinations. We can consider whether the arguments appeal to a broader interpretation of the bond between people of the same sex is not absorbed at the social level by the incomprehensible complaint of discrimination in the areas identified by a broader interpretation of the bonds. But the fact is that this bond presents the example of the bond between husband and wife. The argument is built on the basis of analogy between the relationship of husband and wife. That relationship highlights the characteristics of connecting same-sex relationship, such as sustainability, economic or emotional bond. The charge indicating the contradiction with human nature did not concern those bonds: a predilection for the same sex does not prevent - according to this argument - the creation of a partnership built on the analogical relations as between a husband and a wife (analogical in terms of the content and intensity). These arguments have been marginalized by the charge indicating the contradiction with human nature as far as sexual attraction to persons of the same sex is concerned but also by legally regulated forms of their intercourse. It was assumed that the argument indicating the contradiction with human nature was a strong argument. The scale of its social repercussions was determined by the proponents of the positive regulation of civil partnerships. Well, if we had sought a counter argument to the contradiction with nature in their argumentation, it would have been the thesis that denies the contradiction with nature of sexual attraction to persons of the same sex. It would not have been it the conspicuous (bright and clear) negation of this criterion. Those, in favor of a positive regulation of civil partnerships answer to the argument indicating the contradiction with nature that of that sexual attraction to persons of the same sex is a naturally occurring phenomenon even among men. They refer to the category of human nature in the biological sense. It is subjected to anti - essentialist interpretation, according to which everything that is, it is considered as natural. It is everything that is typical but also that is marginal. If specific behavior or practices are more common it is not because they are better in some way, but they are more common (a custom). Split between what is natural and unnatural therefore vanishes only at the end of the argument (Hołówka, 2008, pp. 10-11). At the level of the project the justification of the positive regulation of civil partnerships they refer to the data of Główny Urząd Statystyczny which were collected in 2002 during the national register of population. There were isolated (for the first time) partners as a separate family type (Uzasadnienie, 2013). “Then, in 2002 almost 400 thousand people lived in Poland in non-marital partnerships, creating almost 200 thousand families, half of which raised the children” (GUS, 2010, p 159). The GUS data is not clear as far as the number of the same sex relationships is concerned “(Uzasadnienie, 2013). This is an argument even less clear and communicative as the complexities of anti – essentialist interpretation. 144 | 6. Conclusions In the above deliberations there was outlined the place that category of human nature had previously occupied in the political philosophy. Contemporary political philosophy is absorbed by the implications of the classical assumptions about the human nature (limitations of human subject). There were shown the difficulties that the ethical discourse has with that category. In the second part there was made a presentation of the significance of the category of human nature in political and moral discourse. The specificity of these discourses seems to be orientation on the conflict with human nature (not on conformity with the nature or the restrictions that a person is subordinated).Consideration of the second part drew on the debate on the positive regulation of civil partnerships. In conclusion, the author has to refer to the complaint, which could turn against the claims of this article. Well, disputes on positive regulation of civil partnerships can be considered marginal for the practice of democracy, and thus not so useful for understanding the categories of human nature in political and moral discourse. The opponents of positive regulation of civil partnerships claim as above. Ironically, the opponents of the regulation appealed to the public debate to the category of public morality. So, the question of the legislation has gained in importance. Opponents of the regulation of social partnerships emphasize the importance of the other problems faced by citizens in their daily lives. It is assumed here a hierarchy of phenomena that requires public debate. The place in the hierarchy of voters would decide the voice of voters (vox populi). Taking into account these two facts, we can assume that political assessment of the validity of claims taking by the voters is more crucial for this hierarchy. There will be important not only the care about the voters issues but also the care about the interests of the party. This is achieved in practice through mediations, negotiations, and compromises necessary to end disputes or conditions of political responsibility. These practices are evaluated in terms of which we associate with attention to public affairs. We think about electoral support that should be analyzed, which is speculated by the media that review the action of political parties. This support does not only consist of realization of material needs of different social groups. Support also generates a the representation or negation of a specific vision of the world, the own life, or the life of the total that is carried by a single person. Świda-Ziemba aptly notes that the full expression of individual freedom is not merely a matter of subjective needs and beliefs relating to the own self. The diversity goes beyond this narrow circled catalogue of the roots of expression and also includes “the area of social life” (Świda-Ziemba, 2010, pp. 111-112). We enter it with the own ideas of “appropriate standards”, defining the behavior of all people, patterns of life, the choice people make. Behaviors that do not fit into this vision, realization of the models of life that there are contrary to this vision, may be perceived as undermining the legitimacy of beliefs about the meaning of life, reducing the possibility of self-enslavement and subjugation (Świda-Ziemba, 2010, p 113). Many individuals care, as writes Świda-Ziemba, “their values and norms (often shared with the huge number of other people) have been implemented” (Świda-Ziemba, 2010, p 113). It results in considerable conflict for the practice of democracy. Their importance, like the importance of priority involved in the dispute because, cannot be measure similarly to economic concerns and evaluate appropriately for the category of that matter. The urgency of needs (fulfillment of the needs) that were not satisfied or delayed, that is raised by the political parties from opposition that show the negligence in economic or social policy, does not diminish the significance of beliefs that go beyond the own self. For this purpose, it was connected the positive regulation of civil partnerships with the public morality. | 145 References Biedroń R. (2013), Wypowiedzi na posiedzeniach Sejmu, Posiedzenie nr 32 w dniu 24-012013; http://www.sejm.gov.pl/Sejm7.nsf/wypowiedz.xsp?posiedzenie=32&dzien=2&wyp=134&view=1 Birnbacher D., (2006), Natürlichkeit, alter de Gruyter, Berlin New York Düwell M., (1999), Ästhetische Erfahrung und Moral. Zur Bedeutung des Ästhetischen für die Handlungsspielräume des Menschen, Verlag Karl Alber Freibung/München 1999 Dworkin R., (1998) Biorąc prawa poważnie, Warszawa Etzioni A., (1997). Die Verantwortungsgesellschaft. Individualismus und Moral in der heutigen Demokratie, aus dem Englischen von Ch. Münz, Campus Verlag, Frankfurt New York GUS., (2010), Główny Urząd Statystyczny. Rocznik Demograficzny., Warszawa, www.stat.gov.pl. Holzleithner E., (2001) Kein Fortschritt in der Liebe? Gerechtigkeit und Annerkennung in Nahbeziehungen [w:] Gerechtigkeit im politischen Diskurs, P.Kolleg (red.), Pasagen Verlag Wien Hołówka J., (2008) Słowo wstępne do eseju J.S.Milla O naturze, Warszawa Marsz Krucjaty., (2013, Marsz Krucjaty Różańcowej za Ojczyznę w Gdańsku w dniu 5 maja br.;http://www.tvn24.pl/maszerowali-w-obronie-rodziny-i-wartosci-katolickich-stophomodyktatowi,323413,s.html Mandry Ch., (2002), Ethische Identität und christlicher Glaube. Theologische Ethik im Spannungsfeld von Theologie und Philosophie, Matthias-Grünewald Verlag, Mainz Pawłowicz K., (2013). Sprawozdanie stenograficzne z 32. Posiedzenia Sejmu Rzeczpospolitej Polskiej VII Kadencji w dniu 23 stycznia 2013 r., Pawłowicz K., (2013 www) http://wyborcza.pl/1,75478,13293340,Zwiazki_partnerskie_w_ Sejmie___zaspokajajacy_sie_panowie__.html Seidl H., (2003), Über das Verhältnis von Philosophie und Religion. Beiträge zur Religionsphilosophie, Georg Olms Verlag, Hildesheim, Zürich, New York Swida-Ziemba H., (2010), Dylematy między wolnością wspólnota w demokracji liberalnej [w:] O tolerancji we współczesnej demokracji liberalnej , I. Jakubowska-Branicka (red.), Warszawa Uzasadnienie., (2013), Uzasadnienie do poselskiego projektu ustawy o związkach partnerskich, druk nr 552,; za http://www.sejm.gov.pl/sejm7.nsf/druk.xsp?nr=552 Wypowiedzi., (2013), Wypowiedzi na posiedzeniach Sejmu; posiedzenie nr 32 w dniu 24.01.2013; za http://www.sejm.gov.pl/Sejm7.nsf/wypowiedz.xsp?posiedzenie=32&dzien=2&wyp=137&view=1 146 | Katarzyna Badźmirowska – Masłowska The National Defence University of Warsaw Fighting against child sexual abuse and child sexual exploitation in Europe. Media and Internet perspective Abstract The article concerns the fighting against child sexual abuse and child sexual exploitation in Europe from media and Internet perspective. Firstly it presents the origin of comprehensive legal solutions within the scope of Council of Europe (COE) soft law (recommendations, resolutions, communications); complementary some European Union documents are mentioned. The documents reflect the universal standard of protection of children` s rights, as provided in Convention on the Rights of the Child (20.11.1989) and the Optional Protocol on the Sale of Children, Child Prostitution and Child Pornography (which entered into force on 18.01.2002). Then it shows the basic principles of COE Conventions: on Cybercrime (Budapest, 23.11.2001) and on the Protection of Children against Sexual Exploitation and Sexual Abuse (Lanzarote, 25.10.2007); also some basic principles of the directive 2011/92/EU of the European Parliament and of the Council of 13 December 2011 on combating the sexual abuse and sexual exploitation of children and child pornography, and replacing Council Framework Decision 2004/68/JHA is included. Sexual abuse and sexual exploitation of children, including child pornography, and solicitation of children for sexual purposes constitute serious violations of fundamental rights. Therefore they should subject to effective, proportionate and dissuasive penalties, specially in situations which are facilitated by the information technology, e.g. distribution, dissemination or retransmission of child pornography via websites. For the reason of the rapid development of the Internet and digital technology the problem exploded as the new communication environment is a ground for individuals to create, access and share child sexual abuse image worldwide, bringing the physical and psychological damages inflicted on child victim. Conclusions refer to the presentation of comprehensive challenges for the international cooperation in this field. The holistic approach covering the prosecution of offenders, the protection of child victims and prevention of the phenomena is envisaged. In particular problems of harmonized basic notions on international level as well as the age of sexual consent should be considered. Currently these issues remain within the discretion of Member States of COE/UE. Keywords: child sexual abuse and exploitation – development of new technologies impact – legal measures of protection – European level 1. Introduction Well-being of children and young adults (terms: children – young adults and minors, according to the terminology used in soft and hard law of Council of Europe and European Union are applied interchangeably) is of the greatest importance for presence and future development for any society. Sexual abuse and sexual exploitation of children, including child pornography, and solicitation of children for sexual purposes (‘grooming’) constitute serious violations of their dignity and fundamental rights, bringing the physical and psychological damages inflicted on victims. Basic standards of child protection included in Convention on the Rights of the Child (20.11.1989) confirms that every human being below the age of 18 years by reason of his [her] physical and mental immaturity, needs special safeguards and care, including appropriate legal protection, before as | 147 well as after birth. Minors have the right to freedom of expression (to seek, receive and impart ideas and information); but the right may subject to certain restrictions, including the protection them from harmful content. In particular States Parties are obliged to undertake all appropriate national and multilateral measures to prevent: the inducement or coercion of a child to engage in any unlawful sexual activity, the exploitative use of children in prostitution and in pornographic performances and materials (art. 34, 35). The Optional Protocol on the Sale of Children, Child Prostitution and Child Pornography (25.05.2000) provides the basic definitions of ‘child prostitution’, ‘child pornography’, ‘sale of children’. States` governments are obliged to criminalize and punish not only the offences but also all activities related to them such as delivering children for the purposes of sexual exploitation or even acceptance such behaviors. Child victims, taking into consideration their best interests, realizing within the scope of criminal justice system have to be supported by legal and other public services (medical, psychological, etc.). Prevention as well as combating the phenomenon is complex, because it is strictly linked with trafficking in human beings. Therefore, considering in particular the extent of various forms of sexual exploitation of minors special attention should be given to the structure, international networks, interconnections and links between sex industry and organized crime. In order to this, even taking the media and the internet perspective of the study, the abovementioned context should be in mind (see e.g. Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions: The EU Strategy towards the Eradication of Trafficking in Human Beings 2012–2016). Contemporary protecting minors became more difficult for the reason of the rapid development of the Internet and digital technology. The problem exploded as the new communication ‘environment’ is a ground for individuals to create, access and share child sexual abuse image worldwide. There is no doubt that: The proliferation of child pornography requires two preconditions. First there must be potential offenders who have an interest in viewing images of the sexual exploitation of children. Second, there must be the opportunity for these potential offenders to gratify their sexual interests, (…) Sexual exploitation of children has a long history and that the potential to develop [it] is more widespread then most people would like to acknowledge. Against this background, the Internet has provided unparalleled opportunity for this latent sexual interest to be acted on. There are undoubtedly many more child pornography images available now and many more individuals accessing those images than would have been the case had the Internet not existed. (…) The Internet, then, is not just a passive platform on which dedicated pedophiles access child pornography that they would have obtained in any case; the Internet is an active cause of child pornography (Wortley R., Smallbone S., 2012, p.15, see also: Badźmirowska- Masłowska K., Edukacyjne ... 2012, s. 446- 454). New communication technologies facilitate production, distribution, including retransmission and access to such content (e.g. via websites which ought to be removed and blocked). They exacerbated the problem of child pornography by increasing: the volume of the images and the efficiency of dissemination of them. Moreover the structure and system of communication protocols, domain names, internet servers and networks hinder the identification of the offenders who should subject to effective, proportionate and dissuasive penalties. The role of a new audiovisual media sector (linear and non-linear services) as well as internet are in the core of the problem. The primary characteristics of communication according to the new paradigm are as follows: interactivity and exchange of messages, meanings and roles, open and ready accessibility to channels to send and receive, multimediality, lack of central control and regulation of supply and choice, unlimited capacity, low or negligible transmission costs, no longer territorial in base (no fixed location), diversity and flux of control, content and uses, relative “undetermination” of direction, meaning, and possible consequences (McQuail D., 2013, p.13, see also: Poster M., 1999, p. 12-17, Krzysztofek K., 2006). 148 | The fighting against child sexual abuse and exploitation in Europe from media and Internet perspective requires different approach to the traditional broadcasting and new, specially on line audiovisual services, irrespective of a way they are distributed, vide mobile technology (e.g. Green Paper on the Protection of Minors and Human Dignity in Audiovisual and Information Services, COM (96) 483 final, 16 October 1996). Notwithstanding the basic standard, included in legal acts directed both to the combating on trafficking in human beings and protection of minors in media sector determines that abovementioned behaviors are illegal and subject to penal sanctions. The technical revolution in the early 1980s has leaded to create a new common standard in broadcasting in Europe. Within its scope all items of program services should not contain any kind of pornography content (art. 7.1. of European Convention on Transfrontier Television – 5.05.1989, art. 22 of Council Directive 89/552/EEC and art. 22 and 22b of its revision of 30 June 1997 – 97/36/ EC) as they might seriously impair the physical, mental or moral development of minors; they are not forbidden for adults but should not be accessible by children, because they are harmful for their proper development. The ban has been sustained for linear services in directive 2010/13/EU of the European Parliament and of the Council of 10 March 2010 on the coordination of certain provisions laid down by law, regulation or administrative action in Member States concerning the provision of audiovisual media services (art. 27 of Audiovisual Media Services Directive). Regarding non-linear services: Member States shall take appropriate measures to ensure that ondemand audiovisual media services provided by media service providers under their jurisdiction which might seriously impair the physical, mental or moral development of minors are only made available in such a way as to ensure that minors will not normally hear or see such on-demand audiovisual media services (art.12, see: Badźmirowska- Masłowska K., Ochrona …, 2012, p. 71 - 119). Current challenges in the field of combating sexual exploitation and sexual abuse of children are strictly connected with a technological revolution. Thus, which must be underlined, it required the holistic and comprehensive approach. The legal solutions definitely should be transferred at international level; nowadays it is being implemented at European – regional one. The review of the documents of in particular Council of Europe could help to assess current standards and might facilitate determining the issues which necessary should be questioned to achieve the greater level of children` protection, via finding the adequate measures (including legal) to strengthen it. 2. Fighting against child sexual abuse and child sexual exploitation in Europe. The origin of the contemporary solutions Considering the problem of sexual exploitation and sexual abuse of children Council of Europe (COE), as a continental leader of protection of human rights, for last twenty years has issued a lot of important ‘soft law’ documents, both within the scope of trafficking in human beings and of media divisions. In recommendation No. R(91)11 on sexual exploitation, pornography and prostitution of and trafficking in, children and young adults the Committee of Ministers, underlining that the early sexual abuse, may be detrimental to a child’s and young adult’s psychosocial development, considered that the problem has assumed new and alarming dimension, which may be solved successfully only at international level (see also e.g.: Recommendation 1065 (1987) of the Parliamentary Assembly of the Council of Europe on the traffic in children and other forms of child exploitation; Resolution No. 3 on sexual exploitation, pornography and prostitution of, and trafficking in, children and young adults of the 16th Conference of European Ministers of Justice (Lisbon, 1988); Recommendation No. R (89) 7 concerning principles on the distribution of videograms having a violent, brutal or pornographic content). Therefore the harmonization of national legislation of member states of COE was seen as the way to improve the coordination and effectiveness of undertaken actions. The Committee also stressed that education, collection and exchange information ought to be treated as general measures with a view to tackling this | 149 problem; the development of cooperation between the police and all public and private organization handling cases of sexual abuse of children was in the core of the common European activity. In particular appropriate documentation should be available to parents and adequate educational information should be included in school programs. Public awareness of the devastating effects of sexual exploitation of minors requested, specially non-governmental organization acting in the field efforts. Media were encouraged to contribute to the general awareness and to adopt appropriate rules of conduct. The need to combat illegal use of the technical possibilities of the Internet, specially concerning offences against children, trough the self-regulatory systems, effective codes of conduct, hot-line reporting mechanisms available to the public as well as filtering mechanisms and setting up of rating systems in the middle nineties was also underlined by EU in e.g. in resolution of the Council and of the Representatives of the Governments of the Member States, meeting within the Council of 17 February 1997 on illegal and harmful content on the Internet (97/C 70/01) which recalled: the conclusions on paedophilia and the Internet of the Council held on 27 September 1996, which agreed to the extension of the Working Party established following the Bologna meeting to representatives of Ministers of Telecommunications as well as to access and service providers, content industries and users with a view to presenting concrete proposals/ possible measures taking account also of United Kingdom measures to combat the illegal use of Internet or similar networks, in time for the Council of 28 November (…) [and] the declaration of the Council and of the Ministers for education meeting within the Council of 20 December 1996 on protection of children and countering paedophilia. Media were also expected to prevent any presentation of the picture of the child in an erotic context. Police and welfare services had to put a special attention to prevent, detect and investigate of the offences and to allocate to these activities sufficient means. In order to provide legal, medical, psychological, social assistance to minors who were at risk or who have been victims of sexual exploitation public and private initiatives e.g. to set help-lines and centers should be supported. Children` dignity, rights, privacy and interests should be ensured within the internal penal law and criminal procedures; in particular the disclosure of any information that could lead to their identification ought to be avoided and the conditions at hearings involving children (as victims or witnesses) should diminish the traumatizing effects. The production and distribution of pornography involving children and any other related behaviors should be criminalized and penalized, taking account the gravity of the offence committed. As the phenomena is strictly linked with the trafficking in children and young adults, the international cooperation had been seen as necessary, including the introduction of rules on extraterritorial jurisdiction in order to allow the prosecution and punishment of nationals who have committed the offences outside the national territory. Members States were obliged to: 4. establish links with international associations and organisations working for the welfare of children and young adults in order to benefit from data available to them and secure, if necessary, their collaboration in combating sexual exploitation; 5. take steps towards the creation of a European register of missing children (see also: Resolution of the Assembly 1099 (1996) on the sexual exploitation of children). The next recommendation Rec(2001)16 on the protection of children against sexual exploitation confirmed abovementioned postulates (see also: Recommendation No. R (2000) 11 on action against trafficking in human beings for the purpose of sexual exploitation). Besides, it stressed the potential role of the media, specially the Internet, in the spreading as well as in the prevention of this phenomenon. Producing child pornography for the purpose of its distributing, transmitting, offering or making it available, procuring and possessing should be generally treated as serious offences. Media were encouraged to be involved in creating general awareness, in particular by informing public opinion about negative consequences and threats of sexual exploitation of minors. They were also expected to develop rules of conduct and self-regulations for different kind of media (C. Palzer, 2002, 2003; Final Report, Study on Co-Regulation Measures in the Media Sector, 2006). 150 | Internet service providers (ISP) should work alongside the authorities to identify and to combat the various means through winch the Internet can be used for the purpose of sexual exploitation of children (24). Law-enforcement agencies ought to be able to use connection data to trace suspicious content and: subsequently locate, identify and question those who edit or disseminate child pornography or encourage or incite child prostitution (25). The creation of hotlines could help citizens to report cases of child pornography as well as incitement to child prostitution on the website and thus enabled the appropriate law enforcement to take an adequate action (see also the recommendation R(2001)8 on self-regulation concerning cyber content (self-regulation and user protection against illegal or harmful content on new communications and information services). 3. The convention on cybercrime (Budapest Convention) The Convention on Cybercrime (Budapest, 8.11.2001) was an important step in fighting against sexual exploitation and sexual abuse of children and a way to achieve the greater unity between members states of COE in this field. The Committee of Ministers: Conscious of the profound changes brought about by the digitalization, convergence and continuing globalization of computer networks as well as concerned by the risk that electronic information and networks may be used for committing criminal offences or for facilitate them has underlined the necessity for international cooperation between states and private industry in combating cybercrimes. Concerning offences related to child pornography member states have been obliged to adopt legislative and other necessary measures to establish the following conducts generally as criminal offences (when committed without right, thus with some exclusions as regarding medical, scientific or similar merit): a. producing child pornography for the purpose of its distribution through a computer system – which has been treated as the base of fighting against described threats at their source; b. offering or making available child pornography through a computer system – which is intended to cover: soliciting others to obtain child pornography (offering) or placing of the pornography on line for the use of others (including the creation or compilation of the hyperlinks in order to facilitate access); c. distributing [an active dissemination of the material] or transmitting [sending] child pornography through a computer system; d. procuring child pornography through a computer system for oneself or for another person – which means actively obtaining it, e.g. by downloading; e. possessing child pornography in a computer system or on a computer-data storage medium – such as a CD-Rom, as the possession stimulates demand for such material (art. 9). An effective way to curtail the production of child pornography is to attach criminal consequences to the conduct of each participant in the chain from production to possession (point 98 of the Explanatory Report). It is important to stress that Parties were obliged to criminalize and penalize the intentional conducts, therefore liability was depended on perpetrator`s intention. It is not sufficient, for example, that a service provider served as a conduit for, or hosted a website or newsroom containing such material, without the required intent under domestic law in the particular case. Moreover, a service provider is not required to monitor conduct to avoid criminal liability (point 105 of the Explanatory Report). The term ‘child pornography’ was defined as pornographic material, which visually depicts a minor or a person appearing to be a minor, engaged in sexually explicit conduct and realistic | 151 images representing a minor engaged in sexually explicit conduct, such as generated entirely by the computer. It is governed by national standard within the scope of the individual definition of public morals but it should cover at least real or stimulated: A ‘sexually explicit conduct’ covers at least real or simulated: a) sexual intercourse, including genital-genital, oral-genital, anal-genital or oral-anal, between minors, or between an adult and a minor, of the same or opposite sex; b) bestiality; c) masturbation; d) sadistic or masochistic abuse in a sexual context; or e) lascivious exhibition of the genitals or the pubic area of a minor (point 100 of the Explanatory Report). Defining a term of ‘minor’, States Parties generallyinclude persons under 18 years old, but they might require a lower age-limit, which have to be not less than 16 years. Member States, as responsible for eradicating the dangers posed to children by the Internet, in the light of its present and future impact, have been asked to acquire the means to combat child pornography and to set up a special sufficiently staffed and equipped police unit comprising members trained in children’s rights and new technologies. Modernizing criminal law provisions might strengthen children protection and corresponded to an international trend that seeks to ban child pornography. With the ever-increasing use of the online technologies as the primary instrument for trading, transferring such images the international convention was essential to fight new forms of the problem. In Resolution 1307 (2002) on sexual exploitation of children: zero tolerance there was mentioned that since the beginning of combat the sexual exploitation of children all international governmental and non-governmental organizations concerned, have been striving to devise an arsenal of measures and proposals to eradicate this scourge. It was marked again that: The problem of sexual abuse of children is aggravated when the Internet is used as a medium, because of the increasing number of users, its anonymity and ease of use, and the contacts it permits (3). Zero tolerance has been an approach to crime committed against children, which meant that the main objective was to allow no crime to go unpunished, to give the priority for comprehensive helping child victims and to use every means to prevent further offences, including developing information and prevention within school schedules and tackling the problem by parents, caregivers, teachers, police or clergy. The cooperation with EU and in particular Europol in its task of combating trafficking in human beings, including child pornography was felt necessary (see: Council of Europe Convention on Action against Trafficking in Human Beings and its Explanatory Report – Warsaw, 16.V.2005) as well as liaison with media and internet professionals in order to develop the appropriate technical and legislative means for the protection of children against illicit and harmful content related to sexual exploitation. In Recommendation Rec(2006)12 of the Committee of Ministers to member states on empowering children in the new information and communications environment they were obliged to ensure that children would required adequate knowledge and skills enable them to better understand and deal with illicit or harmful: content (such as pornography) or behaviors (such as grooming). It might help in promoting a greater sense of confidence, well-being and respect for others in the new information and communications environment (see also: Recommendation Rec(2007)11 of the Committee of Ministers to member states on promoting freedom of expression and information in the new information and communications environment; Declaration of the Committee of Ministers on protecting the dignity, security and privacy of children on the Internet (20.02.2008), Council Resolution, of 1 March 2002 on the protection of consumers, in particular young people, through the labelling of certain video games and computer games according to age group and the relevant ‘soft law’ of EU: Council Recommendation 98/560/EC of 24 September 1998 on the development of the competitiveness of the European audiovisual and information services industry by promoting national frameworks aimed at achieving a comparable and effective level of protection of minors and human dignity, Recommendation of the European Parliament and of the Council of 20 December 2006 on the protection of minors and human dignity and on the right of reply in relation to the competitiveness of the 152 | European audiovisual and on-line information services industry). 4. Convention on the protection of children against sexual exploitation and sexual abuse (Lanzarote Convention) The most important European act concerning the issue is undoubtedly Council of Europe convention on the protection of children against sexual exploitation and sexual abuse (Lanzarote, 25.10.2007). It was the first international treaty which defined abovementioned behaviors as criminal offences, which requested the comprehensive system of prevention and combating the phenomenon. In particular it has criminalized the use of new communication technologies to sexually harm or abuse minors. The sexual exploitation and sexual abuse of children have grown to worrying proportions at both national and international level, in particular as regards the increased use by both children and perpetrators of information and communication technologies (ICTs), and that preventing and combating such sexual exploitation and sexual abuse of children require international co-operation. The purposes of the convention have been as follows: prevent and combat the phenomenon, taking into account the importance of national and international liaison within this scope and protect the rights of child victims (art. 38). Due to this States Parties were obliged to take the necessary legislative and other measures to prevent all forms of sexual exploitation and sexual abuse of children and to protect them. Inter alias they had to prevent or prohibit the dissemination of materials advertising the offences prepare recruitment, to encourage general public awareness (including awareness raising campaigns) of the protection and rights of children, to provide training for staff working in contact with children, to prepare preventive intervention programs for persons who fear that they might commit any of the offences; children should be ensured to received proper information on the described risks and threats within the scope of primary and secondary school programs (chapter II, IV, V). The states ought to adopt protective measures and assistance to victims (art. 14, 31), reporting suspicion of sexual exploitation or sexual abuse system (art.12), including introducing or developing the help-lines points (art. 13). Due to respect for the freedom of the press, media should be encouraged to provide appropriate information regarding all aspect of sexual exploitation and sexual abuse of minors (art. 9.3). According to the convention provisions, the following intentional conduct should be criminalized: sexual abuse (art. 18), offences concerning: child prostitution (art. 19), child pornography (art. 20), the participation of a child in pornographic performances (art. 21), corruption of children (art. 22), solicitation of children for sexual purposes (art. 23); the term ‘intentional’ is left to the internal law. When assessing the constituent elements of offences, the Parties should have regard to the case-law of the European Court of Human Rights. In the M.C. v. Bulgaria judgment of 4 December 2003, ECHR underlined: persuaded that any rigid approach to the prosecution of sexual offences, such as requiring proof of physical resistance in all circumstances, risks leaving certain types of rape unpunished and thus jeopardising the effective protection of the individual’s sexual autonomy. In accordance with contemporary standards and trends in that area, the member States’ positive obligations under Articles 3 and 8 of the Convention must be seen as requiring the penalisation and effective prosecution of any non-consensual sexual act, including in the absence of physical resistance by the victim (§ 166). Besides the Court noted as follows: Regardless of the specific wording chosen by the legislature, in a number of countries the prosecution of nonconsensual sexual acts in all circumstances is sought in practice by means of interpretation of the relevant statutory terms (“coercion”, “violence”, “duress”, “threat”, “ruse”, “surprise” or others) and through a context-sensitive assessment of the evidence (§ 161); (see: Płatek M., 2011). Sexual abuse has meant engaging in sexual activities with a child who, according to the relevant provisions of internal law, has not reached the legal age for sexual activities, determined at national level; regulation of consensual sexual activities between minors are left for national | 153 legislation. It also might be qualified where use is made of coercion, force, threats or abuse is made of a recognized position of trust, authority or influence over the child, including the parental, caretaking, educating, medical, therapeutic, etc. roles, or of a particularly vulnerable situation of the child, notably because of a mental or physical disability or a situation of dependence. The term ‘lack of consent’ applied to the cases where the child is over the abovementioned age only. Child prostitution included recruiting, causing, coercing a child to participate in prostitution; also profiting from or otherwise exploiting a child for such purposes and having recourse to child prostitution (art. 19). The demand for child prostitutes has been increasing thus abovementioned provisions required criminal sanctions for both the recruiters and even occasional users of it. Benefit was widely defined as monetary payment, and any other kind of remuneration (e.g. drugs, clothes, food). The scope and definition of offences concerning child pornography are based on Council of Europe’s provisions of Convention on Cybercrime (abovementioned art. 9, see also points 141, 142, 143 of the Explanatory Report). Therefore criminalized are: producing child pornography, offering or making available child pornography (covering the creating child pornography site), distributing (active dissemination of the material) or transmitting child pornography (sending the images through a computer network or selling, giving), procuring child pornography for oneself or for another person (actively obtaining, e.g. by downloading computer data), possessing child pornography (by whatever means, such as magazines, DVDs or mobile phones). However Each State, being aware of rapid technological development, might reserve the right not to apply the production and possession of pornographic material: consisting exclusively of simulated representations or realistic images of a non-existent child and involving children who have reached the age of set in application of Article 18, paragraph 2, where these images are produced and possessed by them with their consent and solely for their own private use (art. 20.1-3). Knowingly obtaining access, through information and communication technologies, to child pornography is a new element introduced in the convention, directed to find those who views child images on-line by accessing child pornography sites but without downloading and: who cannot therefore be caught under the offence of procuring or possession in some jurisdictions. To be liable the person must both intend to enter a site where child pornography is available and know that such images can be found there. Sanctions must not be applied to persons accessing sites containing child pornography inadvertently. The intentional nature of the offence may notably be deduced from the fact that it is recurrent or that the offences were committed via a service in return for payment (point140 of Explanatory Report). Besides In the present Convention, the offence is not restricted to child pornography committed by the use of a computer system. Nevertheless, with the ever-increasing use of the Internet this is the primary instrument for trading such material. It is widely believed that such material and on-line practices play a role in supporting, encouraging or facilitating sexual offences against children (art. 20.4 and point 134 of the Explanatory Report). Regarding the offences concerning the participation of a child in pornographic performances no definitions have been provided, taking into consideration the character and nature of the performance and individual approaches of States Parties (art.21). Intentional recruiting, causing, coercing a child into participating in pornographic performances, profiting from such performances or otherwise exploiting a child for such purposes and knowingly attending them should be criminalized. The provisions were directed to penalize persons who organized or participated as a spectator in live performances of children involved in sexually explicit conduct. Depending on States, this provision may also cover the situation of persons who are spectators of pornographic performances involving the participation of children through such means of communication as webcams (point 148 of the Explanatory Report). 154 | States should also criminalized an intentional causing, for sexual purposes, of a child who has not reached the legal age for sexual activities set by the national authorities, to witness sexual abuse or sexual activities, even without having to participate. Corruption of children was a new crime as even only watching sexual acts could result to the psychological harm, with the risk of serious damage to their personality, including a distorted vision of sex and of personal relationships (point 153 of the Explanatory Report). New offence – solicitation of children for sexual purposes (‘grooming’, which refers to the preparation of a child for sexual abuse, motivated by the desire to use the child for sexual gratification), has not been presented in former existing international instruments in the field (art. 23). Intentional proposal, through information and communication technologies of an adult to meet a child who has not reached the legal age for sexual activities and for the purpose of committing any of the sexual offences against him or her, where this proposal has been followed by material acts leading to such a meeting (e.g. the perpetrator arriving at the meeting place) ought to be criminalized and penalized. The convention concerns electronic communications forms of grooming (the Internet, mobile phones, etc.). This provision was the reflection of increasing phenomenon of children being sexually harmed in meetings with adults whom they had initially encountered in cyberspace, specifically in Internet chat rooms or game sites (point 155 of the Explanatory Report – see also: Resolution 1530 (2007) on child victims: stamping out all forms of violence, exploitation and abuse; Recommendation CM/Rec(2009)10 of the Committee of Ministers to member states on integrated national strategies for the protection of children from violence; Recommendation CM/Rec(2009)5 on measures to protect children against harmful content and behaviour and to promote their active participation in the new information and communications environment, and: Framework for Safer Mobile Use by Younger Teenagers and Children SIPMC 07 2; G. Goggin, 2006) . In recent years pornography has became a highly lucrative business, specially due to the increasing role of the social media and Internet networks in organized and individual producing and distributing such images. In a resolution 1835 (2011) Violent and extreme pornography the Assembly noted the great disparities between member states in the degree of regulation this issue from on total to hardly any prohibition, even with regard to its violent and extreme forms. As regards the protection of minors members states were called in particular to step up their efforts to combat child pornography, to introduce the compulsory classification of all video games, including pornographic and violent games, and make their sale and distribution conditional upon receiving clearance from the relevant classification body (9.2.4). In Resolution 1834 (2011) Combating “child abuse images” through committed, transversal and internationally co-ordinated action the Parliamentary Assembly, concerned about the high prevalence of such offences in contemporary Europe, and the way they are facilitated by the anonymous Internet and other information and communication technologies, underlined that: “Child abuse images” or “child pornography” are not just images. Both expressions refer to a series of crimes, from the solicitation, corruption or trafficking of children (…) for sexual purposes to the distribution, collection and consultation of images of the abuse committed, over various forms of sexual abuse perpetrated on children – sometimes even causing their death. (…) Child abuse images are not only the result and visual depiction of abuse, but may also incite new crimes and thus become a “multiplier” of the sexual abuse and exploitation of children (p.3-4; See: Recommendation CM/Rec(2009)5 of the Committee of Ministers to member states on measures to protect children against harmful content and behaviour and to promote their active participation in the new information and communications environment; Recommendation 1882 (2009) The promotion of Internet and online media services appropriate for minors; Recommendation CM/Rec(2009)5 of the Committee of Ministers to member states on measures to protect children against harmful content and behaviour and to promote their active participation in the new information and com- | 155 munications environment and: Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions on the protection of consumers, in particular minors, in respect of the use of video games - 22 April 2008, Protecting children from harmful content). Nowadays it is extremely difficult to effectively prosecute offenders and not easier to identify and help children-victims. Thus the Assembly called member states for committed, transversal and internationally co-ordinated action to fight all types of offences related to child abuse images, intended to criminalizing child abuse images in all member states of the COE, by in particular signing and ratifying the Budapest and Lanzarote conventions, strengthen their relevant national legislation, develop comprehensive national policies tackling the issue with a clear ‘victim-centred’ approach, including child- friendly justice systems and set up efficient mechanisms to interrupt the online distribution of child abuse images, with rapid removal of illegal content and blocking the websites. The effective dialogue with public (including public authorities) and private subjects concerned at national and international level should be provided from ‘multi-stakeholder approach’. Minors, their families have to be empower to protect themselves whenever possible. Also the media awareness ought to be strengthen, and make society as a whole aware of the impact and dangers of an increasing “sexualisation” of children in the media (sea also: Council of Europe campaign to stop sexual violence against children) It is important to add that according to the principles set out in art. 6.1. of the Treaty on European Union (TEU), and art. 24.2 of the Charter of Fundamental Rights of the EU and to the clear priority to combating the sexual abuse and sexual exploitation of minors, including child pornography, the European Parliament and the Council issued a directive on combating the sexual abuse and sexual exploitation of children and child pornography, and replacing Council Framework Decision 2004/68/JHA (2011/92/EU). It is important to stress that it is fully align with a directive 2011/36/EU of the European Parliament and of the Council on preventing and combating trafficking in human beings and protecting its victims (see also: The Commission’s communication Towards a general policy on the fight against cyber crime, aimed at strengthening operational law enforcement cooperation in the field of online child sexual abuse material, improving international cooperation; The Stockholm Programme — An open and secure Europe serving and protecting citizens – p.4.4.3. Sexual exploitation of children and child pornography and Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions The EU Strategy towards the Eradication of Trafficking in Human Beings 2012–2016, Brussels). The directive 2011/92/EU confirms the these serious criminal offences are increasing an spreading through the use on new communication technologies, which require a comprehensive approach covering the prevention of the phenomenon, prosecution of offenders and protection of child victims; the perpetrators should be subject to effective, proportionate and dissuasive criminal penalties, according to national legislation of EU member states. Generally the directive 2011/92/EU duplicates the COE standards, included in Lazarote convention within this scope. Additionally it provides measures against websites containing or disseminating child pornography, obliging states to take the necessary ones to ensure: 1) the prompt removal of web pages containing or disseminating child pornography hosted in their territory and to endeavour to obtain the removal of such pages hosted outside of their territory and to 2) block access to web pages containing or disseminating child pornography towards the Internet users within their territory; the restriction must be limited to what is necessary, proportionate and set by transparent procedures (art. 25). 156 | 5. Conclusions The raising problem of sexual exploitation of children and their sexual abuse requests the comprehensive, holistic approach, covering the prevention, identifying the offences, prosecution of their offenders and protection of their victims; deep cooperation between European countries in common fight against this phenomenon is envisaged. Contemporary, the harmonization of the legal provisions at international level concerning the basic notions should be considered as well as the age of sexual consent; currently these issues remain within the discretion of member states of COE/UE. Development of Internet services effects the growing availability of child pornography, therefore effectiveness in combating describing offences request the global liaison within the worldwide agreement between public and private participants representing different sectors of new communication technologies. According to the abovementioned remarks, the Global Alliance for combating sexual abuse of children online initiative, which was launched on 5th December 2012 might be an interesting proposal for wide international cooperation. It aims to unite efforts around the world to more effectively fight online sexual crimes against minors and should be treated as a positive action intended to limit the described offences. It gathers about 50 countries represented mainly by the ministers of the Interior and of Justice. According to the Declaration on the Launch of the Global Alliance against child sexual abuse online (Brussels, 5 December 2012): 1) child sexual abuse online, a substantial problem worldwide, is a crime that is ubiquitous and knows no borders; that child pornography images circulate easily across jurisdictions, and efforts to reduce such circulation have failed to produce satisfactory results to date; that child pornography offenders are increasingly operating in international online groups that use sophisticated technologies and security protocols to frustrate the efforts of law enforcement to investigate their crimes; and that different laws and policies across jurisdictions also have created law enforcement vulnerabilities that these international offenders are exploiting, 2) these crimes have a truly worldwide dimension, must be addressed as such, and require a genuinely global effort to combat them, prosecute offenders, protect victims and prevent new crimes; that these efforts require specific commitments from national authorities and need to be complementary and to support existing international initiatives. The shared policy targets of the Global Alliance are as follows: 1) Enhancing efforts to identify victims, whose sexual abuse is depicted in child pornography, and ensuring that they receive the necessary assistance, support and protection; 2) Enhancing efforts to investigate cases of child sexual abuse online and to identify and prosecute offenders; 3) Increasing public awareness of the risks posed by children’s activities online, including the self-production of images, in order to reduce the production of new child pornography; and 4) Reducing the availability of child pornography online and the re-victimization of children. The operational goals aim to reach the abovementioned targets, by: 1) increasing the number of identified victims in the International Child Sexual Exploitation images database (ICSE) managed by INTERPOL; 2) establishing the necessary framework for the criminalization of child sexual abuse online and the effective prosecution of offenders; 3) improving joint efforts of law enforcement authorities across Global Alliance countries; 4) developing or supporting appropriate public awareness campaigns or other educational measures; 5) sharing best practices among Global Alliance countries; 6) encouraging participation by the private sector in identifying and removing known child pornography material located in the relevant state, and 7) increasing the speed of notice and takedown procedures as much as possible without jeopardizing criminal investigations. The prevention and combat against sexual exploitation and sexual abuse of children seek to strengthen protective measures for children, by in particular modernizing criminal law provisions within the scope of international standard to more effectively circumscribe the use of computer systems in the commission of sexual offences against minors. The UN convention concerning is- | 157 sues described in this study is envisaged. References Badźmirowska – Masłowska K., Edukacyjne aspekty bezpieczeństwa nowych technologii komunikacyjnych dla małoletnich w świetle Strategii Unii Europejskiej na rzecz lepszego Internetu dla dzieci (2012) – Journal of Modern Science 3(14)2012, s. 433- 473 Badźmirowska- Masłowska K., Ochrona dzieci i młodzieży przed negatywnym wpływem mediów audiowizualnych w świetle dyrektywy o audiowizualnych usługach medialnych (2010/13/UE), w: Przestępczość nieletnich - teoria i praktyka, red. S. Ćmiel i J. Zawisza, Józefów 2012, s. 71119 Goggin G., Cell Phone Culture: Mobile Technology in Everyday Life, Londyn 2006 Gronowska B, Jasudowicz T., Mik C., O prawach dziecka, Comer, Toruń 1994 Krzysztofek K., Status mediów cyfrowych: stare i nowe paradygmaty, Global Media Journal-Polish Edition, 1/2006 McQuail D., Reflections on Paradigm Change in Communication Theory and Research, International Journal of Communication 7 (2013) Palzer C., Co-regulation of the Media in Europe: European Provisions for the Establishment of Co – Regulation Frameworks, “IRIS plus”, Legal Observations of The European Audiovisual Observatory, June 2002 Palzer C., Horizontal Rating of Audiovisual Content in Europe. An Alternative to Multi-level Classification? Płatek M., Pozorna ochrona dziecka przed wykorzystaniem seksualnym (po nowelizacji k.k.), Państwo i Prawo 2/2011 Poster M., Underdetermination. New Media and Society, 1(1) 1999 Wortley R., Smallbone S., Internet Child Pornography: Causes, Investigation, and Prevention, New York: Praeger Publishing, 2012 Basic documents UN documents Convention on the Rights of the Child, adopted and opened for signature, ratification and accession by General Assembly resolution 44/25 of 20 November 1989, http://www.ohchr.org/en/ professionalinterest/pages/crc.aspx (28.06.2013) The Optional Protocol on the Sale of Children, Child Prostitution and Child Pornography; adopted and opened for signature, ratification and accession by General Assembly resolution A/ RES/54/263 of 25 May 2000, http://www.ohchr.org/EN/ProfessionalInterest/Pages/OPSCCRC. aspx (28.06.2013) COE documents Convention on Cybercrime (Budapest, 8.11.2001), http://conventions.coe.int/Treaty/EN/Reports/ Html/185.htm; Explanatory Report, http://conventions.coe.int/Treaty/EN/Reports/Html/185. htm (15.04.2013) Convention on the protection of children against sexual exploitation and sexual abuse (Lanzarote, 25.10.2007), http://conventions.coe.int/Treaty/Commun/QueVoulezVous. asp?NT=201&CL=ENG (15.04.2013) 158 | European Convention on Transfrontier Television – 5.05.1989; Protocol amending the European Convention on Transfrontier Television Strasbourg, 1.X.1998 Since its entry into force on 1 March 2002, this Protocol forms an integral part of the Convention (ETS No. 132), http://conventions.coe.int/Treaty/en/Treaties/Html/171.htm (20.05.2013). All recommendations: List of Recommendations and Resolutions adopted by the Parliamentary Assembly of the Council of Europe in the Media field, http://www.coe.int/t/dghl/standardsetting/media/Doc/PACE_en.asp List of Recommendations and Resolutions adopted by the Committee of Ministers, http://www. coe.int/t/dghl/standardsetting/media/ (21.05.2013). Recommendation No. R(91)11 on sexual exploitation, pornography and prostitution of and trafficking in, children and young adults, adopted by the Committee of Ministers on 9 September 1991 at the 461st meeting of the Ministers’ Deputies Recommendation Rec(2001)16 on the protection of children against sexual exploitation, adopted by the Committee of Ministers on 31 October 2001 at the 771 s` meeting of the Ministers Deputies Recommendation Rec(2006)12 of the Committee of Ministers to member states on empowering children in the new information and communications environment. Adopted by the Committee of Ministers on 27 September 2006 at the 974th meeting of the Ministers’ Deputies. Resolution 1307 (2002) on sexual exploitation of children: zero tolerance, adopted by the Assembly on 27 September 2002 Resolution 1835 (2011) Violent and extreme pornography, adopted by the Assembly on 5 October 2011 Resolution 1834 (2011) Combating “child abuse images” through committed, transversal and internationally co-ordinated action, adopted by the Assembly on 5 October 2011 EU documents Council Directive 89/552/EEC of 3 October 1989 on the coordination of certain provisions laid down by Law, Regulation or Administrative Action in Member States concerning the pursuit of television broadcasting activities, OJ L 298 , 17/10/1989 P. 0023 – 0030 Directive 97/36/EC of the European Parliament and of the Council of 30 June 1997 amending Council Directive 89/552/EEC on the coordination of certain provisions laid down by law, regulation or administrative action in Member States concerning the pursuit of television broadcasting activities, OJ L 202, 30.7.1997, p. 60–70. Directive 2010/13/EU of the European Parliament and of the Council of 10 March 2010 on the coordination of certain provisions laid down by law, regulation or administrative action in Member States concerning the provision of audiovisual media services (Audiovisual Media Services Directive), OJ L 95, 15.4.2010, p. 1–24 Directive 2011/92/EU of the European Parliament and of the Council of 13 December 2011 on combating the sexual abuse and sexual exploitation of children and child pornography, and replacing Council Framework Decision 2004/68/JHA, OJ L 335/1 17.12.2011 Resolution of the Council and of the Representatives of the Governments of the Member States, meeting within the Council of 17 February 1997 on illegal and harmful content on the Internet (97/C 70/01), OJ C 070 , 06/03/1997 P. 0001 – 0002 | 159 Varia Global Alliance for combating sexual abuse of children online, http://ec.europa.eu/dgs/homeaffairs/what-we-do/policies/organized-crime-and-human-trafficking/child-sexual-abuse/index_en.htm; Declaration on the launch of the global alliance against child sexual abuse online, http://ec.europa.eu/rapid/press-release_MEMO-12-944_en.htm; Annex to the Declaration on Launching the Global Alliance against child sexual abuse online, further setting forth the intent of the participants (10.06.2013). 160 | Kseniya Levashkina. [email protected] Credit Europe Bank» Ltd. Volgograd branch of the Russian Academy of National Economy and Public Administration Debt-for-nature swaps» or international cooperation and the battle for environmental human rights Abstract In the article the question of the relationship of environmental human rights in their indissoluble connection with the lands and of its economic assessment is pointed out. The author thinks it is necessary to evaluate the activities to establish the value of land resources as one of the objects of environmental protection. The object of research is the environmental human rights. The aim of the research is the optimization of evolution and protection of the human rights Institute. The methods of the research are the method of comparative jurisprudence, historical method, the method of analysis, Sociological and philosophical methods. In addition, a recommendation to the legislator about the need to take additional normative acts which regulate these procedures is given. The comparative legal analysis of national legislation and the legislation of the countries of Europe, the American continent, as well as the Commonwealth of Independent States is held. As a result of the comparison the author considers it necessary to take into account the international legal experience in the field of environment protection. The article points to the possibility and necessity for estimation of the lands (including recreational ones) not only as an object of rights, but also the evaluation in the case of damage to the land and the environmental harm territory. Land and ecological law are investigated in their relationship as the main components of the environment, which are necessary for the humanity for normal development. Keywords: the right to a healthy environment, land, harm, recreative purpose 1. Introduction In the last decades, in connection with the majority of the countries transition, including the Russian Federation, to a market economy and involvement of land as objects of civil transactions in a wide turn, the problem of economic assessment is getting relevant. The difficulty of cost definition of land in the Russian Federation is caused, first of all, by an insufficient standard and legal regulation of estimated activity, by specifics of this assessment object itself, and also backwardness of the land market in the country. It should be noted that for the majority of the countries certain obstacles arising at definition of approaches to an assessment of land, were overcome by improvement of a state legal mechanism of regulation, direct intervention of the state represented by authorized bodies the process of an assessment and actually by creation of necessary bodies (authorized officers), and often – the whole institutes focusing powers by an assessment and control of quantitative, quality and fiscal indices of land resources. The valuation of land should be carried at fair value, fully reflecting the market processes in the economy of a particular country. In the course of the conducted analysis a number of regularities, typical for all states, including Russia, European countries, countries of the American continent have been revealed. One of such laws is the increased attention of state power bodies to | 161 the land of agricultural purpose. Such interest is quite clear. Agricultural lands is of value itself, because of its specificity as a means of production. Productive agricultural land are an irreplaceable natural resource. Nonetheless, as urban populations increases and spills over the edges of the urban boundary, communities are relinquishing farmland to low-density development without regard to preserving these vital land. Although the world’s technology grows more complex every day, no technology has been able to replace the unique qualities of prime recreational land that have developed over time. In this work normative economic and technological indicators are considered. They are considered a basic condition of evaluation, focused on the actual performance level of the state, as well as the forecast data on the amount of the potential income from the land. Saving recreational land may be achieved through a comprehensive system of land use, economic policy, and political strategies. Land use policies are an important component of this strategy in that they save the actual lands, separate incompatible land uses, give participants of land matter the opportunity to continue farming even as development pressures increase, provide economic incentives to remain in the agricultural industry, and retain the character of rural areas. Some of the land use policies will help to strengthen and build the modern model of economy. The strategies recommended below must be utilized within the context of a comprehensive planning system that includes technical assistance and development of the agricultural economy and recognition. Of course, the characteristics of the land in value terms are in line with the main directions of the state policy. It should be noted that among other things, the economic valuation of the land for most of the countries of Europe is not a tax, but is, rather, on the designation of qualitative indicators that or other part of either the whole area. It is believed, a good approach, typical of most of the developed countries, first of all, has its objective to protect, protection and restoration of the environment, which is an obligatory item and one of the most valuable resources - the land. While it is impossible to note that these issues are interrelated and aimed at the formation of adequate science-legal base, legal regulation in order to improve the mechanism of protection of human rights. 2. Human rights in the modern world 2.1. Classification of human rights In the modern understanding of human rights, or (as they increasingly came to mean a Western-style) - human rights - a characteristic of the legal status of the person in relation to the state, his/her capabilities and aspirations in the economic, social, political, legal and cultural spheres. Classification of human rights can be very different, depending on the researcher or by the legislator solved practical problems. For example, from the point of view of the human rights movement, they are divided into two major categories: - Absolute rights, restriction or a temporary suspension of which is not permitted by anyone under any circumstances; - Relative rights, which may be limited or suspended for a length of time in the event of the introduction of the state of emergency or martial law. There is also another more detailed classification human rights modern standards to several levels: 1.Civil and political rights (including the right to life, the prohibition of torture and cruel, inhu- 162 | man or degrading treatment or punishment, prohibition of slavery and servitude, the punishment without law, the right to liberty and security of person, the right to freedom of movement , the right to a fair trial, the right for respect for private and family life, home and correspondence, the right to marry, freedom of thought, conscience and religion, freedom of expression, freedom of assembly and association, the right of access to primary education, the right to property, the right to an effective remedy, equality before the law, other associated rights (the right to act as a natural or legal person, the right to the name, the right to citizenship and rights guarantees in the event of lack of citizenship, etc.).) (Rouget, 2000) 2. Economic, social and cultural rights: the right to work, the right to just and favorable conditions of work, trade union rights, the right to a decent (good) quality of life, the right to health and social protection, protection of the family, motherhood and childhood, the right to receive secondary and higher education, the right to enjoy the benefits of culture and protection of the most vulnerable categories of the population. 3. Collective rights, including the right to peace, the prohibition of genocide and apartheid, the people`s right to self-determination, the rights of national minorities, the right to development, the right to a healthy environment. 2.2 Human rights in the sphere of Ecology: international experience It should be noted that the recent upsurge of Russian specialists` interest in international law for the protection of the environment is not random. It has been caused by several reasons. First, more than thirty years of standard-setting and enforcement activities provide invaluable experience in dealing with the many legal problems arising in the practice of international cooperation and the need to adjust the position of a national scale. Second, countries facing the international economic and political arena, are partners in the economic sphere, trade, legal activities and policy areas - from participation in the fight against terrorism to joint projects on the environment. Third, expand the exchange of scientific information, business contacts of entrepreneurs and individual government agencies. Fourth, the citizens themselves faced the need to take into account the demands of the international legal experience, and accept them when making journeys travel or other private trips. We believe that international law in general and environmental in particular is an extremely dynamic system, and the latest entry into circulation of information is not only the theoretical interest, but also a practical significance. Environmental pollution as well as serious negative consequences for the people`s health cased significant financial losses, expressed in decreased property values​​, additional costs related to the liquidation of the damage consequences and the damage, direct loss of revenue from reduced quality and profitability of the various categories of land and natural objects. Under the pressure of public interest and occurring in connection with this process in the economy, many governments have begun to realize that the degradation of the environment and natural resources is a potential threat to the long-term economic development. They began to develop its own measures to mitigate the negative processes occurring economic, socio-political and legal measures. The problem went beyond the interests of individual states and became international. | 163 2.3 Protection of environmental human rights The official beginning of the environmental issues discussion at the international level was laid by Stockholm Conference on the Human Environment in 1972 and continued at the highest level at the 1992 Rio de Janeiro UN Conference on Environment and Development. The conference adopted the concept of sustainable development, in accordance with which, under the sustainable development means a development in which there is “sustainable development, which implies meeting the needs of the present without compromising the ability of future generations to meet their own needs, should become a central guiding principle of the United Nations, Governments and private institutions, organizations and enterprises”. The adoption and widespread discussion of this concept led to the fact that in many countries began to develop environmental legislation actively and generated economic and legal measures to restrict the activities of economic entities on environmental grounds, and prevent environmental pollution. Changes in laws and legal measures of pressure on polluters, in its turn, began to lead to the development of methods to take into account the additional costs arising from the ecological character of the assessment of enterprises and their property. Over the last years since 1972 in many countries with the greatest impact of the devastating results on the environment, formed the legislative base, limiting the extent of such impacts and natural resources and forcing major polluters to take action to reduce the negative impacts caused and to mitigate environmental damage. 2.4 Measures for the human rights` protection in the ecology sphere The example of the most stringent legal standards in the field of environmental protection became U.S. law “The Comprehensive Environmental Response, Compensation, and Liability Act of 1980” (CERCLA) (www.epw.senate.gov/cercla.pdf), which established the material and financial responsibility for damage to the environment, and later called Superfund Act. The main purpose of the enactment of Superfund was the elimination of a large number of dumps and degraded lands. The main feature of this law was that it was retroactive and applied to the tortfeasor, regardless of when the environmental damage was caused - before the adoption of the law or after. 2.5 Ecological human rights protection mechanisms The Comprehensive Environmental Response, Compensation, and Liability Act of 1980 (CERCLA), is the main federal law of the United States that addresses the clean up of hazardous substances. The law was amended several times enlarged by the Superfund Amendments and Reauthorization Act (GPO, 1990). It is known more generally as the Superfund program. The Environmental Protection Agency (EPA) administers the program. Subsequent amendments to CERCLA also authorized EPA to administer a separate grant program to support the cleanup of abandoned or idled “brownfields” properties to encourage their redevelopment. CERCLA provides the process for identifying liability for contaminated property. The law employs the principles of “strict liability” and “joint and several liability” to identify responsible parties (RPs). Strict liability assigns liability without necessarily finding fault. Under this concept a landowner is deemed responsible for contamination found on his property without regard for any fault; simply being in the chain of title is sufficient basis for being held responsible. Joint and several liability holds that once a party is found to be responsible for even a portion of the contamination they can be held liable for the entire cost of a clean up without regard for the portion of contamination they might have caused. Property owners were provided with several defenses 164 | against the cleanup liability. The Courts allowed a “de minimis defense” for RPs found to have contributed only nominally to the contamination but the most common defense is the “innocent landowner defense” (Charles de Saillan, 1997). An innocent landowner is a property owner who can demonstrate that before purchasing the property they made an inquiry into the historic use and condition of the property and found no evidence of contamination. This inquiry had to meet a test of being consistent with good and customary commercial practice. The statute, however, did not provide definition of what “good and customary commercial practice” might be. Over the years following the passage of CERCLA, the practice of environmental site assessment for the purposes of meeting this test emerged and became more sophisticated. Eventually the American Society of Testing and Materials (ASTM) developed consensus standards that were found to satisfy this test and were widely used. (Charles de Saillan, 1997). Many real estate professionals and policy makers felt an unintended consequence of CERCLA was to make existing industrial and commercial property too risky for investment and resale which was, at least in part, responsible for industrial development moving out of traditional areas. The emergence of brownfields and the actions at the state and local level beginning in the 1990s highlighted many of the problems implementing CERCLA and the effects of the law on local economies. Many states, working with the Environmental Protection Agency (EPA) and the Department of Justice, passed laws to encourage redevelopment of industrial properties called “brownfields” by offering protection from the liabilities assigned under CERCLA. The standards of liability and assessment were modified in federal law in 2001 when the Small Business Liability Relief and Brownfields Revitalization Act was signed into law. (Charles de Saillan, 1997). After the release of this law in the U.S. for the restoration of the quality of the environment started to leave many billions. Thus, by 1996, the size of the financing agreements sewage treatment works were estimated at $ 11.9 billion in compensation Claims of past damage is enormous, and the hundreds of millions of dollars. CERCLA attracted US$1.6 billion fund over five years compensated by taxes from chemical and petroleum industries. CERCLA: • established prohibitions and requirements concerning closed and abandoned hazardous waste sites; • provided with liability of persons responsible for releases of hazardous waste at these sites; • established a trust fund to provide for cleanup when no responsible party could be identified. The law authorizes two kinds of response actions: • Short-term removals, where actions may be taken to address releases or threatened releases requiring prompt response. • Long-term remedial response actions, that permanently and significantly reduce the dangers associated with releases or threats of releases of hazardous substances that are serious, but not immediately life threatening. These actions can be conducted only at sites listed on EPA’s National Priorities List (NPL). CERCLA also enabled the revision of the National Contingency Plan (NCP). The NCP provided the guidelines and procedures needed to respond to releases and threatened releases of hazardous substances, pollutants, or contaminants. The NCP also established the NPL. 3. Environmental responsibility: national policy Superfund defined circle of persons who may be potentially responsible for the financing of wastewater treatment works. They included: | 165 • • • current owners of the locations of waste; the former owners, who owns the place at the time of disposal of hazardous waste; producers of hazardous waste, which gave instructions on disposal of hazardous waste in this place; • transporters of hazardous waste, which chose this place for waste disposal (www.epw.senate.gov/cercla.pdf). According to the Law on the Superfund defendants apply strict, joint and several, and retroactive liability. In addition, the sale and purchase of real estate as the responsibility falls on the former, and the new owners and managers. Rigorous liability established Superfund means that the defendant is liable for compensation, regardless of whether he is guilty of polluting or not. In other words, it wasn`t taken into account how the defendant acted - in good faith and in compliance with the rules or negligently. Joint and several liability means that the damage is indivisible and can not be assigned to each respondent in proportion to its contribution, that is, each party is responsible for all damage caused. In other words, any person potentially liable for damages may be required to reimburse 100% of the costs, even if it is placed in a landfill 1% of the waste found there. For example, the government of New York ordered a number of firms to pay for the cleaning of the city dump, even though they never delivered waste there, as were paid for delivery of their waste in specially engineered landfill only on the basis that the waste carrier, bribing city officials sent the shipment to the city dump. The fact that the defendants did not known about it, did not matter in terms of the rules of the Superfund. To stringent standards Superfund led to the fact that real estate markets are very sensitive to the issues related to environmental pollution. Inspection procedures reducing the risks of real estate acquisition burdened with environmental debt began to develop. For example, to prevent the transfer of responsibility and reduce the cost of capital of the new owner in the contract requires the indemnity by insurance liability for past activities. The lender as an operator with the financial management of the object is also responsible for environmental damage. The procedure of «environmental due diligence» has become a regular feature of loans on real estate transactions, in project financing, equipment financing, lines of credit. The term «due diligence» means the due diligence, careful observation, due diligence or comprehensive study of the reliability of the information provided in relation to environmental issues (Professional sports antitrust immunity: hearings before the Committee on the Judiciary, United States Senate, Ninety-ninth Congress, first session, on S. 172, S. 259, and S. 298, February 6, March 6, and June 12, 1985/ http://www.worldcat.org) The term «environmental due diligence» means the analysis of the impact to the environment within which identifies and assesses the risks associated with environmental pollution and environmental activities of the government. The procedure of «environmental due diligence» can be understood as a careful and conscientious study of the impact of environmental regulations and standards on the value of assets such as businesses. This procedure includes consideration of issues such as the identification of acquired property encumbrances financial obligations to provide compensation for past environmental damage, the identification of possible benefits and other material and financial costs associated with the implementation of the requirements to maintain a certain quality of the natural environment. Analysis of the impact on the environment is carried out to the investor or company that could become the buyer of a business or real estate, to make sure whether they would benefit from the transaction, the famous court case the Fleet Factors Liability, when the case of bankruptcy of the company responsible for the damage last moved the 166 | borrower had significant consequences for financial institutions (United States v. Fleet Factors Corp.). Superfund Act served as a guide for the development of a legal framework remediation of contaminated land in the countries of Western Europe. There began to form their own institutional and legal mechanisms in this field, according to urgency of the problem, the national legal systems, financial opportunities, etc. However, key aspects remain the same as in the American model of financing restoration of environmental quality, land use and effective institution of civil liability. Thus, the restrictive measures taken by the ecological character, both in the U.S. and Western Europe have been so harsh that buying a business or real estate, there is a real danger that the financial responsibility for the existence of a pollutant, a survey for its detection, as well as the costs of eliminating pollution will be so great that it will significantly reduce the cost and the expected return on the purchase of real estate. Fears for the health of people and the unwillingness to live in houses and polluting areas also led to the fact that any detection of toxic, hazardous or harmful substances inside the property, on the land where the property is located or on the neighboring plot of land can significantly reduce the cost. The establishment of various environmental restrictions and prohibitions of economic activity in certain areas, banning the location of industrial facilities, limiting the volume of traffic, a claim for compensation of damages caused to the fact that these requirements have become quite a strong impact on land use, and the behavior of the people in the choice of real estate - market prices in areas subject to excessive pollution. Real estate markets particularly in rich countries have become sensitive to the cost of a new form factor - the state of the environment. The impact of environmental factors on the behavior of real estate markets and the financial position of the companies immediately reflected in the international, European and national standards for the evaluation, which has paid much attention to the environmental issues that arise in the valuation of real estate and consulting services related to the procedure of «environmental due diligence». Characteristics of the environment and the description of the environmental factors that currently influence the value of real property or may have an impact on the change in its value in the future, has become a prerequisite for the description of the land and the analysis of its best use. Environmental & special sections devoted to European and International standards for evaluation. This issue is given special attention in the American School of valuation. It is quite interesting from a scientific position to include for such a term as “environmental factor” into the assessment of land. In terms of the assessment of land and immovable property located on them, under the environmental factor is defined as any natural phenomenon or the quality of the environment and its individual components, as well as the qualitative state of the elements themselves, which affects the market value of the property being valued. For example, environmental factors include such terms and parameters of the environment as a basic level of pollution of natural environment - water, air, soil, including the contamination, the presence of the beautiful view, the presence of green spaces, attractive architectural environment, the presence or absence of a nearby landfill, the presence of or absence of a number of adverse unattractive industrial facilities (e.g. incinerators), and finally, our idea of ​​the quality of the environment. For qualitative parameters, the actual properties of the elements themselves include the chemical composition of the materials of which the building is made, the level of indoor pollution caused by, or used in construction materials or manufacturing techniques, or other external | 167 influences. The factors of the environment also include any natural terrain conditions associated with climate, hydrological, hydrogeological and geological features of the area.Such features as a favorable or unfavorable from the point of view of human living environment, such as a long cold period, the number of sunny days, dry conditions, etc. are considered to be climatic features. Include providing a source of drinking water for industrial and agricultural water supply, the level of groundwater levels, flooding, flood period and the duration of the probability of flooding to be hydrological conditions. The presence of groundwater, its location, the reserves, the possibility of economic use are considered to be hydrogeological characteristics include. By mining and geological parameters include the presence of such phenomena as karst, landslides, increased seismic activity, permafrost, avalanche danger, uneven terrain, the construction quality of soils and bedrock, hydrogeological conditions and a number of other features. 4. Influence of the United States and European legislation on the formation of the Russian rulemaking in the land of recreative purpose area. American Superfund served as a guideline for the development of the legal framework for remediation of contaminated lands in Western European countries. Of course, their institutional and legal arrangements in this area, according to the problem, national legal systems, and financial possibilities evolved there. The main aspects are the same as for broken Lands Management American model: the inventory of land, restore their funding (often at the expense of funds specifically for this purpose) and the effective use of the Institute of civil liability. In addition, an important fact is that the international community has influenced the development of protection and valuation of land recreational purpose in Russia. Austria, Belgium, Switzerland are some of the countries where the legal framework for the management of contaminated land has had the greatest development. Thus, in Austria in the year of 1989 a clean up contaminated land law was passed. The aim of the Statute was primarily to provide financing for clean-up efforts. Coordination of the work on the survey, assessment and clean-up of contaminated sites at the national level lies with the Federal Ministry for Environment, Youth and Family. Assessment of contaminated sites is carried out taking into account the characteristics of the particular area, including a geological characteristics and human impacts. Since 1997, the Austrian ONORM Standard S a 2088-2 has been in the process of being worked out, it should contain the criteria for assessing soil contamination and exposure of humans, plants and animals. Specific indicators are thought to be established for certain categories of land pollution which are especially dangerous to humans (playgrounds, residential areas and other portions of the recreative purpose lands). In other words, it is rather relevant for the State to develop and protect recreational facility. In addition to natural and man-made phenomena and anthropogenic processes directly affecting the value of the property indirect effects of these factors on the cost of land, manifested in the establishment of different kinds of restrictions, requirements and burdens of ecological character, as well as the possibility of financial responsibility and liability for environmental harm and damage or additional costs to restore the violated environmental quality, pollution elimination and replacement of technologies and equipment are is taken into account. We can distinguish three classes of factors that should be noted when assessing the value of: • The factors that directly affect the value of the property at the time or may change its value after their discovery in the future if they are not now identified; 168 | • • Restrictions on the use of real property; Legal obligations related to the implementation or payments, or with work on the elimination of the damage; Standard classification of such factors does not exist. In the practice of real estate appraisal well until crisp and clear classification of environmental factors has not yet been developed. In international practice there is a more common name for these phenomena such as environmental factors. In part, this situation is due to the fact that this trend is being formed and covers a huge range of issues before the effect on property values ​​and property rights on its environmental standards and restrictions to properly account for the effects of environmental factors on the cost and production methods for the measurement of such action. In Russia today a more important point is the first class of the factors that is taken into account either through the location of the property (the object is located in a green or environmentally polluted areas), or as a separate element of comparison, requiring adjustments (for example, the presence or absence of a number of negative objects and the quality of construction materials). The second and third class of factors do not having a major impact on the formation of the market value of the property by virtue of the fact that environmental requirements and restrictions are not so rigid as in Western countries, and the economic and legal responsibility is not a major problem for businesses, as damage to nature and people not associated with serious economic sanctions, advancing without fail. However, foreign investors are subject to this side of the investment location of great interest for the following reasons. First, in the western countries such sanctions, as was shown above are very important, and investors expect that our laws may establish liability for damage caused by previous owners. Second, they expect that the reduction of the purchase of real property in proper condition and the elimination of existing pollution and the implementation of any environmental regulations and restrictions can be a low cost (land improvement, elimination of littering, etc.). 5. Findings 1. Environmental requirements and limitations in the most rigid form mainly affect the permitted use of land and buildings in cities and other human settlements, as well as the mode of land use in protected areas (in particular in the range of recreational areas). The third class of factors is related only to the identification of debts on the implementation of environmental payments and debts for amounts awarded in damages upon its discovery. Liability for damage caused in the past does not exist in our legislation taking into consideration the fact that one of the basic principles on which the Russian legislation is based which is the lack of retroactivity. 2. Payments that industry should pay for polluting discharges of pollutants into water bodies, payments for emissions of harmful substances into the atmosphere and payments for the placement of hazardous waste are included into the environmental payments. Because of imperfections in the methods used to establish payment rates these financial obligations could be significant. Debts on environmental payments can not only reduce the investment attractiveness of the company, but to become a huge problem for the company and put it on the verge of bankruptcy. For example, a case where the pollution charges accrued to one of the pulp and paper industry has exceeded sales profit nearly 84 times, and the value of fixed assets - by 2.7 times. 3. The presence of the world’s largest areas of intact natural ecosystems and the carrying capacity of the reserves create a unique environment for Russian combination of external and internal sources of state revenue growth through the development and implementation at the | 169 international level, the mechanism of “debt-for nature.” The mechanism is that the external state debt repaid by its internal costs for environmental protection. Such a mechanism is already used in some post-socialist and developing countries, such as Poland and Colombia. Poland, in particular, covers the expense of investing their funds in the conservation of Finland 10% of the debt, and 1% of the debt of France. Russia is not involved into such a mechanism, although it could contribute to the financial support of regional programs for the conservation of nature, reshaping business, causing damage to human health and the unique natural features. 4. The mechanism of “debt-for-nature” has a number of benefits to Russia, the most significant of which are the positive effects on the environment, reducing the burden of external debt, the elimination of capital outflows from the country and, finally, the possibility of establishing favorable conditions for restructuring of external debt to Western creditors. Thus, the mechanism of the “debt-for-nature” forced to reduce inefficient for socio-economic development of the country’s budget spending, which indirectly indicates the growth of real income of the state. References Rouget D. Le guide de la protection internationale des droits de l’homme. P., 2000. Chapitre II. Les droits proteges U.S. law “The Comprehensive Environmental Response, Compensation, and Liability Act of 1980” (CERCLA) (www.epw.senate.gov/cercla.pdf) Superfund Amendments and Reauthorization Act (U.S. Congress, Senate, Committee on Environment and Public Works, A Legislative History of the Superfund Amendments and Reauthorization Act of 1986 (Public Law 99-949) the Library of Congress, Committee Print, 101st Congress, 2nd sess., GPO, 1990, v. 6, p. 5095). Charles de Saillan. Superfund Reauthorization: A More Modest Proposal. Environmental Law Reporter, v. XXVII, May 1997. p. 10201-10227 United States v. Fleet Factors Corp., 901 F.2d 1550, 1554 n. 2 (11th Cir.1990), cert. denied, 498 U.S. 1046, 111 S.Ct. 752, 112 L.Ed.2d 772 (1991/ https://bulk.resource.org/courts.gov/c/F3/94/94. F3d.1489.95-6198.html 170 | Marta Wójcicka University of Warmia and Mazury in Olsztyn [email protected] Policy on the promotion of renewable energy sources in the European Union and the human right to a clean and healthy environment Abstract Human right to clean environment is necessary to take full advantage of other important human rights such as the right to live. Environmental degradation shell be than treated as an example of human rights violations. It can be tempted to conclude that many of the other fundamental rights such as the right to information and freedom of association, indirectly are related to the protection of the environment. On the other hand, energy sector has big influence on condition of global environment and, thus on the human right to clean environment. Purpose of this research is answer for questions what is the impact of energy sector and how promotion of renewable energy sources affects on the condition of environment. This paper presents characteristics of the condition of global and European environment. It contains also analysis of global climate policy and main types of RES. Keywords: environment, renewable energy sources, climate change, climate policy, human rights, third generation of human rights, European Union. 1. Introduction There is no way to overestimate the role of the right of every human being to live in a clean, sustainable environment in the catalogue of human rights. Within the framework of third generation of human rights, this right entitled to every man, of each country in the 21st century. Nowadays the whole world is challenging of emerging, irreversible climate change. Because of the lack of consequence in some big issuers of greenhouse gases and the high cost of implementing modern technologies for the conservation of nature, still it is observed high pollution status of the environment - a space that should be particularly protected from one prosaic cause – it`s a place of life and functioning of each organism, including people The purpose of this research is to present the current state of the environment in the European Union and answer for these questions: • What is the impact of human activity on the current state of the environment? • How EU`s energy sector is affecting on environment? • What is the impact of increase the participation of usage and production of energy from renewable sources on improving condition of the environment and the economy of the EU? In order to answer for the research questions were used statistical method, largely based on the reports on environment and energy sector, coming from the European Commission, the European Environment Agency and British Petroleum. Author used also the method of analysis of legal acts, foremost for a global EU climate policy reconstruction, and the chronological method. Very important was the analysis of a number of monographs and scientific articles related to the topic of the article. Especially valuable were the work of Volker Quaschning (Qaschning, 2005,2010), where we can find a detailed analysis of the renewable energy systems, but also work of Craig | 171 Shields (Shields, 2010) which includes an interview with 25 experts of the RES field. 2. The human right to live in a clean environment Each of us has the right to live in a clean, sustainable environment, without worrying about our own health and health of our nearest. Though it’s hard to reconstruct this right directly from international law, we can find records related to it for example in Banjul Charter on Human Rights and people’s Rights, adopted in 1981 in Nairobi. Article 24 of this Charter states: “All peoples shall have the right to a general satisfactory environment favorable to their development”. Independent human right to a satisfactory, health environment, can also be deduced directly from the Article 11 of the Protocol of San Salvador (1988), which states: “Everyone shall have the right to live in a healthy environment and to have access to basic public services.”. Human right to clean environment has been extracted in over one hundred national constitutions throughout the world and in this context, it is difficult to deny the existence of that right. The problem appears with attempt to extract scope of human right to environment. Doubts concern over the question whether this right should be seen as a human right to a clean environment, as provided under Banjul Charter on Human Rights and people’s Right, or as provided under the Protocol of San Salvador human right to live in a clean environment. Undoubtedly, however, this right is necessary to take full advantage of other important human rights such as the right to live. It can, however, be tempted to conclude that many of the other fundamental rights such as the right to information and freedom of association, indirectly are related to the protection of the environment and there is no need to extract human rights to a clean environment as a separate human right. On the other hand, other human rights couldn`t be complied without right to clean environment. In addition, we need to underscore the fact that this right is entitled to whole humanity, considered in the category of population, as belonging to a third generation of human rights (Ploszka, 2011, p. 21-22). It seems that the main purpose of the human right to a clean environment, or live in a clean and healthy environment, is an implementation by all countries, all over the world, the principle of sustainable development. This concept appears upon with the Stockholm Declaration and Agenda 21 signed during the United Nations Conference on Environment and Development (UNCED) in June 1992, to which author will refer in next part of article. We can also find the principle of sustainable development in the records of EU law, such as: the Treaty of Maastricht or development strategy adopted by the European Commission and approved by the European Council in June 2001: A Sustainable Europe for a Better World: A European Union Strategy for Sustainable Development (COM(2001)264 final). Now this strategy includes issues such as: environmental protection, climate change, environment-friendly transport, waste management (including radioactive waste), the production, promotion and use of biofuels, and as well the maintenance of biodiversity. We define sustainable development as the economic development which takes into account the possibility of the environment on a global and local scale and reconciles economics law with the laws of nature and culture (Sitek M., 2007). In recent years, more and more often, voice in politics, economics and social life belong to modern ecological organizations and groups. Evidence of that is the fact that in the European Parliament’s fourth-largest political faction, in the current term of this institution, with 55 seats, is the Greens/European Free Alliance (Greens/EFA). As rightly points out Prof. B. Sitek among ecological movements we can observe internal division. Some of them sees the environment as a whole, in which inherent element form human beings. The second orientation puts up animals as a separate part of environment. This part includes beings in their nature similar to a man, about whose rights we must fight, like we`re fighting for environmental human rights. Regardless of the division among ecological movements, there is an urgent need for identification the relation between deteriorating 172 | of state of the environment and the right of humanity to a clean environment. Despite the problem with extraction of subject of this right and its location among other human rights, unquestionable should be conclusion that environmental degradation shell be treated as an example of human rights violations. And right to a clean environment should be seen as a active right, which requires a responsible for the deteriorating state of the environment, and making attempts to improve this condition in everyday life by everyone (Sitek B., 1998, s. 41-65). 3. Outline of global climate policy For hundreds of years the world’s leaders did not focused on an importance of environment condition. The fight for e.g. species threatened with extinction, deforestation, and drowning out the glaciers was ecologist`s domain. Attention of world`s governments was caught in a time when climate change and environmental degradation has begun to exert a direct effect on people’s lives, and studies have not left little doubt that without taking real action the situation will be worsening. At this point it is worth to indicate the beginnings of global climate policy and the most important documents established within its framework. The roots of global climate policy must be linked to the year 1972. It is the year of signing the Stockholm Declaration (Declaration of the United Nations Conference on the Human Environment, 1972), which included the right to live in a clean and safe environment to the catalogue of human rights. Apart from that Declaration outlined activities directory and rules necessary to take in this area1. Due to the fact that it was not a binding document, it didn`t bring the desired effect and did not contribute realistically to limitation of climate changes` effects. The United Nations Framework Convention on Climate Change (UNFCCC) Milestone in the international dialogue for the improvement of the condition of the environment was the United Nations Framework Convention on Climate and Agenda 21, which were signed during the United Nations Conference on Environment and Development (UNCED). The Conference was held from 3 to 14 June 1992, in Rio de Janeiro, and to this day it is considered as the base of international cooperation to combat climate change and improve the environment. The UNFCCC entered into force on 21 March 1994. Today, it has near-universal membership. The 195 countries that have ratified the Convention are called Parties to the Convention. The primary purpose of the Framework Convention (UNFCCC), referred to article 4.2, is to stabilize greenhouse gas concentrations in the atmosphere at a level that would prevent interference with the climate system, while still retaining the appropriate period of time to achieve this level, necessary for natural ecosystems to adapt to climate change. The Convention established catalog of the principles upon which should be based activities of the parties to the Convention, in order to achieve the purposes specified below: • take the lead in combating climate change by developed countries, whose economies largely contribute to the deteriorating state of the environment, • safeguarding savings and universal benefits while taking measures against climate change, • avoiding an excessive and disproportionate burden on the developing countries, most vulnerable to climate change • the right and the obligation of states parties to the promotion of sustainable development, taking into account the specific conditions prevailing in the concerned country and national development programmes, • interaction between member states in order to promote and support an open international economic system. | 173 The Kyoto Protocol Equally important document for the global climate policy is the Kyoto Protocol (The Kyoto Protocol to the United Nations Framework Convention on Climate Change), signed on December 11th 1997, which as a legally binding instrument of international law, has determined the levels of greenhouse gas emission reductions for the states parties (in accordance with the annex of the Protocol). Despite the fact that the Kyoto Protocol provides mechanisms for authorizing of noncompliance to the established emission limits (in relation to the base year 1990), its late entry into force and too mild approach of the Conference of the Parties to the largest greenhouse gas emitters, among them China and India, indicates the lack of effectiveness of the Protocol. An additional problem related to the Kyoto Protocol, was the lack of conclusion in the specific solutions designed to accelerate the reduction of greenhouse gases between Member States. The Kyoto Protocol created a base for international dialogue and joint action to reduce the negative impact of CO₂. The mechanisms of achieving those objectives were agreed in the course of several meetings of the Convention of the Parties, among others in Buenos Aires (1998), Bonn and Marrakech (2001) (Hunter, Smith, 2005). 4. European Union legislation to combat climate change The European Union undoubtedly leads in the global struggle with climate changes` effects. Although EU is a big emitter of greenhouse gases, all countries belonging to it ratified the Kyoto Protocol (in contrast to the e.g. United States) and effectively work to achieve the envisaged emission reduction. However, Protocol wa only the beginning of the EU’s legislative on this field. EU`s actions aimed at countering climate change include among others: • establishing on 23 April 2009 Directive of the European Parliament and of the Council on the promotion of the use of energy from renewable sources and amending and subsequently (2009/28/ WE), whereby the EU is committed to achieving the 20% (compared to 1990) participation of energy from RES, 20% reduction of greenhouse gas emissions and a 20% increase of energy efficiency by 2020. • Creation of the world’s largest emissions trading scheme (Directive of the European Parliament and of the Council directive, 2009/29/EC), covering more than 12,000 entities from the 27 Member States, Iceland, Norway and Liechtenstein, which are responsible for 40% of greenhouse gas emissions on the territory of the organization. • Creation of a system requires fuel providers in transport to draw up reports on CO₂ emissions. Main goal determined by EU is limitation of the greenhouses gas emission in this sector by 6% until 2020 (Directive 2009/30/EC) 2 • The adoption by the European Parliament and the Council, Regulation (EC) No 443/2009 laying down emission standards for new cars, under the integrated approach to reduce emissions of CO₂ from light commercial vehicles (23 April, 2009). A very important element of the EU’s energy policy is its funding. Undoubtedly, investment in new installations, testing, technology to support both RES and the prevention of the negative effects of climate change, require enormous financial resources. On the evidence of this, in the latest financial perspective of the European Union for the years 2014-2020, 20% of the EU`s budget allocated to projects related to the protection of the climate3. To understand the desirability of global and European climate policy we should take a look at the today`s condition of the environment. Is it so critical that threatens future of our planet over the next few hundred years? It is worth at this point, consult the report of the European Environment Agency Climate change, impacts and vulnerability in Europe 2012 (EEA Report No 12/2012)4. 174 | 5. Condition of the environment-where are we and where are we going? One of the obligations, imposed by the United Nations Framework Convention on Climate on its signatories, is inter alia the obligation to transmit statistical data, concerning the concentration of greenhouse gases. Member States of the European Union, in carrying out their duties, shall forward the necessary data for the United Nations. However, this data does not allow for the creation of a comprehensive report showing condition of the environment and climate change within the EU. So let’s go back to the EEA report, satellite monitoring and global databases, which provides a summary of data from the European Union countries. Particularly important part of EEA’s report is an analysis of the impact of human activities on climate change. It is, next to the factors such as solar activity, volcanic activity, one of the most destructive on environment. The area defined in the report of the European Environment Agency called human influence on the climate system shows a number of climatic phenomena caused by human activity, referred in the report as anthropogenic climate changes. The first is increase of the average global temperature. Since the industrial revolution average global temperature has increased by about 0.8 °C, and these changes are so far-reaching, that range from polar regions to the ocean waters at a depth of 3000 m. EEA report shows that the average global temperature increases each decade by about 0.2°. In recent years, and more specifically in the last decade, there has been record high temperatures during the summer. Everything seems to indicate that without anthropological climate changes, the hottest summer in the West Europe since 500 years, which had a place in 2003, would never appeared. An additional problem, in the face of increasing air temperatures, become declining precipitation in some parts of Europe. While the countries of Northern Europe, particularly the Scandinavian countries, still experience increasing amount of precipitation, southern countries, e.g. Portugal and Spain increasingly suffer because of lack of rainfall and drought. Specialists indicate that the current upward trend of greenhouse gas concentrations in the atmosphere, will cause rise of the average global temperature by the year 2099 up to 4 degrees Celsius (Massai, 2011). Temperature changes are due primarily to greenhouse effect caused by gases emitted while human activity, transport, energy, industrial, as well by natural variation and fluctuations of the Earth`s climate. Despite emerging skeptical voices, that global warming could be caused by the increased activity of the Sun, non-directly from human activity, about 40 of the world’s scientific bodies indicated that in fact the climate is warming and the main cause of this phenomenon is excessive amount of adverse gases within atmosphere (Tomiałojć, 2011). No doubt that high concentration of greenhouse gases in the atmosphere is a phenomenon linked directly to human activity. It leads to environmental degradation and deepens the emerging climate change. Today’s amount of greenhouse gas in the shell surrounding the Earth has not reached so high level from 800 000 years. This is the result, first and foremost, of a high consumption of solid fuels, and a high degree of utilization of chemical fertilizers. It is true that the concentration of carbon dioxide in the atmosphere would have to increase 100 times to be able to realistically threaten human health, however natural regeneration of air, which prevents the negative effects of greenhouse effects, making by plants, decreases each day. It is estimated that every 18 months area of forests, big as United Kingdom, disappears (it`s estimated that every second from the surface of the planet disappears 800 square kilometer of forest). Burning and cutting away of forests will result in their practical disappearance within 100 years, thus increasing the greenhouse effect by 10% (Qaschning, 2010). An indicator often used in a number of studies and reports, which shows climate change, is the thickness of the ice cover in polar areas. Increasing temperature causes that since 2006 the Greenland ice cap shrinks by about 273 billion tons per year. This results in raising level of seas and oceans water about 0.7 mm per year (while every year melting down all the glaciers causes | 175 increases of this level by approximately 3.1 mm). If the average annual temperature rises by 3 degrees Celsius, which is also projected to the end of the century, it is possible that Greenland will be complete melted, which will result in an increase of sea levels of about 1.3 mm. Marine waters growing up in number, combined with extreme weather conditions, cause: floods, absorb the effects of thousands of lives and billions of dollars needed to repair the damages. In the Europe to the elimination of losses after floods in the Czech Republic, Austria and Germany, that have occurred in 2002, it was necessary to use resources of $ 20 billion. The melting of the polar ice caps around the world causes irreversible effects and is directly linked with another global problem – lack of access to drinking water. This is no longer exclusively the problem of African countries. More and more often European countries complain about the lack of drinking water. European area of specific threats of a water shortage are the Mediterranean countries. Group of countries with the lowest water resources has increased from 2 to 13 in the late 1950-2000. During the same period, the number of countries suffering from chronic lack of water has more than doubled (from 3 to 7), and the number of countries subjected to water stress tripled (with 5 countries in 1950 to 15 in 2000) (Kundzewski, Zalewski, Kędziora, Pierzgalski, 2010). 6. The impact of the energy sector on the condition of the environment The sector responsible for the largest eviction of greenhouse gases is the energy sector. European Commission`s statistical evidence shows that this sector shall be responsible for 28.8% of emissions. Moreover another sector - the largest contributor to climate change - which is the transport sector (19%) is directly based on the use of fuels and linked with energy sector. The European Union actions on the promotion of renewable energy sources also include transport, by increasing the share of biofuels in the fuel balance. All sectors of the economy associated with the use of fuels and energy (in addition to the abovementioned: industry, households and commercial companies) are responsible for 80% of greenhouse gases emission of the European Union as a whole. Probably for the question “what products are most necessary to man`s life?” most of us would point on water and food. However, in all developed countries, both of these products are consumed and used by humans in the processed form. The water that we use in the household is cleaned, heated, and then together with sewage it`s subjected to other processes. Food products go through whole range of additional activities within the transport sector, industry or agriculture, before going to our homes, where they will still be processed in the form of heat, cooking, baking etc. All those steps, that ultimately lead to the usage of the water and food, are connected to one common denominator - energy. Of course, we could be tempted to say that we can drink and take a bath in cold water, coming from the mountain stream, and eat food directly, without processing, but then we’d go to the economy that does not exist in the developed world for many hundreds of years, and in such a situation it wouldn`t be the phenomenon of environment degradation. According to the latest data from the European Commission, contained in the report of the EU energy in figures. Statistical Pocketbook of 2012, the European Union produces 7% of the world’s energy and it`s its third world consumer (EU consumes 14% of the world’s energy, the more consume only United States and China-18%). At the same time EU is responsible for approximately 13% of the world’s greenhouse gas emissions. Energy production in the European Union has changed significantly in the last decade. When in 1995, 47% of energy was produced with usage of solid fuels and oil, in 2010, this figure decreased to 32%. Without a completely different change remains part of gas usage (1995-20%, 2010 – 19%) and nuclear energy (24% in 1995 to 28% in 2010). However we do report increased participation of energy coming from renewable energy sources. This type of energy production increased by 11% (9% in 1995 to 20% in 2010). World energy production statistics highlight the fact 176 | that the activity of the European Union to increase the share of RES in the production of energy bring measurable results and today EU leads in the production of green energy all over the world 7. What are renewable energy sources (RES) To answer a question whether renewable energy sources have influence, and if so, what influence, on the condition of the environment, we should start with short characteristics of the main types of RES. Spectrum of this type of energy source it`s very wide: from the production of electricity, heating and cooling of buildings until the production of modern, environment-friendly biofuels. What’s more, as opposed to solid fuels, which have limited scope of their usage, renewable energy sources have unlimited potential. We will discover it during next tens or hundreds of years. Biomass In the light of the statistical data from the European Commission and the European Biomass Association (AEBIOM) undoubtedly biomass is biggest source of energy consumption coverage, coming from renewable sources in the European Union. It covers 8,16% of the final energy consumption and 12,9% demand for heat in the EU27 countries. The final consumption of energy from biomass includes: in 75% production of heat, 11% in bioelectricity and 14% in the production of biofuels. In the process of generating electricity or heat from biomass are used: organic matter from plants, organic waste, wood and wooden pallets and others. For the production of this energy type are use processes of combustion, gasification, pyrolysis, and fermentation. According to prepared by AEBIOM Annual Report 2012 most of all energy from biomass is consumed in Finland (27,1%), Sweden (29,21%), Estonia (25,67%) and Lithuania (27,54%). Solar energy Another type of RES is solar energy. Solar energy is replaced by, among other solar photovoltaic panels into usable heat, sun parabolic collectors into electricity, or cooling tower in the cool air. This type of RES is increasingly used in the European Union and all over the world (Quaschning, 2005). Data from the British Petroleum Statistical Review of World Energy 2013 showed that since 1996 the ability of solar energy generation has increased worldwide by 73%, and during the last 5 years has increased fivefold5. Undoubtedly, the biggest advantage of this type of sources are inexhaustible resources of solar energy. It is estimated that to meet the entire annual electricity demand around the globe, it would be sufficient to take full advantage of the Sun’s energy reaching the Earth during only 1 hour (Quaschning, 2010). The biggest obstacle to increasing the production of energy by using photovoltaic installation is still very high cost of production of this type of energy. The data of the European Photovoltaic Industry Association (Global Market Outlook for Photovoltaics 2013-2017)6 suggests that these costs are decreasing from year to year7 and it is estimated that by 2030 the energy from this type of RES will cover 25% of the electricity demand in the European Union. This translates into the number of new installations in the European Union. 54% of them in 2012 were accounted for photovoltaic installations. Geothermal Energy Geothermal energy is defined as use of heat accumulated in the interior of the Earth. The outer layer of our planet, which we call, The Earth`s crust, has a thickness of about 40 km and reaches temperatures up to 1000 ° C. However, reaching layer which has about 150 ° C requires to delve into the depths of the Earth’s surface at about 3000 m8. Of course, the farther into the depths of the Earth the temperature higher. The Earth`s core, located at a depth of up to 1230 | 177 miles, has a temperature of 6500°C. The region of Central Europe does not have a large potential in geothermal energy, because it is not located on the edge of tectonic plates. In the European Union, by far, the largest quantity of geothermal energy is produced in Italy. In Portugal, France and Germany are also already installations for the production of this type of energy, but they are the size of a dozen times less than in Italy. Italian production generates almost half of geothermal energy in Europe (these include also Turkey and Iceland). Data from European Geothermal Energy Council (The EGEC Geothermal Market Report 2012) shows that by 2015 in the EU countries will get 11 new geothermal power plants in, among other in Spain, Hungary and Great Britain. Hydropower Beginning of the first hydro-electric installations dates to several centuries back. In the 18th century, commonly used for grain milling for production of groats and flour for individual households, were used water mills. The quantity of water mills at the time is estimated to be between 500 000 and 600 000 in Europe itself. Even then it was considered a potential hidden in power of water, which, after all, in 71% cover the Earth`s surface (Quaschning, 2005). The process of generating electricity from hydropower, was discovered in the 19th century and it used the speed of water falling from a height. For this reason, more power could be produced from a small stream flowing down from the mountain, than the mighty river flowing on a level surface. Partly this way of energy generation is maintained until today and is manifested in the construction and operation of hydraulic-pumping plants. Hydropower is also exploiting the power of the water mass flow in rivers, tidal and wave power, usage of temperature difference of water, called ocean thermal energy of the oceans. Although it seems that the energy from the Sun and water are two completely different manufacturing processes, they have a lot in common. Rainfall in fact are caused by the result of evaporation of water on the Earth’s surface, which then transforms into at high altitudes in the life-giving rain, torrential rain and thunderstorms. 80% of this water falls on the marine areas, however, the amount of energy coming out of the water, which flows into rivers and lakes, is able to meet the energy demand of the Earth, if only would be full used (Quaschning, 2010). Wind energy Last one characterized type of the renewable energy source is wind energy. The mechanism of action of wind power is probably the easiest to explain, because in a few words saying it uses the strength of the wind, which with usage of wind turbines is converted into electricity. What’s more modern turbines can operate efficiently even in very strong winds, and even during storms. Doubling of the strength of the wind causes 8 x increase in produced energy (Quaschning, 2010). Production of this type of energy is characterized by high costs. As can be seen from EWEA ( The European Wind Energy Association) Annual Report 2012, in 2012 in the European Union have been installed systems for the production of wind energy with a value between 12 and 17 billion Euros. The growth of such installations is estimated at 11% per annum. The clear leader in terms of production of wind energy are Germany, which in the same 2012 installed 20% EU-wide systems, and as well United Kingdom (16%), Italy (11%) and Spain (9%). 8. The impact of renewable energy sources on the condition of the environment Has the usage of RES a positive impact on the environment? The first indisputable fact is shrinking for the amount of greenhouse gases into the atmosphere, thereby preventing the greenhouse 178 | effect and the radical revision of climate change. The EU`s target is assumed to decrease of CO ₂ in 2020 by 20%. Eurostat statistics show that the organization is on track to achieve the target. In 2010, the EU has succeeded in increasing energy consumption from RES from 6% in 2006 to 12.4% in 2010. This translates directly to decrease greenhouse gas emissions, the quantity of which falls annually. Compared to 1990, emissions decreased by 11%, while recent available data come from 2010, and it is estimated that this figure could even reach 14%. However, it should be noted that there are differences between EU countries progress on the road to designated for them RES levels. Several European Union Member States approaching the target. These include: Sweden (47,9% in 2010 - 2020 goal is 49%), Romania (23.4% in 2010 - 2020 is 24%), Estonia (24.3% in 2010 - 2020 target is 25%). On a good way to achieving the objectives of the European Strategy to 2020 are Denmark, Bulgaria, Austria, but there are also countries which realistically threaten the achievement of the EU objective: United Kingdom (to achieve the objective it`s still lack of 12% of RES share in final energy consumption), Poland (15% in 2020 goal, this country by now achieved only two-thirds of target), Cyprus (13% goal by 2020.- in 2010 achieved 3%) or Ireland (16% target by 2020, only 5.5% share achieved in 2010). Still the largest weak spot of EU`s energy sector is the high degree of import dependence of fossil fuels from outside its borders. In 2010, the index of import dependency formed at 52.7% and although it is a 22% increase compared to 1995, since 2008, has seen its annual decline of 1%. The European Union aims to increase its own production capacity, inter alia, by supporting and promoting the use of renewable energy sources and biofuels. This will improve the condition of the environment, but also will provide the perfect way to become independent from external energy suppliers. It seems that this argument particularly strong should speak for promoting and supporting RES in countries, that in the past were in the area of the eastern bloc. Until now, countries like e.g. Poland, Lithuania or Czech Republic remain heavily dependent on the supply of natural gas and oil from a single supplier - Russian Federation. It is also worth remembering that stocks of oil are slowly running out. It is true that it will never comes to a total absence of this raw material, but it is estimated that for 20 years, none of the countries of the Organization of the Petroleum Exporting Countries (OPEC) will be able to sell this raw material outside its borders for the simple reason: consumption of life-giving for economy fuel in these countries will reach a high level, while running out of the existing resources (Shields, 2010). If the forecast, which say that resources of solid fuels will be completely exhausted within the next 200 years, would prove to be true, renewable energy sources are becoming the only alternative that can provide to countries around the world to achieve energy security, while caring for Mother Earth. If indeed people throughout next 200 years meticulously will use solid fuels residues, any additional actions, including for example, increasing share of RES or increase energy efficiency, will not take the desired effect. The environment will be completely relegated and not fit to let people, plants and animals live in it. The use of renewable energy sources, however, is not without negative effects on the environment and people’s lives. Very controversial energy source is hydroelectric. It has probably the worst impact on nature. Primarily for their construction, it is necessary to remove from the bottom of the river, lake, sea or ocean tones of stones, rocks, plants, which are the habitat of many species of fish and other species living in the water. As a result, many of them are endangered to become extinct or became extinct completely. A lot of small aquatic creatures which are passing through water turbines are rushed by them and killed (Quaschning, 2010). Hydroelectric power station are greatly alter the ecosystem around the area of their work, e.g. by stopping life-giving irrigation process within discharge of the river (this effect was revealed in the Egyptian region of Aswan) or by the need to displacement hundreds of thousands of people from the current place of residence (as it was with the case in the construction of a power plant of the Three Georges in China. It was necessary to displacement one million people residing in 20 cities and about 10 | 179 thousands villages) (Quaschning, 2005). Installations for the production wind power, change vertical layout of landscape. It has a big impact on reducing and extinction of many species of birds that are unable to cope with the change of their surrounding reality. Despite existing safeguards it`s impossible to protect hydroelectric installations against natural disasters such as earthquakes. Those installations may also became a target of a terrorist attack, and the effects of the destruction of the hydroelectric dam could cause a disastrous release of vast quantities of water beyond the riverbed (Quaschning, 2010). Not without a negative effect on the climate and the environment is also the usage of biomass. Uncontrolled use of plants may cause reduction of biodiversity, which has particular significance for many species of trees and is associated with the globe facing problem of deforestation. Skeptics also indicates that the system of energy production from RES often requires more power than the installation is able to produce, but so far such courts have not be proven. There are arguments against renewable energy such as unfavorable appearance of wind installations. At the same time lot of people appreciate wind turbines for an interesting, eye-catching looks for tourists. The space required for the production of heat and power from solid fuels is much greater than this required by RES, and saving the land can be used for many other purposes. It seems that when assessing the negative and positive effects of the use of renewable energy sources, it is necessary to weigh which is more important to us: the decrease in the number of dozens or even hundreds of species of plants, birds, fish, etc. or the safety of the remaining hundreds of thousands of living organisms, including humans. Should it be important to us that the turbines used for generating wind energy does not look nice, while the level of smog in some big cities now realistically threatens people’s lives? 9. Conlusions Environment degradation has become a problem in every country of the Earth and there is no reason to reject the wisdom of actions taken both on the world stage as well on the EU, against climate change. Energy sector - necessary for the correct functioning of each Member States have a negative impact on the environment. Primarily negative impact is caused due to the high level of exploitation of solid fuels. In view of the emerging problems, including the devastating effect greenhouse gases emission up to decreasing EU`s resources and related to this fact high level of import dependence, renewable energy sources today are in the center of the energy policy of the European Union. Indicates for this fact multiplicity of projects related to climate protection, taken by the EU and the Member States, and as well the amount of resources provided for the implementation of these projects in the latest financial perspectives 2014-2020. There are many negative effects of the electricity production from renewable sources, but also there are lot more positives. First and foremost, they are associated with the ability to reduce greenhouse gas emissions, and increased production capacity, which will make it possible to become independent from the supply of raw materials from outside the organization. An excellent summary of the deliberations on energy derived from renewable sources and the next vote in favor for the fact that it is a means to realize the right of every human being to live in a clean and safe environment, are the words coming from Craig Shields` monograph Renewable Energy-Facts and Fantasies (Shields, 2010). “For a moment, take the viewpoint that global warming is a hoax—or at least that addressing it is a quixotic pursuit. OK, but do you doubt that gas and diesel emissions cause cancer? That enriching certain governments in the Middle East endangers everyone of us? That the scarcity 180 | brought about by a declining supply of oil causes military conflict and unnecessary loss of human life? That the damage to fragile ocean ecosystems, which are becoming more acidified each year, is having a profound effect on food supplies and the larger biosphere? It is for all these reasons that the world’s attention seems to be so riveted on renewable energy” References Bodio M., Polityka w sektorze energii [:] Polityki sektorowe Unii Europejskiej, ed. Poboży M., Warszawa 2010. Cziomer E., Międzynarodowe bezpieczeństwo energetyczne w XXI wieku, Kraków 2008. Hunter J.R., Smith Z.A., Protecting Our Environment. Lessons from the European Union, State University of New York Press, 2005. Kundzewski Z.W., Zalewski M., Kędziora A., Pierzgalski E., Zagrożenia związane z wodą, „Nauka” 4/2010, Polska Akademia Nauk, Biuro Upowszechniania i Promocji Nauki, Warszawa 2010. Massai L., The Kyoto Protocol in the UE. European Community and Member States under International and European Law, T.M.C. Asser Press, The Haque. Quaschning V., Renewable Energy and Climate Change, Berlin University of Applied Systems HTW, 2010. Quaschning V., Understanding Renewable Energy Systems, Carl Hanser Verlag GmbH & Co KG, 2005. Tomiałojć L., Ile niepewności w kwestii globalnego ocieplenia, „Nauka” 2/2011, Polska Akademia Nauk, Biuro Upowszechniania i Promocji Nauki, Warszawa 2010. Ploszka A., Zrównoważony rozwój a prawa człowieka [W:] Zrównoważony rozwój – debiut naukowy 2010, ed. T. Jemczura, H. Kretek, Wydawnictwo PWSZ w Raciborzu, Racibórz 2011. Sitek B., Antropologiczne podstawy ochrony środowiska w prawie wspólnotowym, [W:] Prawa człowieka w państwie ekologicznym, pod red. R. Sobańskiego, Warszawa 1998. Sitek M., Polityka ochrony środowiska w sektorze usług turystycznych w świetle prawa Unii Europejskiej, Wydawnictwo UWM, Olsztyn 2007. Shields C., Renewable Energy. Facts and Fantasies. The tough realities as revealed in interviews with 25 subject matter experts, Clean Energy Press, 2010. Acts of law Communication from the Commission, A Sustainable Europe for a Better World: A European Union Strategy for Sustainable Development (Commission’s proposal to the Gothenburg European Council), Brussels, 15.5.2001, COM(2001)264 final. Directive of the European Parliament and of the Council of 23 April 2009 amending Directive 2003/87/EC so as to improve and extend the greenhouse gas emission allowance trading scheme of the Communit,, 2009/29/EC Directive of the European Parliament and of the Council of 23 April 2009 amending Directive 98/70/ EC as regards the specification of petrol, diesel and gas-oil and introducing a mechanism to monitor and reduce greenhouse gas emissions and amending Council Directive 1999/32/EC as regards the specification of fuel used by inland waterway vessels and repealing Directive 93/12/EEC, 2009/30/EC. Directive of the European Parliament and of the Council of 23 April 2009 on the promotion of the use of energy from renewable sources and amending and subsequently repealing Directives 2001/77/EC and 2003/30/EC, 2009/28/WE. Regulation of the European Parliament and of the Council of 23 April 2009 setting emission perfor- | 181 mance standards for new passenger cars as part of the Community’s integrated approach to reduce CO2 emissions from light-duty vehicles, (EC) No 443/2009. The Kyoto Protocol to the United Nations Framework Convention on Climate Change, United Nations 1998. Reports European Environment Agency Report, Climate change, impacts and vulnerability in Europe 2012, EEA Report No 12/2012, Published: Nov 21, 2012. EU Energy in Figures. Statistical Pocketbook 2012, Luxembourg: Publications Office of the European Union, 2012 Internet sources Additional Protocol to the American Convention on Human Rights in the area of economic, social and cultural rights “Protocol of San Salvador” http://www.oas.org/juridico/english/treaties/a-52.html AEBIOM Annual Report 2012, http://www.aebiom.org/wp-content/uploads/file/Final%20AEBIOM%20Member%20Catalogue/2012%20AEBIOM%20Annual%20Report%20%282013%29%20final%20version_small. pdf Banjul Charter on Human Rights and people’s Rights http://libr.sejm.gov.pl/tek01/txt/inne/1981. html. Declaration of the United Nations Conference on the Human Environment, 16 June 1972. http:// www.unep.org/Documents.Multilingual/Default.asp?documentID=97&ArticleID=1503 EGEC Geothermal Market Report 2012, http://geo-energy.org/pdf/reports/2013AnnualUSGeothermalPowerProductionandDevelopmen tReport_Final.pdf EWEA Annual Report 2012, The European Wind Energy Association http://www.ewea.org/publications/reports/?no_cache=1&tx_err_pi1[showReport]=44&cHash= 92b2c44171e809d9fdc4555d494419a2 Global Market Outlook for Photovoltaics 2013-2017,European Photovoltaic Industry Association http://www.epia.org/index.php?eID=tx_nawsecuredl&u=0&file=/uploads/tx_epiapublications/ GMO_2013_-_Final_PDF_01.pdf&t=1373366268&hash=8fd1908b47a1942999cd6ebaf41a76 64185d6d4f Statistical Review of World Energy 2013, British Petroleum. http://www.bp.com/content/dam/bp/pdf/statistical-review/statistical_review_of_world_energy_2013.pdf (Endnotes) 1 The principles from the Stockholm Declaration (1972) year should include in particular: elimination of policies promoting or perpetuating apartheid, racial segregation, discrimination, colonial and other forms of oppression and foreign domination, the need for safeguard of natural resources of the earth, including the air, water, land, flora and fauna and especially representative samples of natural ecosystems, maintain of capacity of the earth to produce vital renewable resources, receive importance in planning for economic development of nature conservation, including wildlife and others. 182 | 2 3 4 5 6 7 8 http://ec.europa.eu/clima/publications/docs/factsheet_climate_change_2012_pl.pdf (28.04.2013r.) For more informations about European energy policy see: Międzynarodowe bezpieczeństwo energetyczne w XXI wieku, ed. E. Cziomer, Kraków 2008 and Bodio M., Polityka w sektorze energii [W:] Polityki sektorowe Unii Europejskiej, ed.. M.Poboży, Warszawa 2010. Report Climate change, impacts and vulnerability in Europe 2012 (EEA Report No 12/2012) is available In the EEA`s website http://www.eea.europa.eu/publications/climate-impacts-andvulnerability-2012 (12.06.2013) http://www.bp.com/extendedsectiongenericarticle.do?categoryId=9041560&content Id=7075261 (28.06.2013) EPIA report Connecting the sun. Solar photovoltaics on the road to large-scale grid integration is available on the association`s website www.epia.org or directly www.connectingsun.eu (27.06.2013) Costs of production of 3 KW energy In the household installation PV system In 2000 amounted about 20 000 Euros, In 2012 about 6 000 Euros. Estimated cost of production the same amount of energy in 2020 is 4 500 Euros. This data concerns on lowland plain In Germany (area of Rhine River) which are recognized as a the most advantageous geothermal conditions In this country. | 183 184 | Michele Russo Alcide De Gasperi University of Euroregional Economy in Józefów [email protected] The effectiveness of the protection of the rights of the detaines in the light of the judgement of European Court of Human Rights of 8 January 2013 on case Torreggiani and other c. Italy Abstract This paper analyzes the implications of the judgment of the European Court of Human Rights in Strasbourg, Torreggiani and other c. Italy, on the effectiveness of the protection of the rights of the prisoner in the Italian system. Ratio of the judgment-pilot and art. 46 C.E.D.U.. The case Torreggiani and other c. Italy: a pilot-judgment. Violation of Article. 3 C.E.D.U. Principle of subsidiarity. The dichotomy between preventive and compensatory remedies. Concluding remarks. Keywords: prison conditions – pilot-judgment - Human Rights - European Court of Human Rights - Italy 1. Introduction In its judgment Torreggiani and other c. Italy, the Strasbourg Court has been able to comment on detention conditions in Italy after almost four years by the famous arrest Sulejmanovic c. Italy1, highlighting the structural and systemic prison overcrowding in Italy. Prison overcrowding in the reasoning of the judgment-pilot becomes in itself a fact inconsistent with the treaty obligations, the cessation of which is imposed as a consequence to the state. The ruling Sulejmanovic c. Italy had held that the inmate placed in a circuit overcrowded penitentiary was to be considered for this reason alone the victim of inhuman and degrading treatment2. This argument was centered on the consideration, on the one hand, of the violation by the State and, secondly, the consequent repercussions on the individual sphere. The judgment Torreggiani and other c. Italy contains a ruling more complex. Recognizes in this case a violation of Article. 3 ECHR and grants resulting in a mind “satisfaction équitable”, on the other hand, projects the case on the floor of a factual situation and generalization in itself incompatible with conventional dictation and, as such, subject to an obligation to elimination burden on the state. 2. The case Torreggiani and other c. Italy: a pilot-judgment 2.1 The January 8, 2013, the Court of Human Rights ruled against Italy for violation of Article 3 ECHR because of prison overcrowding experienced by the applicants within the structures that host them. In particular, the judges of Strasbourg, after noting the high number of pending re-courses based on the same violation, adopted a pilot-judgment with which it asks Italy to adopt, within one year after the decision shall be final, domestic remedies “preventive” or “compensatory” capable of providing adequate satisfaction in cases of prison overcrowding. | 185 2.2 Relying on Article 3 of the Convention, the applicants argued that their respective conditions of detention in prisons of Busto Arsizio and Piacenza constituted inhuman and degrading treatment. Article 3 of the Convention reads as follows: “No one shall be subjected to torture or to inhuman or degrading treatment or degrading.” The applicants complained about the lack of living space in the respective cells. Having divided all cells of 9 square meters with two other people, they would have had at the disposal a personal space of 3 square meters. This space, insufficient in itself, however, was further reduced by the presence of furniture in the cells. In addition, the applicants complained of the existence of serious problems of distribution of hot water in prisons of Busto Arsizio and Piacenza. They say, for a long time the lack of hot water has limited to three times to set-Timana access to the shower. Finally, the applicants held in Piacenza complained affixing the windows of the cells of heavy metal bars that prevented air and daylight to enter the premises. 2.3 The Court of Human Rights found that usually the custodial measures entail for the prisoner some drawbacks. However, it pointed out that incarceration does not thereby lose the prisoner the benefit of the rights enshrined in the Convention. On the contrary, in some cases, the person detained may need greater protection because of the vulnerability of his situation and the fact of being totally under the responsibility of the State. In this context, Article 3 ECHR imposes an obligation of the authorities that posi-tive is to ensure that each prisoner is detained in conditions which are compatible with respect for human dignity, that the manner of execution of the measure do not pose sub- the person concerned to a state of despondency nor a test of strength that exceeds the unavoidable level of suffering inherent in detention and that, given the practical demands of imprisonment, health and well-being of the prisoner are adequately insured (c Kudła . Poland [GC], no. 30210/96, § 94, ECHR 2000-XI; Norbert Sikorski c. Poland, § 131). 2.4 In light of the foregoing, the Court held that the applicants had not be-neficiato of living space meets the criteria acceptable to it with its case-law. Although the ECHR has admitted that in this case nothing was suggested that there was intention to humiliate or degrade the applicants, the absence of such an aim could not rule out a finding of violation of Article 3 occurred. 3. Pilot-judgment and art. 46 ECHR 3.1 The Court of Human Rights has found that prison overcrowding in Italy concerns not only the cases of the applicants. It noted, in particular, that the structural and systemic lament overcrowded prison in Italy it is clear from the statistical data as well as the terms of the declaration of a state of national emergency proclaimed by the President of the Italian Council of Ministers in 2010. These data taken together show that the violation of the applicants’ right to adequate deten- 186 | tion conditions is not the result of isolated incidents, but originated in a systemic problem resulting from a malfunction of chronic own Italian penitentiary system. In accordance with the criteria laid down in its case law, the Court of Human Rights has decided to apply the pilot-judgment procedure in the present case, given the growing number of people potentially affected in Italy and judgments of infringement to which the actions in question may give place. 3.2 The provision relied on to justify the type of judgments in question is not violated in the case (Article 3 ECHR), but the art. 46 ECHR, because in the pilot-judgment is not to stigmatize a systematic violation of fundamental rights, but rather to respond to a widespread dysfunction at the national level, and as such does not play the characteristics of the violation of a fundamental right, but, on a plan differ-ent, is basically an objective impediment to the execution of the dicta of Strasbourg. In the same terms of the judgment Torreggiani had expressed the same court a few months before, in the case Ananyev and other c. Russia (10 January 2012)3. Even at that time the Strasbourg judges had decided to use the instrument of the pilot judgment ruling, given the endemic nature assumed by the phenomenon of prison overcrowding. The device reads that the respondent State must produce, in cooperation with the Committee of Ministers, within six months from the date of the res judicata court judgment, a detailed timetable by which to make available a set of effective remedies, preventive and compensatory meeting the requirements set out in the ruling itself4. The decision on Russia has resulted in a ruling more stringent than that assumed in the case Torreggiani. It was not willing suspension of appeals in eadem materia, the time allowed was six months instead of one year and, in addition, the State has been assigned the obligation to draw up - in cooperation with the Committee of Ministers - a specific plan , in which to identify the necessary measures to implement instances of Strasbourg. 4. The principle of subsidiarity 4.1 In its judgment Torreggiani and other c. Italy, there is a significant part devoted to the analysis of compliance with the cd Principle of Subsidiarity, the rule that you can resort to the Strasbourg Court only after he has exhausted all remedies available within the legislation. On this point, the Italian Government had stated fully the nature of the judicial proceedings in the Supervisory Judge, by reason of the fact that each detainee has the opportunity to propose Complaint under Articles. 35 and 69 of Law no. 354, 1975. In the present case, the Judiciary Supervisory Reggio Emilia, prompted by some of the applicants on the problem of overcrowding and the conditions of detention, had intervened and had received complaints, noting that the limited space available to detainees integrate inhuman and degrading and would put into even a difference in treatment, given that other inmates could be living in larger spaces. The decision, however, despite being notified by the judge to the Ministry of Justice and Penitentiary Administration has not been pursued in terms of “practice.” 4.2 On this listing has focused the ECHR’s judgment in comments to see if indeed the principle of subsidiarity had been observed before resorting to the supranational court. | 187 The Strasbourg Court has shown that it is crucial to establish the administrative or judicial review of the complaint pursuant to art. 35 ord. penit., but, as necessary, rather, to evaluate the effectiveness of that remedy (§ 51 and 52). A question to which the same Court of Human Rights has provided a negative response into account the fact that in this case, some of the detainees had made use of this tool without which it sortisse no real effect (§ 52). The assessment in negative terms given by the Court of Human Rights with regard to the effectiveness of the complaint also took into account the general structural situation of prison overcrowding in the context of which has not been demonstrated the effectiveness of that remedy, that is, whether it’s suitable instrument to “prevent the continuation of the alleged infringement and to ensure the applicants an improvement in their material conditions of detention. These were therefore not required to exhaust it before referral to the Court “(§ 55). Moreover, the Court noted that the failure of the remedies “preventive” in situations of prison overcrowding is largely dependent on the structural nature of the phenomenon (Ananyev and other c. Russia, § 111). 4.3 From the files of the applications, as well as the reports on the state of the Italian prison system, it was found that the prisons of Busto Arsizio and Piacenza were abundantly overcrowded, as well as a large number of Italian prisons, to the point that prison overcrowding in Italy had assumed the dimensions of a structural phenomenon and not related solely to the particular case of the applicants. Therefore, it was easy to imagine that the Italian prison authorities were not able to carry out the decisions of magistrates and detainees and to ensure that conditions of imprisonment in accordance with the Convention. In light of these circumstances, the Court held that there is no evidence that the remedy indicated by the Government, particularly in view of the situation “current” of the prison system, to be effective in practice, namely that it can prevent the continued alleged infringement of the applicants and to ensure an improvement in their material conditions of detention. These were not, therefore, required to exhaust it before you go to Court. 5. The dichotomy between preventive and compensatory remedies The Court concludes that the national authorities must immediately create an ap-peal or a combination of appeals that have preventive and compensatory and guarantee-no really effective redress. 5.1 In terms of looking for remedies “compensatory” for those detained in prison, suffer a violation of fundamental rights and receive, because of overcrowding, inhumane and degrading treatment, the Court of Cassation in its judgment of 15 January 2013, n . 4722, Vizzari, ruled out the possibility that the Supervisory Judge may decide on damages for non-pecuniary damage in respect of the prisoner, but on the con-time, took charge of emergencies reported by the Court of Human Rights in its judgment Torreggiani c. Italy and obligations resulting for our country. Moreover, even after the judgment Sulejmanovic c. Italy, had raised the issue of Recoverability of the prisoner for reasons due to overcrowding. In particular, in the wake of the judgment, the Supervisory Judge of Lecce, by order of 9 June 2011, upheld the complaint of a prisoner who denounced a number of situations (space of the cell, bed, lack of space for holding social activities) in which it was to live the execution of the 188 | sentence. On that occasion, it was considered that the situation complained integrate both violations of national law, whether the fundamental rights enshrined in the ECHR and has received compensation in favor of the plaintiff due by the Prison Administration. It was the first time you took a decision of that kind in our legal system. The case was unique, since other magistrates and felt that the recognition of such compensation did not fall within their competence (the Supervisory Judge of Vercelli, ord. Apr. 18, 2012). 5.2 With reference to the research of domestic remedies - at unchanged legislation - to prevent the perpetration of violations of fundamental rights, the Probate Court of Venice, dated February 13, 2013 has raised a question concerning the constitutional article . 147 Č.p. insofar as it does not include, in addition to the cases expressly contemplates, the possibility of referral optional nonexecution of the sentence when it should carry-tact in conditions contrary to human dignity, for violation of Articles. 27, paragraph 3, 117 paragraph 1, 2 and 3 of the Constitution. This is the first response - always through case-law that - in the sort order you try to develop relevant and postponed the problem addressed by the judgment Torreggiani c. Italy. 6. Conclusions The Italian legal system thus offers already on unchanged legislation, a system of preventative remedies and compensatory compatible with the interpretation of the Convention made by the judgment Torreggiani. Although recently the home detention and killing of the phenomenon of the “revolving doors”, the implementation and retrieval of prison facilities and the coordinated action of other interventions of the Department of Penitentiary have led to a steady decrease of the detainees - the Italian situation is characterized negatively by the rate of prison overcrowding and prison conditions currently too often integrate a violation of Article. 3 of the Convention. Noting that the impracticability of the pardon and evaluating suggested recourse to the suspension of execution of sentence of imprisonment would cause deep inequalities, is to be considered necessary for the adoption of urgent measures that cannot be represented only by laws of decriminalization and reduction the length of prison sentences, from less use to the application of pre-trial detention and from encouraging alternative sanctions, these measures repeatedly imposed by the Council of Europe. It is suggested that the legislator a concrete path, the increase of the extent of early release, with consequent reduction in the length of the sentence, as a measure of rewards applicable to all sentenced prisoners, when they give evidence in the path re-educates-ment already made, the compliance with the rules of communal living and responsible behavior oriented to the recovery and re-socialization. References ALLORIO, Saggio polemico sulla «giurisdizione» volontaria, in Rivista trimestrale di diritto e procedura civile, 1948, ora in Sulla dottrina della giurisdizione e del giudicato e altri studi, Milano, 1957, 35; CANEPA-MERLO, Manuale di diritto penitenziario, Milano, 2010, 603 e ss.; FIORENTIN, Carceri italiane: tutela risarcitoria entro un anno per le vittime del sovraffollamento delle prigioni, in Guida al diritto, n. 7, 9 febbraio 2013; | 189 GARGANI, Sovraffollamento carcerario e violazione dei diritti umani: un circolo virtuoso per la legalità dell’esecuzione penale, in Cassazione penale, 2011, 1279; MACHINA GRIFEO, Carceri sovraffollate: Venezia chiede il rinvio della pena. Avvocati, nuova strada per i diritti, in Guida al diritto, 19 febbraio 2013; VIGANÒ, Sentenza pilota della Corte EDU sul sovraffollamento delle carceri italiane: il nostro Paese chiamato all’adozione di rimedi strutturali entro il termine di un anno, in www.penalecontemporaneo.it, 09 gennaio 2013. (Endnotes) 1 European Court of Human Rights, Section II, July 16, 2009, Sulejmanovic c. Italy 2 European Court of Human Rights, Section II, July 16, 2009, Sulejmanovic c. Italy § 43: “Aux yeux de la Cour, le manque flagrant d’espace personnel dont le requérant a souffert est, en soi, constitutif d’un traitement inhumain ou dégradant. 3 European Court of Human Rights, Section I, January 10, 2012, Ananyev and other c. Russia 4 European Court of Human Rights, Section I, January 10, 2012, Ananyev and other c. Russia. n. 7: “The respondent State must produce, in co-operation with the Committee of Ministers, within six months from the date on which this judgment becomes final, a binding time frame in which to make available a combination of effective remedies having preventive and compensatory effects and complying with the requirements set out in the present judgment”. 190 | Paulina Siejka University of Warmia and Mazury [email protected] The coercive measures and protection of human rights Abstract This article raises issue which applies use means of direct force by functionary of Polish services. On the one hand, are presented regulations of the act of 24th May 2013 about the coercive measures and firearm, but on the other hand – position of Helsinki Foundation for Human Rights and Amnesty International Poland on legal regulations contained in the act and the bill. More that one, services’ actions for using the means of direct force break basic rights and liberties of the individual. Analysis of the problem will answer the question that stating coercive measures are safe or can be dangerous for health and even human’s life. Keywords: security, coercive measures, firearm, legal regulations, human rights 1. Introduction In democtratic state, which is the Republic of Poland, issue which applies using the coercive measures and firearm has great significance. The means of direct force are defined in the act and they are using in case, when somebody doesn’t submit to functionary’s orders, accordance with law. The use of their is causing physical injury for person, who doesn’t submit to this orders (red. W. Pływaczewski, G. Kędzierska, Leksykon policyjny, Szczytno 2001, s. 32). It should be emphasized that linking the means of force with interference in individual’s basic rights is inevitable (M. Czajka, A. Światłowski, Prawo w diagramach, Kodeks postępowania karnego, Warszawa – Bielsko – Biała 2009, s. 95). In other words – using this means involves with limit of constitutional liberties and rights (R. Netczuk, Przesłanki i warunki użycia środków przymusu bezpośredniego przez polskie służby porządkowe w świetle gwarancji praw człowieka i obywatela – cz. I, Monitor Prawniczy 2011, Nr 3, s. 1253). Therefore, it is unquestionable that, especially in such cases must be protected such values as life, health and human dignity, which Constitution gurantees in article 30, 38, 68 et. al. Should be not forget about fundamental rights, which are guranteed in The Convention for the Protection of Human Rights and Fundamental Freedoms. The basis for all considerations is verdict of 17th May 2012, in which Constitutional Tribunal ruled that regulation about using the means of direct force and firearm in decrees is incompatible with Constitution (Wyr. TK z 17 maja 2012 r., K 10/11, Dz. U. 2012, Nr 0, poz. 627). Result of this is act on coercive measures and firearm of 24th May 2013, which came into force 5th June 2013. In this act are included all formations, which functionary, guards, soldiers, inspectors and workers entitled to use coercive measures and firearm. Were introduced new coercive measures, such as: explosives, bangers and grenades bang-flash. Must not use gas gun and lock of knee joint. Using of fen ces are forbidden too – handcuffs took their place (www.sejm.gov.pl). It is worth adding that act on Customs Service changed. Moreover, is annuled The Council of Ministers’ Regulation of 9th March 2010 on use coercive measures by the customs officers (Dz. U. Nr 45, poz. 258) and The Council of Ministers’ Regulation of 22nd December 2009 on usind firearm by the customs officers (Dz. U. Nr 6, poz. 31). In according with mentioned Constitution Tribunal’s decision and effect of coercive measures on limit basic rights and freedoms, which every person fully deserve, should be considered rea- | 191 sonable to take the initiative to create comprehensive regulation of statutory rank by the then Ministry of Internal Affairs and Administration (Stanowisko Helsińskiej Fundacji Praw Człowieka i Stowarzyszenia Amnesty International Polska do Projektu założeń do ustawy o środkach przymusu bezpośredniego i broni palnej z 14 lipca 2011 r.). The purpose of passing the act on coercive measures and firearm – what results from assumption of the bill on coercive measures and firearm – are changes in law system, which should aim to put regulations in order and standarising to refer to use coercive measure and firearm by entitled (Pkt 4.2. Projektu założeń projektu ustawy o środkach przymusu bezpośredniego i broni palnej z 11 marca 2011 r.). However, one must think about: do offered statutowy solutions take into consideriation basic rights for every person? Helsinki Foundation of Human Rights and Amnesty International Poland have had position in this case since the moment when first bill about coercine measures and firearm (hereinafter referred to as assumptions’ Project). During the initial phase of creating the bill, they stated that: „ both actual legal status, and proposed solutions to use coercive measures and firearm aren’t satisfactory” (Stanowisko Helsińskiej Fundacji Praw Człowieka i Stowarzyszenia Amnesty International Polska do Projektu założeń do ustawy o środkach przymusu bezpośredniego i broni palnej z 14 lipca 2011 r.). Therefore, it is appropriate to show, how the formation selected - the most important from point of view human rights – regulation discussed act process was shaped. And what contribution in this have Helsinki Foundation of Human Rights and Amnesty International Poland. Below considerations allow for ask the most import ant question: Are all the coercive measures safe for people? 2. The protecion of basic rights in Constitution RP and The Convention for the Protection of Human Rights and Fundamental Freedoms What was said in introduction, can not be used coercive measures without limitations, because it can violate basic individual’s values, such as: health, life or human dignity. In article 30th, Constitution provides, that inborn and unalienable human dignity is source of freedoms and rights human and citizen. It is inviolable, and public authorities have a duty respect and protect it. The legislator formed dignity inviolable rule, which consists of prohibition of any activities by any person, which may affect or only limit this dignity. Public authorities are required to respect and protect it. It is shown by formation procedures system, legal orders and prohibitions, which should prevent all threats and dignity violable (B. Banaszek, Konstytucja Rzeczypospolitej Polskiej. Komentarz, Warszawa 2012, Legalis 2013; zob. J. Krucina, Drogami Kościoła, Wrocław 2000, s. 385). Undoubtedly, this nature also should have the provisions of act on coercive measures and firearm, that it was not possibile interferencje in basic value – human dignity. Next provision, extremely important in protection basic individual’s values, is article 38th from Constitution, which provides that the Republic of Poland gurantees legal life protection for every person. State agencies are obliged by provides to activities, which eliminate or at least reduce any life threats. In connection with this issue, special significance has legislator’s obligation to achieve program included in Constitution, and create law, which is specifing of its. This law should take into consideration actual reality and views, and values, which are accepted by society at a time. Undoubtedly, position of Helsinki Foundation of Human Rights and Amnesty International Poland presented in next part of this article was very helpful for legislator to carry out obligation during creating act on coercive measures and firearm. The article 2nd from The Convention for the Protection of Human Rights and Fundamental Freedoms guarantees right to life too. In accordance with act 1st, every person’s right t life is protected by act. Nobody can be deliberately deprived of life, apart from enforce the award of a court, which sentences for crime, for which the act provides the punishment. However, paragraph 2nd states that depriving of life will not be recognize for contr ary to this article, if will be 192 | result of absolutely necessary using force: to defend any person against violence, to do arrest or prevent escape an imprisoned person (in accordance with law), and in actions in accordance with law to quell riots or uprising. The act on coercive measures and firearm contains regulations, which regulate procedure in the event of human death. The example may be article 10th, paragraph 1st, the act: „ in the case, when in result of using coercive measures or firearm the person died or was hurt by using firearm, competent superior or person who is on duty – regardless of obligation, which are discussed in article 39th, paragraph 1st – immediately provides help for entitled person, especially psychological and legal”. Taking the article 2nd ECHR into account, it must be underlined that circumstances when activities of public authorities can cause human death in justified way, are associated with necessary reaction for drastic disruption society functioning. The reaction may include on using of force, but must be directed to protection of law and order in every case. The caused death must be only inevitable side effect of justified force using. In article 2nd, paragraph 2nd ECHR, three situations, when death can be result of using force by public functionary, are pointed out. This regulation reguires legal using of force and absolutely necessary at the same time. Taking judicial decisions into account, generalny speaking that the catalogue is not-numbering, well no other reason does not justify using of force with human death as a result. Moreover, we can not interpret in expanded way situations, which were listed earlier (L. Garlicki, P. Hofmański, A. Wróbel, Konwencja o Ochronie Praw Człowieka i Podstawowych Wolności. Komentarz do artykułów 1–18. Tom I. Komentarz, Warszawa 2010, Legalis 2013). First of all, legality requirement applies to assessment of the officers’ effectivenes by the national legislation prism. Using the force by the functionary must have concrete legal basis. The legal basis should be clearly and precisely defined, to allow specify criteria of using force in concrete cases, to indicate cases when using this force is unacceptable, to indicate the way of using force and kind of used gun in particular. European Court of Human Rights said that during performing one’s obligations, competent agency can not be suspended in void. Therefore, statutory and administrative provisions system is necessary to defined cases mentioned above, in which functionary can use force and firearm. National regulations must be in agrement with international standards of human life protection. That’s why, it should be noted on „The rules of using force and firearm” agreed in 1990 by United Nations. But, in accordance with requirement of „absolutely necessary” using force must be proportional to current situation, nature and intensity of threat for functionary in particular (L. Garlicki, P. Hofmański, A. Wróbel, Konwencja o Ochronie Praw Człowieka…). Other, extremely important regulation for discussed issue is article 68th from Constitution. In accordance with this article every person is entitled to health protection. Doubtless, this law refers to constitutional rights B. Banaszek, Konstytucja Rzeczypospolitej Polskiej…), described above. Specially important is health protection in aspect of functionary’s possibilities to use overpowerly, deafening and dazzling measures. One should not forget about article 41st from Constitution, which in paragraph 1st states that everybody has ensured personal inviolability and personal freedom. Deprivation or limitation liberty must be made in accordance with rules defined in act. Personal inviolability must be treat as prohibition all interferences into physical and psychical human integrity. The state must ensure this, so any organ can not make this interferences. Moreover, public authorities have obligation to prevent performing interferences by other entities within the Republic of Poland. That is establishing appropriate statutory solutions, activity the executive power and subordinated institutions, as well jurisdiction activities. The legislator allows possibility of personal freedom sentence or limitation by the act. From this fact results that permitted form of personal freedom sentence or limitation will be defined by legislator, for example in the act about coercive measures and firearm (B. Banaszek, Konstytucja Rzeczypospolitej Polskiej..). | 193 3. The position of Helsinki Foundation of Human Rights and Amnesty International Poland in issue concern regulation contained in the act of 24th May 2013 3.1 Shortening procedure before fire a shot One of the problems, which Helsinki Foundation of Human Rights and Amnesty International Poland commented in their position of 14th July 2011 (Stanowisko Helsińskiej Fundacji Praw Człowieka…) is shortening procedure before fire a shot, proposed in assumption’s Project. In accordance with assumption’s Project procedure will be as follows: functionary after shout, which identifies1 service or formation, should persuade person to behaviour consistent with the law. If this person will refuse, entitled has obligation to threaten using firearm, calling: „Freeze! Shoot!”. In accordance with assumption’s Project is possibility that this procedure is not use, when person who has gun or dangerous thing is serious danger for entiteld or each other person’s health and life. In justification of assumption Project emphasized that mentioned record was introduced, because specifics of operations, which are used to entitled or each other person’s health or life protection and which are carried out at the same time, for lack of time and heterogenous threats, often need elimination „don’t give a margin for realisation any additional activities, which are necessary to life rescue” (Pkt 9.9. Projektu założeń projektu ustawy o środkach przymusu bezpośredniego i broni palnej z 11 marca 2011 r., Uzasadnienie). Every additional duty assigned by legislator, several times increases threat loss of life by every person who is entitled and can causes officer’s or other person’s death. However, according to Helsinki Foundation of Human Rights and Amnesty International Poland services’s comfort and work safety, which are entitled to use coercive measures and firearm exceed human rihgts and citizen freedoms guaranteed by Constitution RP and this fact is alarming. It should be indicated that it is unacceptable if we will see by human rights prism. Not be allowed to increasing of threat for other person’s health and life (Uwagi Helsińskiej Fundacji Praw Człowieka i Stowarzyszenia Amnesty International Polska do projektu założeń ustawy o środkach przymusu bezpośredniego z dnia 6 lipca 2012 r.), because of facilitation the work of officers. In spite of this objections to bills, regulation was not change and in the same form is in article 48th, paragraph 2nd, the act of 24th May 2013 on coercive measures and firearm. 3.2 Resignation from fire warning shoot Next matter, which Helsinki Foundation of Human Rights and Amnesty International Poland brought up is incorrect resignation from warning shoot. In accordance with assumption Project Basic requirement to using firearm – under law – is necessity of making a decision about using firearm very carefully, using firearm as extreme measure in a safe manner, which is not dangerous for outsiders. The rapid development of urbanization butli-up areas, both city and village should be noted. It is according with increasing population den sity and visible loss of open space, and technical capabilities of firearm, which may cause fatal shocks to the whole lenght of the bullet flight (during free-fall too). Therefore, it should be noted that in most cases to fire warning shoot is dangerous for outsaider’s, entitled person’s or perpetrator’s safe. The same, fire warning shoot and assuring listed people safety, or expecting every threats is impossible. Well, requirement to fire warning shoot consistents with the legislator’s intention about the best protection human health and life, stopped perform a protective function. And what’s more – creates threats (Pkt 4.2 Projektu założeń projektu ustawy o środkach przymusu bezpośredniego i broni palnej z 11 marca 2011 r.). Helsinki Foundation of Human Rights and Amnesty International Poland, without contess this position, said that it doesn’t exhaust whole issue. It must be noted that we have benefits too, except negative effects this procedure. We have benefits such as: impast upon the mentality of 194 | a criminal and crown behavior (Stanowisko Helsińskiej Fundacji Praw Człowieka i Stowarzyszenia Amnesty International Polska do Projektu założeń do ustawy o środkach przymusu bezpośredniego i broni palnej z 14 lipca 2011 r.). Definitely, in act on coercive measures and firearm is introduced obligation to fire warning shoot to safe direct, with possibility to Draw back from this procedure, if it is dangerous for entitled or other person’s health and life (Art. 48 ust. 2 ustawy o środkach przymusu bezpośredniego i broni palnej z 24 maja 2013 r.). 3.3 Limitations of using coercive measures and firearm In assumption’s Project is also introduced a record, which tell that can not use firearm against: visible pragnant women, people before 13 years old and disabled people. In justification of assumption’s Project is shown entitled’s mode of activity, who undertakes an interventionagainst person, who hides his true identity. It is assumed that because of factors such as lack of time, stress because of life threats, and the pressure of the need to make decisions at risk sentencje of imprisonment, entitled is not be able to buick statement if threatening person is: adult small in stature, woman or child befor 13 years old, person who is hidding under clothes a dangerous thing, or woman who simulated pregnancy or woman with visible pregnancy; person who simulated disability or person with visible disability, infirm person in full force or elderly man. It may be according with possibile a terrorist attack (Pkt 9.9. Projektu założeń projektu ustawy o środkach przymusu bezpośredniego i broni palnej z 11 marca 2011 r., Uzasadnienie). Helsinki Foundation of Human Rights and Amnesty International Poland underlined that this approach to the problem is not to accept. Invoking the danger of an abstrakt nature caused justifying entry into the legal systems such regulations, which significantly reduced constitutional rights and freedoms. Moreover, in position underlined that was not and not attempted terrorist attack in Poland in the past (Stanowisko Helsińskiej Fundacji Praw Człowieka i Stowarzyszenia Amnesty International Polska do Projektu założeń do ustawy o środkach przymusu bezpośredniego i broni palnej z 14 lipca 2011 r.). Comments of organization are included in the act – the rule is not using coercive measures and firearm against people listed above. The situation when is necessary beating off an illegal and direct attack on life and health is exception in this issue. And what’s more – using the other coercive measures against this people occurs with regard person’s condition (Zob. art. 9 ustawy o środkach przymusu bezpośredniego i broni palnej z 24 maja 2013 r.). 3.4 The each other kinds of coercive measures Extremely important modification of using coercive measures is possibility using new kind of coercive measures by formation. Assumption’s Project popularizes using objects, which are used to render helpless by electrical energy. Justification is efficient performing of a tasks regulated by the act. Helsinki Foundation of Human Rights and Amnesty International Poland underlined this situation was criticized by socjety – in the past, fatal accidents with use measures which render helpless and needed electrical energy took place. Broad spectrum of situations, when is possible using objects, which are used to render helpless by electrical energy causes alarm. In accordance with Minister’s of the Interior mind, must be underlined that this measure may be between truncheon and firearm (Stanowisko Helsińskiej Fundacji Praw Człowieka i Stowarzyszenia Amnesty International Polska do Projektu założeń do ustawy o środkach przymusu bezpośredniego i broni palnej). In mind of Helsinki Foundation of Human Rights list of situation, when this objects can be used, should be limited. Necessary is exhaustive and precisely indication, which coercive measures can not be linked. The bill introduced requirement, that using objects which are intended to render helpless by electrical energy can not aim at head (Art. 24 ust. 4 Projektu ustawy o środkach przymusu bezpośredniego i broni palnej). Must be limited spectrum of using them – need to eliminate | 195 possibility aim a beam of electrical energy from paralizator at neck or thorax. It may be serious threat for healt or life person’s who has problem with heart. Additional, necessary is introducing precise time limit for using paralizator, not longer than 5 seconds (Stanowisko Helsińskiej Fundacji Praw Człowieka i Stowarzyszenia Amnesty International Polska do Projektu założeń do ustawy o środkach przymusu bezpośredniego i broni palnej). Assumption’s Project assumed possibility wide scope of using measures, which cause disfunction of many senses and organs. As regards this measures, they are: overpowerly, deafening and dazzling measures. It must be underlined that justification of the bill only briefly explains, how is target of using mentioned measures. Introduction of them will have big impact on increasing officers’ safety during activities. Additionaly, using this measures will result lower risk for people’s life or health than using firearm. Using this measure not causesloss of life person’s who against was used. Uncertain is fact, is negative effects for human senses only temporary? For example – bought by Police equipment LRAD can emit an acustic wave, which energy has 151dB, according with weather – has Got a possibility transmission of voice commands at a distance 500-700 m and warning, dissuasive and incapacitating signals at a distance to 1000 m. (Stanowisko Helsińskiej Fundacji Praw Człowieka i Stowarzyszenia Amnesty International Polska do Projektu założeń do ustawy o środkach przymusu bezpośredniego i broni palnej). For comparison: sounds, which intensity level exceeds 120dB are received by human ear as feeling the pain. An example is sound from jet engine at a distance 10 m. Is scientific validity that sound with intensity above 145 dB damages hearing (M. Lewcun, B. Matoga, Fizyka, Kraków 2009, s. 73-74; zob. R. Makarewicz, Dźwięki i fale, Poznań 2011, s. 49.). In this situation, issue must be consider by prohibition of torture and inhuman treatment prism, results from article 3 from European Convention of Human Rights. By this article is introduced prohibition treatment people in the way, which is contrary with nature of human dignity. First of all, the treatment such causes physical and mental suffering. This prohibition is generalny referred as maltreatment prohibition. Maltreatment is when the victim is treated in the manner above the minimum level of severity (Red. L. Gardocki, Konwencja o Ochronie Praw Człowieka i Podstawowych Wolności, Komentarz do artykułów 1 – 18, T. I, Warszawa 2010, s. 97; Przekroczenie minimalnego poziomu dolegliwości - Zob. m.in. wyrok TS z 30 lipca 1998, nr sprawy 61/1997/845/1051). In according with it, some public officers’ behaviors against individual, even when are illegal and unacceptable, do not achieve the degree of severity, which allows the use of article 3rd ECHR (Red. L. Gardocki, Konwencja…, s. 105.). One should consider whether overstepping of limit to permissile use some of coercive measures listed in the act, can be in the form of inhuman or humiliating treatment. In accordance with article 12th of mentioned act as coercive measures are defined: physical force in the form of transport methods, defence, attack, faintness; handcuffs, a straitjacket, a belt and net for overpowering, a safety helmet, a company truncheon, water measures for overpowering, a company dog and horse, unpenetrately bullets, chemical measures for overpowering, things to overpowering people with the use of electrical energy, a cell to security, a insulating room, road spikes and the other measures, which can be use to stop and immobilize motor vehicles; company motor vehicles, measures intended to overcome building closes and other obstacles such as explosives pyrotechnic measures with deafening and dazzling properties (Art. 12 ustawy z 24 maja 2013 r. o środkach przymusu bezpośredniego i broni palnej). The most drastic violation of article 3rd from ECHR is use torture. Torture are associated with three elements: intensity – in this case appearance a cruell and very serious suffering is necessary; premeditation – pain is inflicted in intentional and prepared way, it isn’t result of unforeseen cicrumstances; element of purpose – inflicted suffering have to force victim to certain activity or intimidate or else punish for behaviour. Most often, listed elements occur at the same time. However, they have autonomous significance (L. Garlicki, P. Hofmański, A. Wróbel, Konwencja…). 196 | Inhuman treatment is entry in sphere of human physical and psychical integrity, which isn’t such drastic as torture. However, it oversteps limits of ailments connected with tasks and obligation, which are realised in conformity with the law. The same, must be satisfy a criterion „minimal ailment level”. Usually, mentioned pain is result of using physical force. Inhuman treatment applies to police intervention in particular. Using force may be justified by uncertainty factor and necessity of officers’ health or life protection. It is worth to add that unnecessary using force may be defined as inhuman treatment in every case. Inhuman treatment may be during quelling a riots or other human behaviours, which are applied to using violence. In such situations, using force by authorities must be justified. There is requirement – public service’s reaction must be consistent with the law and must remain in reasonable connection with situation. Moreover, can not be direct against accidental people. For example – will not be violated article 3rd from Convention in the case, in which will be use tear-gas to dispersed the crown (Zob. wyr. ETPCz z 6 marca 2007 r., w sprawie Çiloglu and Other p. Turcji). Inhuman treatment manifest oneself in brutality towards arrested person (L. Garlicki, P. Hofmański, A. Wróbel, Konwencja…). Whereas, humiliating treatment is entry in sphere of human physical and psychical integrity, which causes stress feeling for victim, fear and subordinating fit to humiliate and degradation2. Must be underlined that humiliate feeling may be increased when activities against the victim are realised such that the public is watching and reporting it. It is worth to add, that is unnecessary to use a force and violate psyhical integrity to causa humiliating treatment. Putting victim in such case, which causes humilitation feeling is enough (L. Garlicki, P. Hofmański, A. Wróbel, Konwencja…). 3.5 Comments on the used concepts Helsinki Foundation of Human Rights and Amnesty International Poland said that concepts used in Project are too general, what not give for people possibility to protection own rights. As example may be concepts of technical measures, which prevents incitement to rebellion and disobedience – didn’t show measures, which belong to this cathegory. Only generally stated that they are used in relation to a person deprived of liberty, during convoy (Stanowisko Helsińskiej Fundacji Praw Człowieka i Stowarzyszenia Amnesty International Polska do Projektu założeń do ustawy o środkach przymusu bezpośredniego i broni palnej). 4. The principle of proportional Helsinki Foundation of Human Rights and Amnesty International Poland rightly pointed out that in assumption’s Project not focused on the principle of proportional using of coercive measures, and only pointed out that using of them has less harmful consequensec for life and health than firearm. The principle of proportional was expressed in article 31st, paragraph 3rd from Constitution. In according with it, limits for using constitutional freedoms and rights can be stated in act only, and when they are necessary in democratic state for safety and public order or for protection of environment, health and public morality, or freedom and rights the other people. This limits can not violate nature of freedom and rights (Konstytucja Rzeczypospolitej Polskiej z 2 kwietnia 1997 r., Dz. U. Nr 78, poz. 483). In verdict of 25th February 1999, Constitutional Tribunal underlined that this list has closed nature i can not be treated extensively (Wyr. TK z 25 lutego 1999 r., K 23/98, OTK 1999, Nr 2, poz. 25). The principle of proportional manifests oneself in prohibition too big interference to individual’s rights and freedom spectrum (A. Królczyk, Glosa do wyroku NSA z 30 lipca 2010 r., II OSK 1053/10; zob. W. Kurowski, Pojęcie organizacji przestępczej i przestępczości zorganizowanej, Prok. i Pr. 2006, Nr 1, s. 26 – 43). Must be underlined, that enumerated in Constitution limits can not violate nature of rights and freedom. Stating the rule | 197 about freedom, Constitution defined her guarantee and limits at the same time, and necessary conditions for the use of its limits (W. Skrzydło, Konstytucja Rzeczypospolitej Polskiej. Komentarz, LEX 2013). In situation of using coercive measures, have got to deal with values conflict. It should be noted, that on the one hand are rights and freedom gauranteed od the constitutional and conventional level but on the other hand – according with such values as: safety and public order, and rights and freedom other people than against who are used coercive measures (P. Starzyński, Zasada proporcjonalności w stosowaniu środków przymusu procesowego, w: L. Grochowski, A. Letkiewicz, A. Misiuk, Nauka o bezpieczeństwie. Istota, przedmiot badań i kierunki rozwoju. Studia i materiały, T. II, Szczytno 2011, s. 65). It must be emphasized that concept „safety” used in this article in Constitution means „citizen’s safety” from article 5th in Constitution (B. Banaszak, Konstytucja Rzeczypospolitej Polskiej…). 5. Explaining of accidents. Exceeding one’s powers. Very important is, that assumption’s Project not enough space devotes to issue, which concern explaining of accidents and exceeding one’s powers in the context of using coercive measures and firearm. With Helsinki Foundation of Human Rights and Amnesty International Poland must be cite three directives result of European Tribunal of Human Rights’ decisions. In verdict of 13th January 2009, in a case Lewandowska and Lewandowski against Poland (skarga nr 15662/02), European Tribunal of Human Rights said that was violated article 3 from Convention having regard for the fact that cursory and selective carring out proceedings by Polish authorities for explain using force by public officers against their son. In verdict European Tribunal of Human Rights pointed out that according with article 3 from Convention using coercive measures by Police in not prohibited, but they can be use for necessity only and can not be excessively. ETHR said that article 3 from Convention must be interpreted in close connection with paragraph 1 from Convention, which make countries obligated to ensure for individuals rights and freedom defined in Convention. In verdict of 23rd February 2010, in a case Wasilewska and Kalucka against Poland (skarga nr 33406/04) ETHR said that Poland violated article 2 from Convention, because neglected obligation to carry out proceeding in a case determining reasons of citizen’s death as a result using force by Police. ETHR adjudicated that article 2 from Convention protects life every human’s, even as a result permitted by the act using force by statutory organs, when death is unintended result. Under these circumstances European Tribunal of Human Rights concluded that police’s action, which causes death must be according with interior rules about using firearm in defined circumstances. Besides must be justificated by existence of absolutely necessary to use such serious measures. European Tribunal of Human Rights underlined too, that conducting inquiry into the caude of death citizen caused by state organs is extremely import ant, because the purpose is ensuring efficiency of internal law regulations. They protect rights of life and punishment of the guilty for death state organs. But, in verdict of 28th July 2009 in a case Rachwalski and Ferenc (skarga nr 47709/99) against Poland ETHR said that article 3 from Convention was violated, because methods used by Police: truncheon beating and command to leave hause by all residents in the middle of night, was not proportionally to Police officers’ aim i.e security opened car, which was near the complainant’s hause. 6. Conclusion Doubtless, the coercive measures are inevitable tool in a case inobedience against public officers. In this case, we have to deal with interference in basic individual’s rights and freedom, which are guaranteed by Constitution of the Republic of Poland and The Convention for the Protection of Human Rights and Fundamental Freedoms. Therefore, the new act of 24th May 2013 on 198 | coercive measures and firearm was created with the help of Helsinki Foundation of Human Rights and Amnesty International Poland, which are guards every person’s rights and freedom. Thanks of them mentioned act was exchanging for better in the context of protecion basic human values. Satisfactory is fact that more of positions expressed by mentioned organisation was accounted by legislator. In result, presented act may be accepted for including basic human rights and freedom, but this act is not completely perfect. References Sources of law: Konstytucja Rzeczypospolitej Polskiej z 2 kwietnia 1997 r. (Dz. U. Nr 78, poz. 483). Ustawa o środkach przymusu bezpośredniego i broni palnej z 24 maja 2013 r. (Dz. U. 2013, poz. 628). Documents: Stanowisko Helsińskiej Fundacji Praw Człowieka i Stowarzyszenia Amnesty International Polska do Projektu założeń do ustawy o środkach przymusu bezpośredniego i broni palnej z 14 lipca 2011 r. Uwagi Helsińskiej Fundacji Praw Człowieka i Stowarzyszenia Amnesty International Polska do Projektu założeń ustawy o środkach przymusu bezpośredniego z dnia 6 lipca 2012 r. Uwagi Helsińskiej Fundacji Praw Człowieka i Stowarzyszenia Amnesty International Polska do Projektu założeń ustawy o środkach przymusu bezpośredniego z 27 września 2012 r. Projekt założeń projektu ustawy o środkach przymusu bezpośredniego i broni palnej z 28 marca 2011 r. Projekt założeń ustawy o środkach przymusu bezpośredniego z 10 września 2012 r. Development: Banaszek B., Konstytucja Rzeczypospolitej Polskiej. Komentarz, Warszawa 2012. Czajka M., Światłowski A., Prawo w diagramach, Kodeks postępowania karnego, Warszawa-Bielsko – Biała 2009. Garlicki L., Hofmański P., Wróbel A., Konwencja o Ochronie Praw Człowieka i Podstawowych Wolności. Komentarz do artykułów 1–18. Tom I. Komentarz, Warszawa 2010. Królczyk A., Glosa do wyroku NSA z 30 lipca 2010 r., II OSK 1053/10. Krucina J., Drogami Kościoła, Wrocław 2000. Kurowski W., Pojęcie organizacji przestępczej i przestępczości zorganizowanej, Prok. i Pr. 2006, Nr 1. Lewcun M., Matoga B., Fizyka, Kraków 2009. Makarewicz R., Dźwięki i fale, Poznań 2011. Netczuk R., Przesłanki i warunki użycia środków przymusu bezpośredniego przez polskie służby porządkowe w świetle gwarancji praw człowieka i obywatela – cz. I, Monitor Prawniczy 2011, Nr 3. Pływaczewski W., Kędzierska G., Leksykon policyjny, Szczytno 2001. Skrzydło W., Konstytucja Rzeczypospolitej Polskiej. Komentarz, Warszawa 2011. Starzyński P., Zasada proporcjonalności w stosowaniu środków przymusu procesowego, w: L. Grochowski, A. Letkiewicz, A. Misiuk, Nauka o bezpieczeństwie. Istota, przedmiot badań i kierunki rozwoju. Studia i materiały, T. II, Szczytno 2011. | 199 Judgments: Wyr. TK z 17 maja 2012 r., K 10/11, Dz. U. 2012, Nr 0, poz. 627. Wyrok TS z 30 lipca 1998, nr sprawy 61/1997/845/1051. Wyr. TK z 25 lutego 1999 r., K 23/98, OTK 1999, Nr 2, poz. 25. Web sites: www.sejm.gov.pl (Endnotes) 1 Identyfikacja miałaby nastąpić poprzez użycie pełnej nazwy formacji lub służby, bądź też jedynie jej ustawowo określonego skrótu. 2 Zob. wyr. ETPCz w sprawie Kudła 200 | Aleksandra Ukleja Faculty of Law and Administration, University of Warmia and Mazury in Olsztyn University of Euroregional Economy in Józefów [email protected] Protection of human health in cosmetics law Abstract The right to health in international human rights law is one of the main, basic right of the first generation. Intensive advancement in the cosmetic industry may cause some violations of those human right. In the opinion of the author’s of article broadly understood right to health in the perspective of production of mixtures and substances which allow cleaning, perfuming, changing the appearance, protecting and keeping in good condition may be new and innovative look on the sectorial, branch legal regulations, that serve the good of consumers, producers and distributors of cosmetics. Purpose of this research is to specify general regulations, instruments and structures which build consumer safety in that wide area and to indicate threats, and possible violations, on which they counteract. Keywords: human rights, cosmetic law, cosmetics, Scientific Committee on Consumer Safety, first generation of human rights, European Union, cosmetic products. Introduction From ancient civilization to the modern times cosmetics played really big role in human advancements. The history of cosmetics spans of every society on the world – special preparations help us change the way we look and enabled to express beliefs, religion or during battle. The use of cosmetics predates written history, archeological evidences certainly dates from ancient Egypt and Hellenic Republic. The Ancient Egyptians, around 10 thousand years BC, were developing almost every kind of cosmetic that we would use today. In the past cosmetics production takes place on a small scale, but through the ages reached broad popularity. Contemporary cosmetic’s production is inextricably bound with providing the safety of consumers who use all products placed on the market. Cosmetics were and are applied to the human body for beautifying, preserving, or altering the appearance or for cleansing - as an inherent part of hygiene and health, improve the smelling, colouring, conditioning, or protecting hair, nails, lips, eyes, or teeth and most of all the largest human organ – skin. Ancient cultures were fascinated by the beauty of the human body. Beautifying the human body has become an art, which was developed and taught. In Antiquity looking at one’s reflection in the mirror was probably even longer than today. From India and China came lotions, herbal extracts and perfumes, and from Persians civilization we owe knowledge of rose water and musk. Beauty care was a manifestation of sophisticated lifestyle, but according to scientists, cosmetic treatments were applied irrespective of the social class. Merchants from the East transferred the art of beauty care on the Old Continent. Then, from ancient Hellada it has been adapted by the Romans, who combined it with attention to hygiene of the body. The Romans built the first thermal baths (e.g. Thermae of Caracalla, Thermae Diocletiani). The widespread | 201 use of the term “cosmetic” is also dating back to time of Ancient Rome, it can be derived because cosmetae were qualified slaves engaged in massage in the baths. In the Middle Ages, due to the popularization of the ascetic way of life, cult of the body sank into oblivion, and cosmetics development were stopped. Church leaders spread the belief that cosmetics are used only by pagans and satan worshipers. A revival did not take place until the end of Dark Ages, when crusaders returning from the Middle East bringing home back from their travels new exotic products and knowledge, also knowledge about cosmetics and perfumes. Cosmetics reappeared in Europe on a wide scale in the Renaissance epoch, at first cosmetics were adopted oly by nobility and high-class society. During XV-XVII centuries Italy and France became the chief centres of cosmetics manufacture. Despite the development of cosmetic industry and daily putting on makeup by Europeans - citizens of Old Continent were unfortunately not known to the basic rules of hygiene. It was surely one of reasons of bad fame of cosmetics in that time - all those products were used to hide results of lack of hygiene, but were sill not publicly accepted.During the Renaissance, through the Baroque to the beginning of the Age of Enlightenment cosmetics were manufactured with components that ensured desired effect but also though badly affect the health and even human life. Queen Elizabeth I of England (1559-1603) is one of known “cosmetics victim”, to create a look known as “the Mask of Youth” the Virgin Queen used preparation called ceruse, which was a poisonous mixture of white lead and vinegar. The white Elizabethan make-up also may have contained arsenic, which poisoned women and killed many of them. Initially cosmetics were used only by royalty, courtiers, and the aristocracy, by the 18th century cosmetics had come into use by nearly all social classes. Important technological developments of Industrial Revolution in the areas of chemistry and medicine in 18th and 19th century brought significant advancements also in cosmetics. Then began the endeavor to approximate cosmetics to the principles of rational hygiene. After World War I any prejudices against makeup were discarded, and new products and techniques of manufacture, packaging, and advertising have made cosmetics available on an unprecedented scale. During the interwar period, there were not any strict rules on the basis of beautifying cosmetics. Women of all social classes used cosmetics according to their own tastes and trends in fashion. After World War II, cosmetics again became important, because 20th century is also a period of appearance of the whole chains of beauty and cosmetic salons - first of theme were created in 1908 by Helen Rubinstein and in 1910 by Elizabeth Arden. Beginning of former century is also the time of the rapid development of cosmetic companies, e.g. including Coty or Max Factor. But above all, one can observe the development of science n the area of cosmetology - a dynamic growth of research, new ways to develop cosmetics production, testing and effectiveness, to satisfy needs of consumers. 1. Health definition The most widely used present-day definition of health was developed by the World Health Organization (WHO) in the Preamble to the Constitution of the WHO which was adopted by the International Health Conference in New York 19-22 June 1946, WHO constitution entered into force on 7 April 1948. Health is defined in these words “Health is a state of complete physical, mental and social well-being and not merely the absence of disease or infirmity”.. Contemporary “health and human rights are both powerful, modern approaches to defining and advancing human well-being. Attention to the intersection of health and human rights may provide practical benefits to those engaged in health or human rights work, may help reorient thinking about major global health challenges, and may contribute to broadening human rights thinking and practice. However, meaningful dialogue about interactions between health and human rights requires a common ground” (Mann, Gostin, Gruskin, Brennan, Lazzarini and Fineberg, 2011). In 202 | this article I will make an attempt to compare of regulations and legal instruments of cosmetic law, intended to protect the health of consumers of cosmetic products within the European Union countries. 2. Cosmetics regulations in the European Union Despite the powerful current trend of European integration and of globalization, the people of Europe still vary greatly in their beliefs, attitudes, and lifestyles. The governments are also equally diverse, most obviously in terms of how they see the responsibilities of the state and the individual. But still one thing unite global society – there is a lot of evidences that today’s society is obsessed with appearances, that reinforces the need for good legislation and common practice without violations in the area of cosmetic law. In this article, I concentrated on the legislation in force in the territory of the European Union with particular emphasis on Polish internal regulations [which are compatible with the legal regulations of EU]. Making an analysis of the domestic’s legislation on health and safety of cosmetics is dictated by the fact that Poland is a leading manufacturer and exporter of cosmetics in Central Europe. As one of Member States Republic of Poland has to guarantee one of EU “four freedoms” - free movement of goods within European market, which means removal of custom barriers - that’s why in particular on internal market, there is strong necessity of harmonization to ensure basic health and safety standards. There are a few groups of products covered by specific safety regulations, different types of product are governed by different European directives. The safety of cosmetics is covered by the EC Cosmetics Directive (76/768/EEC) as amended, it protects consumers and makes sure that all cosmetic products on the European market are safe to ensure free circulation of cosmetic products throughout the EU. First EU legislation relating to cosmetic products was Council Directive 76/768/EEC on the approximation of the laws of the Member States relating to cosmetic products (OJ L 262 of 27.9.1976) – which for the first time regulated harmonized cosmetic safety legislation in the European Economic Community. Directive 76/768/EEC enter into force on 30th July 1976 with the deadline for transposition in the Member States on 30th January 1978. In article 2 it requires cosmetics to cause no damage to human health when applied under normal or reasonably foreseeable conditions of use. Council Directive 2003/15/EC2 of the 27th February 2003, introduced a number of changes to the control of cosmetic products (OJ L 66 of 11.3.2003). These include: 1) the promotion of alternative methods of cosmetic safety testing in the cosmetic sector which do not use live animals – the aim to introduce those alternative methods is to reduce the number of animals used for experiments or to reduce their suffering, and achieve full replacement by validated methods, which offer consumers a level of protection which is equivalent to that of the conventional methods (Art. 4a); 2) European Commission established a timetable to phase out the marketing of cosmetic products, the final formulation, ingredients or combinations of ingredients which have been tested on animals (Art. 4a) – that provision includes similarly prototype of cosmetic product and finished product (Art. 4a.3). The deadline was up to a maximum of six years from the date of entry into force of this Directive, and maximum deadline for the prohibition of the marketing of animal-testing cosmetic products was 10 years from the date of entry into force of this Directive. 3) a ban on testing using animals within the European Community (Art. 4a) – the aim of that goal is to eliminate all safety testing of cosmetic ingredients involving the use of animals in | 203 any territory of the EU; 4) guidelines on the use of claims regarding animal testing 5) additional consumer information that includes, in certain circumstances, it require all cosmetic products to be marked with the labelling of a “period after opening”(PAO) or minimum durability (best before date); The process of simplifying approximation of cosmetic law on the foundation of so-called Cosmetics Directive span many changes, issued a number of ‘guidelines’ to provide a coherent interpretation, but after over 30 years we can be assured that due to development of cosmetic industry sector also that special kind of legislation will develop. Since the year 1976 Member States transposed the Directive with all 55 amendments and corrections into national law systems. The phase of successful transposition allowed legally effective entry into force of so-called Cosmetic Regulation. All those secondary law acts of the EU were introduced to ensure dynamic cosmetic industry development, they prohibits any additional requirements which can pose a threat to innovations and competitiveness in that sector (UK Departament for Business Innovation & Skills [BIS], 2010, pp. 3-15) Directive 76/768/EEC is replaced by Regulation (EC) No 1223/2009 of the European Parliament and of the Council of 30 November 2009 on cosmetic products (OJ L 342 of 22.12.2009) which enter into force on 11th July 2013. 3. Definition of a cosmetic product Referring to the Directive provisions there is no change to the definition of a cosmetic product in the Cosmetic Regulation. Definition comprises two elements, which should occur simultaneously. First element is one of six specified in Article 2 paragraph 1 point (a) function of substance or mixture: 1) to clean; 2) to perfume; 3) to change the appearance; 4) to protect; 5) to keep in good condition; or 6) to correct body odours. One cosmetic product can other functions, but it should first fulfill one or more of the functions listed above. In accordance with the provisions of EU law is not a directory of authorized additional functions that can perform cosmetics. Based on the regulations regarding to other products in the field of consumer protection it is possible to create a catalog of functions which can not be regarded as a secondary activity, and yet go beyond the definition of cosmetics, such as biocidal activity and therapeutic action (Starzyk & Zachwieja, 2010). Second element of the “cosmetic product” definition which should be fulfilled is one of listed place of application of cosmetic product, which may be one or more of the following: 1) the epidermis; 2) the hair system; 3) the nails; 4) the lips; 5) the external genital organs; 204 | 6) the teeth; or 7) the mucous membranes of the oral cavity It is also underlined that all those fields of application should be placed on external parts of human body. For the purposes of point (a) of paragraph 1, a substance or mixture intended to be ingested, inhaled, injected or implanted into the human body shall not be considered to be a cosmetic product (Art. 2 paragraph 2). This claim excludes the use of the term cosmetic product e.g. in relation to food products and pharmaceuticals. As we see in the definition of cosmetic product we can distinguish three constituents: 1) form of the product (mixture or substance) 2) function (the purpose of use) 3) place of application (source: Starzyk & Zachwieja, 2010, p.20). 4. Act of the cosmetics (Polish regulations of cosmetic law) Definition of cosmetic in polish law - The Act of 30 March 2001 on the cosmetics (Journal of Laws 2001 No. 42 pos. 473). The statutory definition of “cosmetic” was adapted to the definition of “cosmetic product” cited above, and used in the Cosmetic Directive and Regulation. According to the meaning of the provision of the Art. 2 paragraph 2 of the Act of the cosmetics - Polish Minister of Health on 16 June 2003 issued a regulation on categories of the products that are cosmetics - that regulation consist opened list of the most common categories of the cosmetics, which are differentiate on the basis of their exclusively performed function or basic purpose of use. Wording of provision of Art. 4a statues ban on animal testing for cosmetics, putting on the market cosmetics, which were tested on animals, or consist substances or mixtures made by experimenting on animals. (Kurzępa, 2009, pp. 27-56). Cosmetic products put on the market within the Community must not be liable to cause damage to human health when they are applied under normal conditions of use. To protect consumers (in Regulation called also “end user”) Cosmetic Regulation introduced legal instruments, which are defined as obligations of professional site – manufacturers, importers, . The Cosmetics Regulation reinforces product safety - it provides a reliable, internationally recognized regime, which takes into consideration the latest technological developments, including even the use of nanomaterials in cosmetics production. Wording of provisions of Cosmetic Regulation (EC) No 1223/2009 those instruments are e.g.: 1) System of reporting of serious undesirable effects and public access to information about “adverse reaction for human health attributable to the normal or reasonably foreseeable use of a cosmetic product” (Art. 2 parahraph 1 point (p)); 2) Cosmetic Products Notification Portal (CPNP) – centralized, one for all Member States producer, electronic notification of every cosmetic product placed on the EU internal market; 3) Precise identification of ‘responsible person’ (Art. 4) with defined obligations (Art. 5); Substantial health gains can be achieved if all countries would follow best practice, but this required the removal of barriers and implementation of common health policy. In Regulation which enter into force on 11th July 2013 in the Chapter IV we find Restrictions for certain substances. Using of every ingredient in cosmetics need to be in line with the Regulation (the same list of banned substances is also a part of polish Act of the cosmetics, and it show up on EU Cosmetic Database at http://ec.europa.eu/consumers/cosmetics/cosing/index.cfm?fuseaction=ref_data. | 205 annexes_v2.) Those restrictions includes substances listed in the Annexes (Art. 14): 1) substances which are prohibited in cosmetic products(Annex II); 2) restricted substances - substances which cosmetic products must not contain except subject to the restrictions laid down (Annex III); 3) colorants allowed in cosmetic products (Annex IV) 4) preservatives allowed in cosmetic products (listed on Annex V)- defined as substances which are exclusively or mainly intended to inhibit the development of micro-organisms in the cosmetic product (Art. 2 paragraph 1 point (l)); and 5) UV-filters allowed in cosmetic products (Annex VI) defined as substances which are exclusively or mainly intended to protect the skin against certain UV radiation by absorbing, reflecting or scattering UV radiation (Art. 2 paragraph 1 point (n)); The above lists of substances has closed character and strictly enumerated ingredients are constantly updated by amending regulations issued by the European Commission. What a contrario means that using of certain colorants (other than those in Annex IV), some preservatives (other than those in Annex V) and UV-filters (other than those in Annex VI) are also prohibited. The Commission Regulation prohibits mainly the use of CMR substances (recognised as carcinogenic, mutagenic or toxic for reproduction), apart from in exceptional cases (Muller & Bos, 2004). It provides for a high level of protection of human health where nanomaterials are used in cosmetic products. The development of knowledge and technology, the progress of science and innovations constantly introduced in the cosmetic industry are determined repeated amendments on the lists of substances. At the time of adoption of the Directive, on the year 1978 list of prohibited substances rise from 361 substances to 1372 currently positions listed on Annex II. Similarly, in the other annexes of Cosmetic Regulation. In the Commission Regulation there are regulated specific requirements for labelling - products manufactured inside of the EU must include on the label an address within the European Union Member State from where the product information is available, and a full ingredients listing amongst other items. Products manufactured outside of the EU must also include country of origin. It is simultaneously regulation, which ensure appropriate and precise information which allows identification of ‘responsibile person’, but also it allows easy access to informations about substances, what is a matter of fundamental importance for customers, who has problems with allergies. 5. Scientific Committee on Consumer Safety Among the institutions and organs of the EU (Sitek, 2010) function scientific committees whose primary purpose is the protection of consumer safety, public health and the environment. In March 2009 following three Scientific Committees started their work: 1) Scientific Committee on Consumer Safety (SCCS) 2) Scientific Committee on Health and Environmental Risks (SCHER) 3) Scientific Committee on Emerging and Newly Identified Health Risks (SCENIHR) Those advisory and expert structures are created under regulation of the Commission Decision 2008/721/EC1. Rules of procedure issued in April 2013. From the perspective of cosmetic products related to public health - the most important function is performed by the SCCP (more: Ukleja, 2013). SCCP replacing the former Scientific Committee on Consumer Products (SCCP), in the years 1997-2004 tasks of SCCP were fulfilled by Scientific Committee on Cosmetic Products and Non-food products intended for Consumers (SCCNFP) and the Scientific Committee on Cos- 206 | metology (SCC) established on 19 December 1977. SCCP is an independent body of experts who assist the European Commission. Group of experts successively subjected to evaluation, the selected ingredients used in cosmetics and developed opinions related to the safety of cosmetic ingredients. The aim of the SCCS is to examine the complex scientific and technical problems surrounding the drawing up and amendment of European Union (EU) rules governing the composition, manufacture, packaging, and labelling of cosmetic products marketed in EU countries. Conclusion Health care in a legally and factual effective manner is a challenge in every country on the Earth. Because of multiplying risks, efforts in this area should be taken in every possible area of human activity. Cosmetic industry is one of the fastest growing sectors of the economy not only in the EU but on a global scale. The dynamic growth also brings with it new risks, and the European Union is taking effective actions to approximate regulations in the common market in the field of cosmetic products manufactured not only inside but also produced and imported from countries outside the EU. Regulations are constantly updated to keep pace with intensive advancement. An excellent summary of the deliberations on cosmetics regulations and impact of those products on public health is that all those regulations indirectly fulfill the superior purposes, typical for standards of human rights. European Union take full advantage of achieving high level in protection of human health using secondary law legal acts, specialized structures and efficient instruments – those all are functioning for the common good. References Council Directive of 27 July 1976 on the approximation of the laws of the Member States relating to cosmetic products (76/768/EEC) (OJ L 262, 27.9.1976, p. 169). Department for Business Innovation & Skills (2010). Cosmetic safety - A Guide to the Cosmetic Kurzępa, B. (2009). Ustawa o kosmetykach z komentarzem, Wyd. TNOiK, Toruń. Mann,J.; Gostin,L.; Gruskin,S.;Brennan, T.; Lazzarini,Z.; Fineberg, H. (2011) Health and human rights [http://hhrjournalarchive.org/archives-pdf/4065260.pdf.bannered.pdf]. Muller,J.J.A; Bos, P.M.J. (2004) The occurrence of Carcinogenic, Mutagenic and Reprotoxic (CMR) substances in consumer preparations [http://enfo.agt.bme.hu/drupal/sites/default/ files/320010001.pdf]. Osiatyński, W. (2011) Prawa człowieka i ich granice, Wyd. Znak, Kraków. Products (Safety) Regulations 2008 [https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/39334/10-761-guide-to-cpsr.pdf]. Regulation (EC) No 1223/2009 of the European Parliament and of the Council of 30 November 2009 on cosmetic products (Text with EEA relevance) OJ L 342, 22.12.2009, p. 59–209. Rules of procedure: The Scientific Committees on Consumer Safety (SCCS), Health and Environmental Risks (SCHER), Emerging and Newly Identified Health Risks (SCENIHR) [issued on April 2013]. Shelton, D. (2002) Health and Human Rights Working Paper Series No 1 Human Rights Health & Environmental Protection: Linkages in Law & Practice/ A Background Paper for the World Health Organization Sitek, M. (2010) Instytucje i organy Unii Europejskiej, WSGE Publishing House, Józefów. Starzyk, E.; Zachwieja, P. (2010). Ustawodawstwo kosmetyczne w Polsce I Unii Europejskiej. | 207 Wyd. Wyższej Szkoły Zawodowej Kosmetyki i Pielęgnacji Zdrowia w Warszawie. The SCCS’s notes of guidance for the testing of cosmetic substances and their safety evaluation [8th revision of 11 December 2012]. Ukleja, A. (2013). Komitet Naukowy ds. Bezpieczeństwa Konsumentów. Journal of Modern Science 2/17/2013. WSGE Publishing House, Józefów. 208 | Antonio Casoria Alcide De Gasperi University of Euroregional Economy [email protected] The debate on social human rights: ethical imperatives or juridical formalization? Abstract In this article we will deepen the debate that in recent years has become increasingly urgent among philosophers and jurists in defining the legal and philosophical status of human rights with special focus on social ones. Many intellectuals have questioned the need of the foundation of this branch of the law trying to counter a persistent skepticism about the effectiveness of international tribunals and the binding force of declarations. In the first paragraph we will begin from the Habermas’ conception that juridical positivism with its attempt to identify an autonomous legal sphere is a paradigm that is no longer able to stand the comparison with a global society by increasingly complex problems; but on the other hand, the human rights cannot overcome the obstacle of their atypical nature, lacking a properly formal identity. However, this characteristic allows us to treat the human rights not as an independent doctrine of law but makes it possible to go over the separation of the moral sphere from the strictly legal one. Then, after analyzing the reasons supported by detractors of human rights, we will review the so-called legal revolution, which, not surrendering to skepticism, argues in favor of the effort to incorporate human rights in the proper scope of Law. After that we will see how it has gained much importance a conception as it were non-juridical and pragmatic of human rights. With this setting, while recognizing their fallacy as pure legal concepts, it is possible to re-evaluate their role as ethical-regulatory principles. They are assumed as ideals to which the international community and policy must converge (see the thought of J. Hersch, J. Raz, etc). We will focus in particular on the original vision of Amartya Sen and his approach to the capabilities. According to this conception, the ways to promote the culture and ethics of human rights do not go exclusively through the reinforcement of legislation, but follow a pat characterized by a widening debate aimed at strengthening the institutions that are guarantors of protection of Civil Liberties expressed throughout the History in the several declarations of human rights. In this way, according to Sen, it is possible switch from closed circle in which a too narrow idea of ​​human rights relegates the role of active citizenship, to a conception of democratic participation and transparency as the real engine of human and social development. We conclude the article claiming that the Sen’s approach is able to overcome the objections to the legal weakness of human rights. The idea of capabilities, in fact, addressing the people’s opportunities, pragmatically overtakes the skeptical objections about the existence of universal social rights and their effective protection. Key words: human rights and moral; capabilities; implementation; social human rights; juridical rationalism; juridical revolution | 209 1. Introduction With this article we aim to deepen the debate that in recent years has become increasingly urgent among philosophers and jurists in defining the legal and philosophical status of human rights with special focus on social ones. Many intellectuals have questioned the need of the foundation of this branch of the law trying to counter a persistent skepticism about the effectiveness of international tribunals and the binding force of declarations. In the first place we will observe that conception that juridical positivism with its attempt to identify an autonomous legal sphere is a paradigm that is no longer able to stand the comparison with a global society by increasingly complex problems; but on the other hand, the human rights cannot overcome the obstacle of their atypical nature, lacking a properly formal identity. However, this characteristic allows us to treat the human rights not as an independent doctrine of law but makes it possible to go over the separation of the moral sphere from the strictly legal one. To demonstrate that we will focus in particular on the original vision of Amartya Sen and his approach to the capabilities. According to this conception, the ways to promote the culture and ethics of human rights do not go exclusively through the reinforcement of legislation, but follow a pat characterized by a widening debate aimed at strengthening the institutions that are guarantors of protection of Civil Liberties expressed throughout the History in the several declarations of human rights. With this paper we want to demonstrate that the only solution to overcome the skepticism and the relativism is to put the issue beyond the boundaries of the juridical discussion and consider them as starting points and reference for the development of a free society, where found the most important right, that of being a man. 2. Beyond the rule of law between morality, law and human rights From their explicit formulation in the international contest, the human rights have been subject of a worthy process of affirmation and expansion, though this story not always was linear and progressive and with a geographic homogeneous distribution. Since 1948 the world has changed radically, people’s needs are changing with it and also human rights have lived and still live the necessity of a revision that bring them to protect the new instances. Exactly from this process, mutually historical, political, philosophical and legal today more than ever, new challenges and new questions to the Law take place; there is a need to understand how far the process of legalization of human rights can drive itself. The doctrine of human rights, in fact, requires to lawyers and to philosophers of law to comprehend the very foundation of this kind of rights, not only those called of first generation right (the civil and political ones), on which it has long been thought, but those of the second (economic, social and cultural), third (solidarity rights and environmental protection) and even fourth-generation (bioethics, genetic manipulation by the defense). This process is very complex and poses serious legal and philosophical problems1. Restricting our attention to the second generation rights, we can say that, using the words of J. Habermas, the ambitious project to recognize the defense of social rights as a subject of international protection and the increasing use of the process of legalization that characterizes welfare interventions, “makes obsolete the classic image of the private law: for example the idea of a clear separation between private law and public law, or distinguishing the hierarchical distinction between basic rules and simple ordinances. [...] the compressive unity of the rules is disclosed from time to time to a pre-understanding reconstructive oriented principles, which is no longer objectified as such in the text of the law”2. We can see here as what drives men to intervene with regulations to adjust the scope of the sphere of social rights, requires the construction of a horizon supported by not legal but moral and ethical pillars. On this point, most of 210 | the jurists and philosophers, which we will examine, will discuss the nature of those principles. In this way, we will try to see if they can be actually conceived as placed at the base of the universal acceptability of human rights. It should also be borne in mind that in the classical view of the rule of law (in part still accepted), according to the German philosopher, the formal properties are characterized by the systematic nature of the legal corpus and the abstract form of law. However, the extension of regulation to areas not only broader, but also to diverse geographical areas represented by the entire world and to whom the Human Rights should apply, have shaken the very meaning of law and forced many philosophers to a new reflection on the concept of ius. As noted by Habermas in his reasoning, what we are seeing with the full recognition of social rights and the pressing demand for their universalization, is nothing but a process of materialization of the law. In other words, this means come out from abstractiveness of the right and fill it with contents, with the targets of justice that lead us to pass from the right to the welfare state and then to revisit the idea of ​​positivist law3. According to Habermas, in the modern world it becomes increasingly pressing the contrast between morality and positivity of law: the ethical criterion of evaluation leaves the more or less semantically abstract and universal form of law to move to a more or less democratic form of legislation. So, in this semantic shift, human rights take on that role and recognition, that positivism is not able to guarantee: the moral criterion resumed his place in the debate on the meaning and identity of human rights. In this fundamental passage emerges an immanent link between law and ethical and moral principles: this opens up for us the way to a debate, today more than ever, alive about the nature of social human rights and the role to which it is believed they are asked to perform. The fixed point from where these reflections start is the simple, but not obvious and not shared assertion, that the essence of human rights can only be founded on an ethical basis. According to the philosopher Jeanne Hersch, in fact, the fundament of human rights is in the apparent tautology that what characterizes a human right is based in the first place on the right to be a man. This is a transtheoric and cross-cultural point, is a normative expression in a broad sense that transcends the law and creates its conditions of possibility. According to Hersch human rights must go beyond the attempts of a legal justification or political legitimacy of those, for this reason Hersch criticizes the idea widely recognized by a certain school of law that human rights should be understood as an expression of natural rights4. The German philosopher does not doubt that human rights are a product of history and also of positive conception of law and admits as a precondition of their statement the clear and indissoluble principle of freedom. Paradoxically, however, this possibility of foundation, which comes from the freedom, is not inherent in man as a natural fact. For Hersch the freedom is not a natural fact, but an aspiration, a need. It’s in this yearning for the right to be man that is recognized the title role of the human rights and their universality: this consists in the possibility of choice, in the ability to choose for themselves and achieve their aspirations5. For Hersch, in fact, freedom is, philosophically speaking, a transcendental element that is establishes a possibility and in particular establishes the existence of every man. In other words, freedom is a “meta capacity”6: it determines the space of realization of human capabilities. The possibility of an absolute decision (i.e. freed from constraints) exists in every human being and founded, for Hersch, the universality of human rights. The role of universal statements and declarations is precisely to protect the fragile boundaries of this freedom, which is on the one hand individual in relation to the sphere of application, but at the same time universal as real transcendental element. Thus, the philosophical status of human rights claims the human experience of freedom. They do not prescribe a proper ethics, do not impose perfect7 and explicit obligations, so their legal and normative force is extremely weak when compared to the definition of law given, for example by Lon Fulller, as the foundation of the Rule of Law. The American philosopher says: “The law is the enterprise of subjecting the human conduct to the government of norms”8. If we take this rigid | 211 definition and apply it to the sphere of human rights, then it is clear that we are unable to give these rights a legal status in the strong sense. The approach that we are following instead urges us to leave the confines imposed by these definitions and leads us to conceive the human rights as something that is imposed in the first place as a transcendental phenomenon and as such moving from the absolute horizon of requiring and ensuring the realization of the individual as a human being endowed with those capabilities (using the language of A. Sen) that enable its implementation. This approach is quite fruitful if we take into account the second generation rights, always subjected to a different treatment (and therefore lacking a recognized universality) and subjected to the preferences of policymakers that, according to different guidelines, are more or less willing to protect and to guarantee them. 3. Some forms of skepticism Now we want to draw a map of the skeptical theories with respect to our theme. The underlying question philosophical of put under review by critics and advocates of human rights is to be found primarily in the justification of universalism, inalienability that the doctrine ascribes to human rights and their implementation. Let us first the problem of universality. Is immediately obvious9 as the provisions accrued in the United Nations do not reach a full effectiveness in providing an effective culture and universal protection of human rights, and are often subject to international agreements that a small group of nations has established. One of the few examples in which there is significant effectiveness in the protection of individual rights at the international level is confined to Europe only, and is attributable to the European Convention on Human Rights, scripted by the Council of Europe, and that have effective enforcement mechanisms provided by the Commission and the European Court in Strasbourg. We are, therefore, far from the universalism toward which human rights aspire, since the way of universal international law does not provide for the effective protection of the people’s rights. In general, we should admit, according to the skeptics, that human rights speak different dialects and that the universality is a chimera. Added to this is the fact that rights of second and third generation are even less subject to legal supervision universally recognized and individually actionable, while the tools for monitoring and reporting of the international agencies provides only a descriptive picture of a situation in which cannot be done from the outside except with exhortations, non-binding advises and especially without providing financial, legal or political instruments aimed to achieve the objectives of protection of rights or to comply with international conventions. Besides the problem of universality can be mentioned other forms of skepticism. Let we see that one related to the effective application. According to a well-established legal tradition to be rights, they must incorporate a mechanism for their application. For social human rights we should ask, for example: what it means to realize the right to an adequate standard of living? In a possible answer to such a question would not be clear in what sense the enjoyment of such a right can be reasonably achieved in the same way of the traditional rights. In other words it is not possible to clarify what obligations and rights the individuals must observe. From this we can conclude that “if one thinks that genuine rights must effectively enforceable, then one might be encouraged to believe [...] that the idea of a ​​human right is an inherently vacuous concept”10. Another form of skepticism, very widespread, is in the so-called problem of the unequal distribution of power11 found in the global policies regarding the practice and doctrine of human rights. In fairly recent times, in the early years of the past decade, such skepticism has been taken up and developed in relation to the difficult relationship between the West and Muslim countries12. According to this approach, the modern theory of human rights, formed substantially in Europe and in the United States, has developed as a result of the commitment of the major powers and would be a derivative of the international politics of the major industrial powers, whose 212 | statement is not immune from military and hegemonic influences. In addition, the skeptics argue, there would be a small circle of influential countries, who, referring to human rights in order to justify political interference, would realize as its primary purpose something alien and even incompatible with humanitarian intentions. Moreover, if there was genuine protection of human rights, it would be, according to a skeptical view, subject to strategic-political target. That being the case, they continue, it is easy to conclude as the content itself and the application of human rights are distorted and bent for the interests of the most influential nations. Therefore, they conclude, human rights may appear as a mechanism of domination, masked by ideology, rather than an instrument of emancipation. This is a radical critique, deeply inserted in a realist conception of international politics, but totally neglects the intrinsic content of rights. A last form of skepticism that we will discuss has a pragmatic nature. That comes from the empirical judgment that neither acceptance nor the obligations of human rights treaties, or international efforts, have an effect on the behavior of States. As is evident, here is called into doubt the existence of a real force application of human rights legislation. According to the proponents of this approach, the law needs to sovereignty and legitimacy to be enough authoritative, such that to impose the application of the rights. But what does it mean “ to impose” the right, for example, of an adequate standard of living? It is possible, of course, imagine a government that adopts a series of initiatives to support the income and essential services, but it is clear that the term “imposition” has a totally different meaning respect to the legal one, and has nothing binding in the juridical sense. Also the influence of the international treaties fades when there are decisions that has consequences on the overall complex of the economic choices. The effectiveness is undermined by the lack of governance. In general, according to this kind of critic, there is the awareness that “a value cannot be considered as a right if there is no agent that can be kept under a duty to satisfy him”, said Beitz. If we come to the conclusion that the protection of a right has a too high cost, then this cannot be considered a right in rem. Some of those views considered until now are more or less ideological positions , but next to them we also have theories that start from the observation of the state of affairs and, connecting to the general political and philosophical assumptions, give back a very pessimistic view of human rights . These arguments are not bad places or misleading, but they indicate a real lack of strength of human rights and report their critical issues. However, we must look ahead and change the perspective. In the following pages we will follow the idea that human rights are a global practice, primarily discursive and political at the same time and only marginally juridical one. According to Beitz, but also according to Sen, we must conceive them as “a set of strategies or ways of action for the violation of which may be worth as a reason for action. The practice exists within a global discursive community that provides them and use them in the deliberation and discussion about how to act .” Those rules have expression in the classical forms of conventions and declarations and represent what Beitz call “emergent practice”13. Before reaching this point it is good to linger on the so-called “juridical revolution” that, from a strictly juridical point of view has endeavored to respond to skepticism, anchoring to the Right and follow the path of jurisprudence. 4. The juridical revolution and the problem of implementation Let us dwell briefly on the efforts of juridical subjection of the sphere of human rights and their actual success. Among the most successful cases of the juridical way, we find the works of drafting of the European Convention on Human Rights signed in Rome in 1950. It exercises among the nation who have signed it, an effective bond through an ad hoc tribunal, consisting of the European Court in Strasbourg. But as we said earlier is devoid of the characteristic of universality that should be at the basis of human rights. | 213 On the base of this success of the European Court and its inherent limits, we need to ask, in general, under what conditions the legal instrument can effectively promote the human rights? The question could be further generalized in this way: is it the Law the best tool for the promotion and protection of human rights? As we saw in the previous section, the skeptics and many philosophers insist on the discrepancy between law and application of the norm. During the Twentieth Century till the present day, there are, instead, those that insisted on this path and claimed the results and the empirical effectiveness. The so-called juridical revolution, according to their proponents, can provide the criteria for recognition, for promotion and protection of human rights. Substantially, a characteristic feature of the modern human rights culture is the emphasis with which they are intended not only as a moral purpose, but also, and above all, juridical purposes that are used in the courts of law, whether national or international. For this doctrine14, therefore, the culture of human rights relies fully on the principle of the Rule of Law and draws strength from it. According to the detailed analysis of D. Bouchener, the fulcrum around which the topic of the proponents of juridical revolution is the custom, one of the most important sources of the international law and of the common law countries. It should be acknowledged particularly the role of special courts that with their judicial activity have made possible the consolidation of custom. Wanting to make a couple of examples we can recall how on the basis of customary rules that it has established criminal tribunals such as the one for the former Yugoslavia or for Rwanda15. The success of political, ethical and legal tribunal of the former Yugoslavia and Rwanda has been a milestone for the progressive development of international human rights and has made a positive indication for the extension and protection of human rights following the juridical way. This is because the courts are the strengthening of custom and are able to create an authoritative point of reference, able to establish a legal paradigm that influence the legislative practice locally and internationally, becoming more and more common heritage of the Nations. This is, in general, the awareness of the proponents of juridical revolution: the ad hoc tribunals for the defense of crimes against human rights, strengthen and reinvigorate the importance of customary law in the development of a common humanitarian law. But, we believe, this is true for the most heinous crimes against humanity as those for which are made up the most important criminal courts of the story (Nuremberg, Tokyo, Yugoslavia, Rwanda), in which international public opinion can be agree on the need to punish, but nevertheless they act in a very limited scope, though significant, and do not affect other spheres of human rights such as the rights of the second generation. International tribunals, with the sole exception of the European Court of Human Rights, cannot fill the certainty’s need that certain basic human rights require, because they are less defined (such as the right to an adequate standard of living able to ensure a healthy life, enshrined in Article. 25 of the Universal Declaration of 1948), but that nowadays constitute the real frontier of human development and the real node of the juridical philosophical discussion about the limits of the effectiveness of the human rights. To better analyze the point in question we must dwell briefly on the issue of the implementation of human rights. The terms of the issue are so settled16: the juridical paradigm that inspired the extension of international charters of human rights assumes17 that human rights must be incorporated into the domestic legal system according to the modality of that, not in conflict with the underlying principles of the United Nations, and should be applied in national courts in accordance with laws and internal procedures of each state. In this context, the role of international institutions is to monitor, advise and admonish18. However, the reality is more complex. As we have already said, this paradigm works well in Europe with the European Court of Human Rights, which has an effective power recognized by the subscribers Members. For the rest, the problem of 214 | the implementation and respect for human rights must be adapted to a variety of situations and obstacles that require different strategies and patterns of behavior, of which the juridical one is the less applicable and less usable in particularly sensitive context. In his detailed analysis of this theme, Beitz recognizes six types of implementation paradigms. The typologies are the following: 1. Accountability; 2. Incentives; 3. Support; 4. Domestic dispute and conflict; 5. Requirement; 6. External adaptation. 1. With the concept of Accountability we act within the juridical paradigm: the agencies provided by the Treaties have the right to act within the state parties according to international treaties in respect of the role assigned to them under international law. We have already alluded to the weaknesses of this paradigm, although the increased role of international forum and the presence of leading NGOs are a significant form of control and are elements of deterrence against abuse. 2. The system of Incentive focuses on diplomatic channels and on the construction of a series of incentives to induce the states and their governments to respect the guidelines established by the Treaties. These can be: preferential trading arrangements, social welfare, strengthening ties and interchange etc. “The use of incentives to encourage respect for human rights,” says Beitz, “has become more common since the 1970s, when the United States, followed by some European states, Japan and eventually the European Union, adopted the protection of human rights as a goal of foreign policy”19. This category also includes the compliance with which financial institutions like the World Bank or the International Monetary Fund disbursing its loans for development. 3. We come to the concept of Assistance. To sustain this idea is the fact that some states may not have the economic capacity necessary to ensure a universal system of protection of the person or not have an institutional structure that allows the full implementation of that(eg. Courts do not have enough qualified staff; or it is not able to hold elections that comply with international standards of objectivity). In this context, it is crucial the role of the assistance of international organizations, United Nations agencies or individual NGOs, in order to remove obstacles to the creation of the basis for the protection of rights. 4. With regard to the domestic Dispute and conflict, we just say that international actors can play an important role in supporting the voices of dissent that are fighting for their rights, for civil liberties and for a more equal distribution of income. In this situation it is essential the synergy between external actors and local civil society, which brings the burden of the request for change. The external actors play the role of paradigm, of support and concrete support for the implementation of the instances20. 5. The most dramatic form of implementation of human rights is one that involves the use of coercive force with which to exercise the Obligation (economic sanctions, embargoes, etc..). In the absence of an established international capacity to act, the interference has been used by the States or a coalition of states, sometimes with the permit of an international license. Over the past two decades, the examples of this type of implementation abound and are a constituent part of the concept of “humanitarian war” repeatedly invoked to justify military intervention. 6. Finally, we have the External Adaptation. The implementative paradigms that we have been listed here are based on the assumption of an explicit intervention of international actors, institutional and no. But there is another way, perhaps the most interesting: that of a native and internal path towards a full spread of human rights. This idea stems from the principle that a society is able to internalize the stimulus coming from the outside by growing locally the push towards an open discussion to extend and protect the rights. This point will be the proper object of the Sen’s reflection and we will analyze that in detail. | 215 Concluding this section, we can say that the problem of the application of human rights is only in a very small part resolved using the juridical way, despite the partial success of the attempts to increase its importance. In fact, in the implementative paradigms, it has very little space since the mechanisms of spread of human rights are different routes for their functioning and adaptation to different contexts and situations. 5. The approach of the capabilities and the role of institutions We have so far shown some stages of the debate between different approaches to human rights. It is shown in particular that the problem of implementation has not a single solution but adapts itself to different circumstances. Therefore we can say that the actions (juridical, legislative and political) that aim to protect human rights have, in philosophical terms, the characteristic to be emergent, that is they are structured to respond to concrete instances. Having established this, it is necessary, however, to see if there are any underlying principles such that to human rights can be conferred an ontological status more solid and sufficient to overcome the skeptical approach or the purely ideological positions. To do this we will focus on the reflection that recently played the Nobel Prize for Economics A. Sen on this issue, using the concept of capabilities. What do Sen mean with approach of the capabilities? What is the help they provide in understanding the role of human rights in general and social one in particular? “The approach of the capabilities measures the individual advantage in reason of the abilities that the person has to do those things which assigns a value”21. From this definition it is clear as the focus moves from the utility to the freedom. This is a critical step because the well-being level of individual is no longer measured in terms of usefulness, and then in the possession and use of property through the use of available income, but in terms of ability to achieve their own ends. What is talking about Sen is a freedom that includes the opportunity to set values ​​for an individual or an entire community. The concept of capability is therefore intimately linked to the notion of freedom. In terms of rights is thus evident that there is a reversal of the overall approach: placing at the center of the reflection of the goals of the social human rights the disparities of abilities in the detection of social inequalities, the solutions to the problem are generalized and income becomes a ancillary component and not the substantial one for the elimination of barriers to the overall social development. This approach, not coinciding with a totally egalitarian à la Rawls, does not fall in the paradoxes of an abstract egalitarianism; also does not translate itself into a vision focused only on increasing income and it is not indifferent to how to translate this income in realizations and implementations. According to Sen, what really counts are the so-called human functioning and it is to them that we must attribute value. They can be of different species and of different nature and coincide with what human rights seek: the right to be well fed, have long life expectancies , realize individual ambitions, etc.. The capabilities are nothing more than the possibility of the functioning. This approach focuses on human life and on its content and on what men assign value and not on the level of utility, and passes from the means (income, GDP, GDP per capita) to the actual opportunities to realize their purposes. By doing so, Sen tells us that the necessary to a satisfactory human life do not coincide with his own ends. This allows us to widely expand the scope of the valuation analysis and, in particular, allows us to change the setting of general discussion on social human rights: under these new conditions they really take the role of regulatory principles aimed at protecting the capabilities and not singular needs related to income or referring to the individual utility. The so conceived human rights become the primary political agenda since they coincide with the objectives and obligations that a State has respect to the community that governs. This obligation goes in the first place through the guarantees of freedom. But we can go further. Sen, insisting on the need to pass from the result to the opportunity, is able to overcome the transcendental-phenomenological approach of Hersch and remains linked 216 | to a series of deferred objective in the legal and political behavior: the attention to implementation issues is always very present in the pragmatic view of Sen. However, having focused his attention on the capabilities puts him in the position of not slipping toward the skepticism or toward sterile empirical observations on the state of affairs of human rights and the difficulties that we have exposed. In this conception the only fundamental assumption is the freedom to choose and to put individuals in a position to give direction to their lives to be fulfilled according to their own aspirations. Let us now see in detail how these conditions can be used to concretely understand the meaning and the admission of economic and social rights, the so-called rights of welfare. The Declaration of 1948 includes them for the first time in history. Since then, the policy, beginning with the Western countries, has drawn more and more laws and with the intent to guarantee social protection in an increasingly wide. The rights of the second generation have become an essential item in the program of institutional reforms. But at this point comes back our question: how this approach can give answers that the juridical way is not able to give? How to determine the acceptability of human rights? In this regard, Sen observes: “like other ethical claims whose eligibility is verified by an unbiased review, the pronouncements on human rights are based on the implicit assumption that the validity of the ethical instances to them underlying is able to bear an open and informed examination”22. The requirement for the growth of these instances is the so-called open impartiality, or the ability to be able to accommodate different needs expressed by citizens and civil society. But this is not enough: asserting, in a open field of discourse, that a certain freedom (for example Freedom from needs) is so important that it must be considered a human right needs to be validated in a well-considered assessment: its proponents should ensure that their ideas find the broadest possible consensus. In practice, there is no public scrutiny, conducted at a global level, that is able to validate human rights: it is in this fact that Sen recognizes the inherent weakness of the human rights. Nevertheless, they should be recognized for the great merit of setting up the horizon of action of a political community. The link with the international forum occurs since the expansion of the rights is strongest when in a such global context, it is well established with conventions, declarations and intentions that, according to Sen, do not require ad hoc tribunals or coercive enforcement actions to ensure their defense, but only a democratic and open sharing. Using the words of Beitz we can say that human rights “serve as ethical yardstick, parameter with which to judge and criticize internal institutions, parameter on which to calibrate instances to reform them and, increasingly, evaluation parameter of strategies and behavior of economic institutions and international policies”23. The importance of freedom of expression as Agorà of social human rights is a constant that no one can ignore, and on which all agree: Hersch, Sen and lawyers. Next to freedom, however, cannot miss the desire to formulate ways and means to ensure that certain rights are respected (as is it possible ensure for example the Right to health without estimating public spending able to provide minimum levels of assistance, facilities and personnel to ensure the effectiveness of this right?). At this point, in order to understand the ethic nature, it is important to go into the details of the moral of rights and comprehend if the interests are alternative elements to the concept of capabilities to build up the foundation of human rights. According to J. Raz “The rights are the basis of the need to act in the interests of others”24. But Sen, to criticize this idea, ask himself first of all if a theory of human rights that has as its foundation the interest is an adequate move to build a general theory of law and of human rights. For the Nobel prize for economics this is a passage that distorts the nature and extent of human rights: you cannot approach to them the idea of a law that refers to the interest, which by their proper nature can be conflicting and competing and generally based on an individualistic vision of law and society. The interests tend to narrow the scope of action and to circumscribe the habits’ freedom. So if the center is the interest there | 217 can be no freedom and a theory of human rights cannot be that incomplete, because is located at the base of it a limited static and principle, not dynamic like the one that leans on the freedom and capabilities. If, however, “we admit that freedoms are important because they give the person the right to choose (regardless of the fact that people choices correspond to their personal interest or not) and to live his life in the light of his personal priorities [ ...], then a conception of human rights based on the interest cannot be that inadequate”25. 6. Conclusion: beyond the juridical way? What is the stable point, if there is anyone, of the controversy between supporters of the juridical way to human rights, skeptics who deny their effectiveness and who as some philosophers, which defend the ethical and moral meaning of them, while admitting the intrinsic problematic to this type of rights, particularly the social ones? Let’s start by saying that in a period like the present, characterized by the general economic development of the emerging countries, often does not correspond an equally sensitive to issues related to human, social and environmental development and, despite the high rates of growth, it is not in able to protect certain human rights that the United Nations intend to defend. Already this simple observation provides us with empirical evidence of the weakness of the juridical way of human rights, though the so-called juridical revolution has contributed a lot to the culture of human rights, to their definition and implementation. Skepticism should not remove meaning the longer and more complex ethical way, the true one, according to some, able to draw a fairer society founded, like Sen believes, on the development opportunities of men and on their right to be men and to realize themselves according to their skills and aspirations. The strength of the rights does not dwell in their juridical nature but in their ethical strength. They require from those who hold the destiny of a State, their recognition in every single individual in the form of compliance with certain freedoms and not in their being recognized as juridically formalized and possessing an own legal value. Then we speak of an ethical recognition of the rights that may exist even without an encoding or a juridical interpretation in the form of law. The identity of the classic rights and human rights must be kept distinct. Even without deepen the very large topic, we can say with two slogans that if for Bentham rights are sons of the law, for Hart human rights are parents of the law as a source of inspiration. If this idea has no difficulty to be accepted, because it has numerous findings in the history of the courts on human rights, Sen ask if, however, the function of the human rights end here, that is in the moral sphere and as a “regulative ideal” of a society. To say that human rights assist the birth of more careful laws of human rights does not mean to assert that the importance of human rights lies exclusively in the tip or in the determination of what can or could result in the subject of legal coercion. Restricting to this aspect the human rights is misleading because, according to Sen, next to this the moral claims, that human rights want to promote, need concrete instances of affirmation and application. And it is here that the legislative part emerges in its importance. To help to expand the sphere of rights contribute, in addition to public discussions of subjects such as political parties and civil society, there are also the NGOs acting in the territories and the international organizations and about that Sen is completely aware: without the vehicle of a free and active society, human rights could never materialize into reality and remain confined to the sphere of ethical principles. The relationship between human right and law runs on a very thin and fragile wire. The juridical route leads us to think that if a community considers as a human right important, would be desirable enact it through appropriate laws, or as Hart would say, give it “a legal coercive provision”. But, Sen points out, this could be a wrong way. In fact, harnessing under a legal status a human right, in certain contexts, may lead to unpleasant cultural conflicts, besides the fact that a com- 218 | munity may not internalize it as a moral value but only hear as a coercive rule (thinking about the instances of more freedom of women in Muslim countries or Hindus). According to Sen, a more solid, though slower and winding way is represented by the role that elements are not strictly legal and juridical can play in this area. He argues that through “the communication, pressures, complaints and a well-informed public debate, human rights can exert a good influence without being conditioned by coercive law enforcement”26. In order to protect certain rights there is no need to look to the right, or rather, no need to wait that they will be translated into precepts or prohibitions, but it is possible guarantee them through the means of the open debate where to come to the surface the ethical meaning of these rules and, in this way, to prepare the public to internalize it in their own cultural system of reference. Saying with Sen: “The prospect centered on human rights, does not entrust its effectiveness always and only to the idea to make proposals for hypothetical law”27. It should be noted, however, that Sen does not consider at all secondary the role of law, which is well seen in the historical process that saw the affirmation of human rights since 1948 and is clearly visible in the constitution and in the laws of many countries with explicit references to human rights, including the social ones. That on which Sen insists is the incompleteness of the legislative method for the assertion of those rights. They are something broader and not always subject to legal norms. Sen at the same time never ceases to recognize its importance. In fact explains: “in the protection and promotion of human rights the many roads that place themselves side by side to the juridical one, are not only alternatives, but also complementary: for the effective application of new laws on human rights, for example, the control and the pressure of the public opinion can play a decisive role”28. The ethics of human rights then it can make use of different tools by which the legal one is only the most deep and abiding, but not the only, and, in some contexts, not even the most effective or appropriate. From this last observation it forcefully emerges the priority that in this scope takes the theme of freedom: that space of discussion, which makes possible to increase the sensitivity to the protection and promotion of human rights, with their ethical status, is the freedom. Without it, this positive flow of development is not even thinkable. This join Hersch and Sen and allows us to say that freedom, whether it is a transcendental condition or constituent of capabilities, is what enables the man to enjoy the fundamental and founding right: that of being a man. References Beitz Charles R. , (2011) The Idea of Human Rights, Oxford University press. Bobbio Norberto, (1999) Teoria generale della Politica, Einaudi. Boucher D., (2009).The Limits of Ethics in International Relations: Natural Law, Natural Rights, and Human Rights in Transition, Oxford University Press, Oxford. Evans T., (2005) The politics of Human Rights, London, Pluto Press. Fuller L., (1986) The morality of the Law, Italian translation in Giuffrè editore, Milano,. Habermas Jurgen, (2001) Morale Diritto, Politica, Edizioni di Comunità, Torino. Hersch Jeanne, (1971) Il diritto di essere uomo. Traduzione di Emilio Marini, Società Editrice Internazionale, O’Neill O., (2000) Bound of Justice, Cambridge University Press, Cambridge. Rawls J., (2008) Una teoria della giustizia, Feltrinelli, Milano, Raz J., (2010) Human Rights without foundations, in S. Besson and J. Tasioulas, The Philosophy of International Law, Oxford University Press. Sen Amartya, (2010) L’idea di Giustizia, Mondadori. | 219 Sunstein C.S., After the Rights Revolution; Recovering the regulatory state, Cambridge (MA), Harvard University Press, 1990 Vida Silvia, (2012) Diritti umani e umanità: a partire da Jeanne Hersch, in Diritti umani e soggetti vulnerabili, Giappichelli Editore, Weber Max, (1968) Economia e Società, Edizioni di Comunità, Milano, vol. I. (Endnotes) 1 As we will see one of the most important problems is the implementation of human rights of the second generation. S. Casssese pointed out as already in the Universal Declaration of 1948 this problem was present among the authors of the document, cf. Article 29. 2 See. J. Habermas, 2001, Morale, Diritto, Politica; Edizioni di Comunità, Torino, p. 8. 3 See. J. Habermas, 2001, pp. 5-41 4 For a discussion on the concept of natural law in relation to human rights, theme of enormous bibliography, we simply return to a Italian classic text: N. Bobbio, General theory of politics, Einaudi, Turin 1999, p. 431-466 5 As we shall see from this idea will move, even if from very different theoretical assumptions, Amartya Sen. 6 See. S. Vida, 2012, Diritti umani e umanità: a partire da Jeanne Hersch, in Diritti umani e soggetti vulnerabili, Giappichelli Editore. 7 The expression “perfect obligations” should be understood in the technical sense and is opposed to that of imperfect obligations, i.e. obligations not perfectly certain but that belong to a special category of duties. This is a topic widely developed by I. Kant to which I refer (see in particular the Foundation of the Metaphysics of Morals and Critique of Practical Reason). 8 L. Fuller, 1986, The morality of the Law, Italian translation in Giuffrè editore, Milano, p. 142 9 See the analysis of D. Boucher, The Limits of Ethics in International Relations, Oxford University Press, Oxford 2009. 10 Beitz, The idea of Human Right, Oxford University press, 2011, p. 3. See also R. Guess, History and illusion in Politics, Cambridge University Press, 2001. 11 See Beitz, 2001, pp. 5-6. 12 See T. Evans, The politics of Human Rights, London, Pluto Press, 2005, chapter 2. Or D. Kennedy, The dark Side of Virtue: Reassessing International Humanitarianism, Princeton, Princeton University Press, 2004, pp. 3-36. 13 See Beitz, 2001, p. 42-44. 14 Among the proponents of this approach we can insert the reflections of H. L. A. Hart, AnneMarie Slaughter, etc.. Well-documented analysis of this problem can be found in M. Ignatieff, to which we must acknowledge the authorship of the expression “legal revolution”, in Human Rights as Politics and Idolatry, Princeton University Press, Princeton, 2001. 15 Boucher argues this observation by writing: “customary law was particularly important in the formation of the International Criminal Tribunal for the former Yugoslavia. The drafters of the constituting Statute of the Court intended to avoid the critical issues identified in the Tribunals of Nuremberg and Tokyo, where the defendants were brought to trial for crimes formulated after the alleged offenses, in violation of one of the most important formulas of the law, the principle that nullum crimen sine lege, nulla poena sine lege “. (Boucher, 2009, p. 322). 16 See Beitz, 2001, pp. 31-42. 17 See in particular art. 29 of the Universal Declaration of Human Rights of 1948. 220 | 18 The need to create control agencies was established in order to respond to the lack of a direct connection between the bills of rights and the reality of the singular states. Everything since the Helsinki Conference of 1975. 19 See Beitz, 2001, p. 35 20 For a more detailed study of this case, see B. Simmons, Mobilizing for Human Rights: International Law in Domestic Politics, Cambridge University Press, New York, 2009. See also S. E. Merry, Human Rights and Gender Violence: Traslating International Law into Local Justice, University of Chicago Press, Chicago, 2006, pp.. 228-9. 21 Cfr. A. Sen, The Idea if justice, Italian translation in Arnoldo Mondadori Editore, Milano, 2010, p. 241. 22 See A. Sen, 2010, p. 242 23 See. C. Beitz, Human Rights as Common Concern, in “American Political Science Review, 95, 2001, p. 269. 24 J. Raz, The Morality of Freedom, Oxford, Clarendon Press, 1986, p. 180 25 Cfr. A. Sen, 2010, p. 384 26 See Sen, 2010, p. 371 27 Sen, 2010, p 371 28 See A. Sen, 2010, p. 372 | 221 222 | Małgorzata Judycka University of Warmia and Mazury in Olsztyn Aims of education in light of human rights standards Abstract The issue of the objectives of education, the importance of the ideal of human rights is the main theme in today’s education system. Despite the many efforts of the international community to meet the needs of children and youth in adapting to, learning or even using any rights, there has been little awareness, especially among the inhabitants of countries in crisis or war and of former totalitarian states. The world’s population must widen their view of education of future generations in the direction of respect for the inherent dignity of the human, knowledge, respect, and human rights for all without any discrimination in terms of peace. Education for peace, understanding, cooperation, international friendship and respect of other people’s own culture, identity, religion is important as it provides an opportunity to build a healthy community, without prejudice, based on the love of one’s neighbor, ecology and nature. Keywords: human rights, rights of the child, aims of education, education for peace,school discipline,educational ideal,the right to education 1. Preface The objectives of education have a close relationship with school discipline and child rearing to promote the idea of dignity of human rights. The ultimate goal of education is the educational ideal, which is subordinate to other goals, content and methods of educational work (Universal Encyclopedia of PWN, 1982). Aims of education, focusing on education units to maturity amd autonomy, take into account their development towards self-realization (Suświłło 2012, p.15). According to J. Habermas, a German philosopher, education implies the improvement of student, learning and self-education, whereas a student’s use of the guaranteed human rights needs the necessary equipment to allow for self-realization, while ensuring the protection for the development of the personality (Gronowska, Jasudowicz, Balcerzak, Lubiszewski , Mizerski 2010, p.24). Human rights necessary for one’s self-development and self-realization uphold the highest value in man. The United Nations Charter emphasizes the priority of observing human rights and fundamental freedoms in terms of stability and prosperity, as well as the need for peaceful relations among all nations. The goal of universal respect and observance of human rights elevated to a principle was confirmed by both World Conferences on Human Rights held in Tehran in 1968 and Vienna 1993 (Gronowska, Jasudowicz, Balcerzak, Lubiszewski, Mizerski 2010, 20, 28, 32) and the Final Act of the Committee for Security and Cooperation in Europe in principle VII “Respect for human rights and fundamental freedoms, including the freedom of thought, conscience, religion and belief.” This principle calls for a man’s legal right to know his rights and obligations and to act on the basis of the need to support the state. The principle also emphasizes that rights derived from the inherent dignity of man are essential for his free and full development. Countries’ obligation to strengthen peace and endorse the fundamental, which is seen as a key factor in cooperating with the United Nations ((Final Act on Security and Cooperation in Europe, 1975, Rule VII). The document of the Copenhagen Meeting of the Conference on the Human Dimension of the CSCE VII affirms the principle of strengthening the demand for ensuring the rights of individuals to their fundamental freedoms and acting accordingly. Under its provisions, the law should ensure | 223 the achievement of democratic governance in the framework of justice recognizing and fully accepting a person’s individuality as the highest value and their right to choose and development it (Document of the Copenhagen Meeting of the Conference on the Human Dimension of the CSCE, 1990, Section II). The meeting document from the Moscow Conference on the Human Dimension of the CSCE (1995 Organization for Security and Cooperation in Europe) established on 3rd October 1991, that a fundamental obligation of the state is the education of citizens in the area of human rights and fundamental freedom of national legislation and international instruments. Teaching human rights, according to the document, would contribute to combating prejudice and hatred against different races, religious and ethnic groups. (Document meetings in Moscow Conference on the Human Dimension of the CSCE, 1991, paragraphs 42.1-42.2) . The principle of human rights awareness apparent in many documents and educational programs correlates with the right to education, particularly so that teaching and education fully develops the human personality and the sense of dignity. The right of humans to know their rights obliges the state to guarantee transparency, accessibility, clarity and predictability (Gronowska, Jasudowicz, Balcerzak, Lubiszewski, Mizerski 2010, S.212-213). The objectives of the education with an emphasis on life in civil society raise the status of civic education, social studies and preparation of children for school, professional, economic and public life. Civil society education should promote local, national and global citizenship (Dudzikowa, Czerepaniak-Walczak 2008, s.196) in terms of democracy, equality, partnerships, cultural exchange and economy (Wojnar, Kubin 1999, p 58). The construction of such attitudes in a democracy has a significant impact on the future generations’ image, dignity and loyalty. Human rights provide the deepest sense of human dignity and free development of the personality, equating them with the community and the obligations of communities and humanity (Jasudowicz 1997, pp. 29-30). The element of love for humanity in opposition to hatred and violence provides a foundation for human rights and influences the harmonious existence and survival of humankind. Thus, formulae of the educational ideal exist for fulfilling the mission of every individual in a free society. The objectives of education and training should enable everyone to perform useful roles, promote tolerance, peace and friendship among nations, and allow students to grow on the foundation of a symbiotic relationship with their neighbors. Education not only stimulates the moral upbringing of healthy communities by respecting dignity, universal values, cultural diversity and religious education, but it also raises awareness of non-destruction and the use of violence (Gronowska, Jasudowicz, Balcerzak, Lubiszewski, Mizerski 2010 , p 36-37). Education along with the mission of teachers shape future generations and thus bear a huge responsibility for the development and education of people so they can achieve their dreams. The postulates of the purpose of education must be properly understood, because otherwise the ruin of these values could jeopardize all efforts. Therefore, it is important that education authorities comply with the objectives of education, and the elements of the ideal come together to form a correct model of modern education. Given that these objectives insist on education for a life in a civil society and raise the status of social studies (Dudzikowa, Czerepaniak 2008, p 196), the teaching of human rights obliges the authorities and their representatives to work with the public, unlike authoritarian systems the past (Rutkowska-Paszta 1998, p 4). 2. Demands of education objectives included in general human rights standards The general standards of human rights recognize the elements of the ideal and the purpose of education and reflect the origins of their formation and evolution. The problem of peace, guarantee of security, development of people to respect the inherent dignity and worth of the human are all recognized by the United Nations Charter on June 26, 1945 (Gronowska, Jasudowicz, Mik, 224 | 1993, p 9). The charter outlines the goals of the United Nations, and its introduction states that they are determined through peaceful means to protect future generations from war, to create conditions so that treaties are respected and to ensure that people live together (Charter of the United Nations, 1945, Article 1, point 1). The card on cooperation in solving international problems recognizes the need to develop and promote respect for human rights and fundamental freedoms for all without distinction to race, sex, language or religion, and to support the implementation of these rights. The card emphasizes the importance of creating stability and prosperity in the framework of peaceful and friendly relations among nations and supports universal respect for and observance of human rights and fundamental freedoms (Charter of the United Nations, 1945, Article 1 Section 1-3, Article 13, paragraph b, Article 55, point c). The provisions of the charter state in detail the objectives and conditions of the UN peacekeeping program in accordance with the provisions of international peace and its maintenance as a basic condition for the development of humanism and human existence (Wesołowska 1993, p 41). Although the purpose of education formulae is explained in the provisions of the charter, it should be analyzed through the prism of its creation and the fact that this is accompanied by a noticeable component of education for peace and the idea of human rights awareness particularly for their education. The card demonstrates the necessity to protect generations from war and the accompanying devastation. The fragment “respect for fundamental rights and freedoms of man” appears in the charter of the United Nations expressing the belief that any action to a just and peaceful world must respect the universally accepted moral rights, which are fundamental human rights (Helsinki Foundation for Human Rights in 1993, page 25). Although the card as the most important post-war standard, the basis for the UN and international community on a global scale and of a constitutional nature (Gronowska, Jasudowicz, Mik, 1993, p 9), did not specify what laws it concerns (Helsinki Foundation for Human Rights, 1993, p 25), it would be concluded that over the years the idea of respect for human rights in time of peace, a priority in today’s education, has always been encouraged, with improvements and updates of the evolving issues in subsequent human rights standards. The Universal Declaration of Human Rights containing the elementary rights of the individual is the most important ideological document (Gronowska, Jasudowicz, Mik, 1993, p 15) and the primary source of the concept of international human rights. The declaration was the first to create the legislative framework of the UN and the catalog of rights and freedoms; it confirmed the provisions of the Charter to achieve a common standard for all peoples and nations (Helsinki Foundation for Human Rights, 1993, pp. 25-26). The sanctioning of civil, political and social rights introduces a new concept of human rights by considering their prevalence and placing them in one’s catalogue. This indicates that these rights belong to all residents of the globe, regardless of race, origin and traditions of the country of residence. Placing them in a catalogue of the rights of all essential values resulted in the Declaration that included personal freedoms, political rights and social rights (Helsinki Foundation for Human Rights, 1993, p.24). The declaration became the inspiration for the creation of the international protection of human rights; the sanctioning of the revival of natural rights (Helsinki Foundation for Human Rights, 1993, p 23) points out the necessity of the proceedings in relation to one another in the spirit of brotherhood, without discrimination to rights and freedoms. The declaration gradually introduces elements of the ideal through the recognition of the inherent dignity and equal rights of all people as the foundation of freedom, justice and peace in the world, and the need of education of respect for human rights and fundamental freedoms. The state is now obliged to increase the education of respect for rights to both a national and international scope, as well as respect and recognize those rights. The formulation of this declaration is based on teaching aimed at the full development of the human personality and the strengthening of respect for human rights and fundamental freedoms. This theme is developed through the concept that education should pro- | 225 mote understanding, tolerance and friendship among all nations, racial or religious groups, and the states are responsible for supporting the United Nations in maintaining peace (Universal Declaration of Human Rights 1948, Preamble, Articles 1, 2, 26, paragraph 2). The declaration as well as the card is an appeal for peace in the international community in opposition to evil, barbarism, and armed conflict, and so the individual has gained the right to know their rights and freedoms, and civil society to build a democracy. Its authors established that the source of human rights is their inherent dignity, but the defense of rights is in the form of either an appeal to international standards or the pressure of international opinion and governments (Helsinki Foundation for Human Rights, 1993, p 24). For humanity, the declaration has a mission to build a world of peace, democracy, justice, equality and active education, instead of one with violence (Rosa 2001, p 108). Although the declaration, similar to the charter, formulates the ideal elements and objectives of education with an emphasis on the teaching of human rights and education during peace, only the provisions of other documents, e.g. the International Covenant on Economic, Social and Cultural Rights, can see the evolution of the ideal elements of education and more effective ways of protection. The International Covenant on Economic, Social and Cultural Rights is second only to the Universal Declaration of Human Rights, the fundamental document of general application (Gronowska, Jasudowicz, Mik, 1993, p 25). Considering that the Declaration was a necessary impetus to the formation of a number of treaty-type documents serving man, the Covenant is one of those documents with the possibility of the vindication of rights, which distinguishes the moral rights of the Declaration from positive rights in the Covenant (Helsinki Foundation for Human Rights 1993, p 25, p 29). The Pact recognizes the importance of the inherent dignity and equal and inalienable rights as the basis of freedom, justice and peace; these aforementioned rights are derived from the inherent dignity of a person exercising their rights when free of fear. The covenant obliges states to be committed to universal and effective support for the respect of human rights and freedoms within their borders. In the context of the right to education, the pact must aim at the full development of the human personality and sense of dignity and strengthening respect for human rights and fundamental freedoms. The aims of education formulated by the covenant stresses education’s duty in a free society to promote understanding, tolerance and friendship among all nations and racial, ethnic or religious groups, as well as encourage the development of the United Nations’ peace-keeping activities (International Covenant on Economic, Social and Cultural Rights, 1966, Preamble, Article 13, paragraph 1). An analysis of the records of the Covenant reveals that despite the reference to the principles of the UN Charter and the Universal Declaration of Human Rights, the circumstances of its creation differ significantly; there is a noticeable evolutionary element, one is able to assert one’s rights (Helsinki Foundation for Human Rights, 1993, p 24) and change the image of the ideal. The covenant stresses the importance of the inherent dignity of the human person and recognizes the need to create conditions for the use of all civil and political rights and economic, social and cultural rights (International Covenant on Economic, Social and Cultural Rights, 1966, Preamble) . The pact sets out the objectives of education through the recognition of the right of everyone to an education, the importance of the development of the personality, sense of human dignity and the strengthening of respect for human rights. Education enables everybody to participate in a free society, thus introducing an element of civic education propagating an attitude of understanding, tolerance and friendship among nations and groups. The Covenant’s principle of respect for human rights has historically played an important role; confronting the twentieth century with the violations in totalitarian communist countries through the education of human rights resulted in the end of the Iron Curtain.. Although the rules in the core of this thinking refer to the UN Charter and the Universal Declaration of Human Rights, which predated the signing of the Final Act of 1975, Rule VII declaratively stated that with regard to compliance with the International 226 | Covenants on Human Rights standards contained therein are binding on the states associated with them (Helsinki Foundation for Human Rights, 1993, p 25, p 27). The General Comment on Article. 13 of the Covenant of the United Nations Economic Committee concerning Economic, Social and Cultural Rights of December 8, 1999, a range of problems were raised concerning the objectives of education and the need to achieve these goals. The Committee believes that education is used to realize other rights associated with availability, security and economics, and that it is the best financial investment, as an educated and enlightened active mind capable of free and comprehensive penetration is one of the most important tools and achievements of the human being (General Comment No. 13 The Right of Education in 1999, item 1). Internationally agreed education goals in Article 13 of the Covenant for public and private education reflect both the fundamental purposes and principles of the United Nations and the need to focus on education and a sense of dignity, to prepare people for participating in a free society, to promote an understanding of all ethnic, racial and religious groups with an emphasis on the most fundamental education goals which focus on the need for full development of the human personality (General Comment No. 13: The Right of Education in 1999, point 4). Education ideals are discussed in the provisions of the Additional Protocol to the American Convention on Human Rights in the Area of Economic, Social and Cultural Rights. The protocol stresses that basic human rights do not stem from being a citizen of the state but on the properties of a human. It also provides for the existence of a close relationship between economic, social, cultural, and political and civil rights of society to the extent to which these rights constitute an indivisible whole based on the recognition of the dignity of the human. It stresses the need to protect and promote the rights for their full implementation. The Protocol also mentions the need to confirm the rights recognized in earlier international instruments and to improve them in order to strengthen American democracy with full respect for the rights to one’s development. Because of education, the Protocol recognizes that it should fully develop the human personality and dignity and strengthen the respect for human rights, fundamental freedoms, justice and peace. In addition to the generally accepted formulas, the Protocol emphasizes education’s duty to enable everyone to participate in a democratic and pluralistic society in order to achieve a decent standard of living and education in the spirit of understanding, tolerance and friendship among nations, racial, ethnic and religious groups, and to encourage business for the maintenance of peace (Additional Protocol to the American Convention on Human Rights in the Area of Economic, Social and Cultural Rights, 1988, Preamble, Article 13, paragraph 1, 2). Based on a comparison of formulas from the Protocol with formulas from other documents, they are concluded to be similar in terms of the order but recognize the problem differently. The Protocol notes that fundamental human rights stem from the properties of the human person and not their citizenship attesting to the specificity of the individual for Americans’ concept of freedom. The Protocol recognizes that the improvement and protection of rights, full respect for the rights of individuals to develop and education empower people to participate in society in order to achieve an adequate standard of living in correlation with the spirit of democratic and pluralistic peace challenges without losing sight of the need for personality development and respect for human dignity (Additional Protocol to the American Convention on Human Rights in the Area of Economic, Social and Cultural Rights, 1988, Article 13, paragraphs 1, 2). Americans perceive human rights slightly differently because even the preamble of the Declaration of Independence refers to the pursuit of happiness in terms of negative rights. Americans are free in their rights both in their quest to an adequate standard of living and personal development and the pursuit of happiness without government interference (Helsinki Foundation for Human Rights, 1993, p 12). | 227 3. Objectives included in special education standards on children’s rights The standard for children’s rights on internationally agreed education goals was formulated at the Convention on the Rights of the Child of 20 November 1989. The convention was the result of the international community’s efforts to protect the rights of the child and one of the founding documents of the UN human rights system (Helsinki Foundation for Human Rights, 1993, p 27). The convention’s recognizing children and adolescents as human beings with full rights indicates that children’s rights should be considered in terms of human rights. Relying on the principles in the Charter of the United Nations, the convention recognizes the inherent dignity and worth of humans, equal and inalienable rights of all people as the foundation of freedom, justice and peace in the world (Convention on the Rights of the Child in 1989, Preamble). The Convention reiterates the commitments adopted in the Charter of affirming faith in fundamental human rights, thereby recognizing that children’s rights are universal, inherent, inalienable. It protects children’s right to special care and assistance so that they are fully prepared to live in society as an individually shaped body, brought up in the spirit of the ideals proclaimed in the Charter of the United Nations, in particular in the spirit of peace, dignity, tolerance, freedom, equality and justice, showing specific ideals. The Convention also emphasizes the need to consider the importance of tradition, cultural values of each people for the protection and harmonious development of the child (Convention on the Rights of the Child in 1989, Preamble, p 24). Concerning the law on children’s education, the Convention recognizes the importance of the objectives of education expressing the ideal of education. Education of the child, in accordance with its provisions should aim to develop their personality, talents and mental and physical abilities to their fullest potential. On the content of international documents, the convention states that an essential element of the purpose of education is to inculcate the need of respect for human rights and fundamental values for the principles enshrined in the Charter of the United Nations and adds that respect must be protected both for the child’s parents, one’s identity, language, cultural values, national of the country in which he lives, the country of origin and other cultures (Convention on the Rights of the Child 1989, Article 29, paragraph 1a, 1b, 1c). Convention acting for the purpose of education recognizes the need to prepare the child for a responsible life in a free society, in the spirit of understanding, peace, tolerance, equality of sexes, and friendship among all peoples, ethnic, national and religious groups and persons of indigenous origin. The Convention stresses the importance of instilling respect for the environment (Convention on the Rights of the Child 1989, Article 29, paragraph 1d, 1e) Children’s Rights Committee examining the implementation of the Convention emphasizes that the duty of states to promote both children’s rights based on respect for the dignity and purpose of education as the basis for human rights education. The Committee notes that today’s education goes beyond school education, as it encompasses a wide range of experiences and learning processes that stimulate the development of the child’s personality, talents, and his ability. The Committee supports the teaching towards mutual understanding, tolerance and friendship among nations, respect for cultural identity, language, national values ​​and cultures (Notes General Committee of the Rights of the Child in 2001, point 1, point 2, point 4). The Committee draws attention to the important role of schools in teaching and promoting human rights. Teaching about human rights should be implemented comprehensively so that children know the contents and intentions of human rights treaties and the process of implementation in practice. According to the Committee’s observations, an important issue is to ensure access to education for all children without any discrimination, introducing the curriculum in line with the principle of gender equality and tolerance and ensuring the quality of education and personal development through education, talents, skills, personal qualities and interests. The Committee further stresses the need to promote the educational ideal of all elements seeing with a child- 228 | friendly school’s active involvement in a child’s life. The Committee urges the State to develop a comprehensive action plan to support and monitor the implementation of the objectives set out in the Convention (General Comments of the Committee of the Rights of the Child 2001, Section 8, Section 9, Section 10, Section 12, Section 15, paragraph 23). Progress is visible in the Convention on the basis of the provisions relating to the educational ideal. Although in previous documents human rights were elements of the ideal, the ideal of the Convention is presented in a comprehensive manner without losing sight of the most important issues. The Convention, which highlighted the Committee, focused on the need for education of children in the direction of human rights thus confirming the principle of respect for human rights. The Convention recognized that the education of the child seeked to develop the child’s personality while adding that the duty of education should be the development of talents and mental and physical abilities to their fullest potential. The Convention recognized their decisions in terms of values to be protected: respect for the child’s parents, their own identity, language, and cultural values and national interests. It is therefore important to recognize the need for the child’s learning to respect the rights of others, protection of the environment and environmental education. Convention stressing the importance of civic education of children are recognized as free beings, benefiting from education in conditions of peace, democracy, tolerance, gender equality, respect for other cultures, religions and beliefs. Given that the child during its development of the personality is in essence the poor, a dependent in need of support, the Convention provides its subjectivity and ensures respect for their dignity. The Convention’s specific aims of education determine the position of the child in school, stating that the student has the right to respect for both personal dignity and one’s self. However, the Convention contains a very broad catalogue of rights of which children do not always have sufficient knowledge. Given that human rights standards are incorporated into the curriculum more and more, Polish educational institutions recognize that human rights of general education core curriculum affect the content of teaching history and society. The Helsinki Foundation for Human Rights is of the opinion that the issue of human rights is present in the school but not always presented in a skillful manner, despite the duty of school authorities to familiarize students with their rights, and thus provide relevant information. Although the Children’s Rights Committee examining the implementation of the Convention is of the opinion that measures can be seen to promote children’s rights in society and providing training for teachers on the rights enshrined in the Convention, the knowledge of human rights in the school is only at a satisfactory level. Therefore, the Committee suggests closer cooperation with international organizations such as UNICEF (United Nations International Children’s Fund) and the Centre for Human Rights (Helsinki Foundation for Human Rights 1993, s 73, 75, 77). The Convention (UNESCO) on the Fight against Discrimination in Education of 15 December 1960 is another standard formula for the ideal of engaging special education. The Convention referring to the principle of the prevention of discrimination and the right to education declared that discrimination in education was a violation of rights. This underlines the importance of the provisions of the Constitutional Act of the United Nations on Education, Science and Cultural, which are the need for international cooperation to ensure universal respect for human rights and equal access to education. The Convention prohibited discrimination in education, denying access to any individual or group of persons to education, putting anyone in a situation incompatible with human dignity and recognized the obligation of equal treatment in the field of education. The Convention emphasized that the aim of education should be the full development of the human personality and while consolidating respect for human rights and fundamental freedoms. Education would promote mutual understanding, tolerance and friendship among all nations, racial or religious groups, as well as development of the United Nations’ peace-keeping activities (Convention Against Discrimination in Education, 1960, Preamble, Article 1 paragraph 1a , Article 1 Section 1d, Article 5 paragraph 1 a) | 229 The Convention in an appeal to nations defined the word discrimination while stressing the significance of banning education on the basis of respect for the rights of every human being. It is necessary to respect human rights and education. The Convention gave priority to the issue of civic education, education for peace defining personality development in the context of universal respect for human rights and dignity and ensuring equal access to education. An analysis of the provisions of the Convention for a better understanding of its origins and would require approach the character of the United Nations Educational, Scientific and Cultural Organization - UNESCO (United Nations Educational, Scientific and Cultural Organization) operational since November 4, 1946. The Constitutional Act, which refers to the Convention, states the need to support peace, security, respect for justice, law, human rights and fundamental freedoms, that the United Nations Charter gives to all without distinction as to race, sex, language or religion. The purpose of the site is to educate for peace by providing support for the development of universal education with the principles of respect for independence and diversity of cultures, sovereignty and equality of access to education. In the field of education for peace, UNESCO cooperates with countries in the work of the peer review text books and school books, in particular history, geography and social education (Wesołowska 1993, pp. 45-49). Education for Human Rights, in accordance with the activities of UNESCO, guarantees social justice, peace and development and provides a sound basis for ensuring human rights and the prevention of violations. Since education for human rights and democracy should be taught with full respect for the rights and democracy in the respective organization, education of human rights must be analyzed in the context of education for democracy. Human rights in an integral way should be implemented only in a democratic system, because the development of this system depends primarily on the knowledge of the rights of adults and children. Taking into account human rights education in the school, it should be remembered that it is a place where respect for human dignity, including the student and the teacher is the norm, as well as respect for their cultural identity, religious, as well as tolerance and equality. Through education, human rights must be understood as a form of educational impact for building sensitivity and awareness in the field of human rights and freedoms, spreading knowledge about human rights and implementing practical skills for democracy and peace (Rosa 2001, pp. 103-104, pp. 108-109, p 114). 4. Objectives of education in national documents Objectives of education, and thus the ideal formula for education is evident in the Polish national norms although human rights was not toaught in school until 1989. The situation changed through the Act of 29 December 1989 amending the Constitution of the Polish People’s Republic, which declared Poland to be a democratic state with social equality (Polish Constitution 1997, Article 4). The International Covenants on Human Rights of 1966 on the political and legal framework for personal human rights were ratified by the Polish People’s Republic in 1977 but was valid only on paper with no adherence to the obligations under Article 2 of the International Covenant on Civil and Political requiring the state to comply with the provisions. The Protocol to the International Covenant on Civil and Political introducing an individual complaint mechanism was finally ratified 7 November 1991, so it would possible to circulate knowledge on human rights, implement human rights standards into the education curricula for life in society, knowledge society and European education (Polish Yearbook of Human Rights and Humanitarian Law, 2011, p.43-46). The Education Act of 7 September 1991 regulating the Polish education system formulates learning objectives by providing that education is a common good for society, guided by the indications of the Universal Declaration of Human Rights, the International Covenant on Civil and Political Rights and the Convention on the Rights of the Child (Law on the Education System 1991, preamble) Teaching and education in accordance with the provisions of the Act is to respect 230 | the Christian system of values and universal principles of ethics and to develop in young people a sense of responsibility, love of country, respect for the Polish heritage and culture of Europe and the world. The Act states that the school must provide each student the necessary conditions for its development, ready to fulfill the obligations of family and civil rights based on the principles of solidarity, democracy, tolerance, justice and freedom. The teacher when teaching, guiding and caring, as determined by law must respect the student’s dignity and guide their welfare, so that they are healthy moral citizens. The law obliges primary and secondary schools to organize religion lessons at the request of parents, and the public high schools on the request of parents or students themselves (The Education Act 1991, the preamble, Article 4, Article 12, paragraph 1). The Act also states that schools and institutions are required to allow students to maintain their national, ethnic, linguistic and religious identity stressing in particular that this provision also applies to learning language, history and culture. The law recognizes the possibility of conducting supplementary learning of language, history and culture or inter-school education groups, at the request of parents or other groups (The Education Act 1991, Article 13, paragraph 1, point 2.1, paragraph 2.2, Section 2.3). The Polish Teachers’ Charter Act obliges teachers and educators to teach and educate. The teacher, in accordance with the Charter, should teach and educate young people in the love of the homeland, in accordance with the Polish Constitution, in an atmosphere of freedom of conscience and respect for every human being. They shall assist each student in their development, shape students’ moral and civic attitudes in the spirit of democracy, peace and friendship between people of different nations, races and beliefs (Teacher’s Charter in 1982, the preamble, Article 6 ). The Law on the System of Education (The Education Act 1991, Article 13, paragraph 1), the Concordat between the Holy See and the Polish Republic (Concordat between the Holy See and the Polish Republic in 1993, Article 12, paragraph 1), and the Act guaranteeing freedom of conscience and religion (Act on freedom of conscience and religion, 1989) regulate religious education in Polish schools recognizing the principle of tolerance. An analysis of the regulations of the Act on the education system reveals there are some components of the educational development of the law in Poland, but it lacks the principles of human rights, which must be known and acted upon. Besides symbolic information of general indications based on human rights standards and the need to respect Christian values and universal principles of ethics, develop in young people a sense of responsibility, love of country, respect the Polish heritage and culture of Europe and the world, there is a clear gap on the obligation of teaching and education for the full development of personality and human dignity as the source of rights. Only by ensuring respect for human rights can education fully prepare the child for a responsible life in a free and democratic society in peace according to the intention of the documents of the UN system. Given that dignity is the source of all rights, it should be emphasized its innate and specific nature in the context of the student’s personality, not to mention respect for the rights of the teacher. The Act requires the teacher to respect the rights of students using the principle of their welfare, in the context of the school’s duties. However, the need for education on human rights, understanding of these rights, or compliance concerns both students as well as teachers. Hence, there is a need to introduce human rights education in schools and teacher training. The Helsinki Foundation for Human Rights recognizes the need to develop specific courses for teachers in all fields and specializations at all levels of education on human rights and democracy, and even introduce a specific subject or elective courses for older classes (Rosa 1999, s . 115). Admittedly, the Act recognizes the need to ensure the possibility of organizing language classes at school for minority students at the parents’ request, specific solutions that enable the creation of school networks for minority children, terms in the statute of the school curriculum in the | 231 minority language and the organization of teaching, and to determine the relevant textbooks and number of hours to learn the language, history and geography, of the minority’s native country (MEN response to question No 378). Respect for the rights of minorities and the fight against intolerance and racism should be promoted on a large scale through the progressive realization of the objectives of education. The Committee on Economic, Social and Cultural examining the implementation of the provisions of art. 13 of the International Covenant on Economic, Social and Cultural Rights by Poland, expressed concern at the insufficient knowledge of the Covenant in society. The Committee is also concerned that school curricula do not include the proper education on human rights, and saw the need for the promotion of human rights in society with regard to this subject in the school curriculum (Conclusions of the Committee on Economic Social and Cultural Rights 2009, paragraphs 10 and , b). 5. Summary In summary, the goals of education play an important role in today’s education system. Respect for the inherent dignity of every human student and teacher should be compulsory. Education in the knowledge of and respect for and observance of human rights has been identified in a number of and national international documents underlining its essential role in the context of building generations moral and respectful of their own and others’ identity, ethnic minorities, religious and ethnic minorities, sensitive to nature, ecology, opposing violence and peaceful solutions. The world depends the most on future generations and their sense of responsibility. Thus, the mission of building a world without violence included in international standards requires people to deepen their knowledge of our humanity, education of children and young people, in accordance with the prevailing ideal of education guidance to the best solutions. References: Balcerzak, M., (2007), the International Protection of Human Rights. Selection of sources, TNOiK, Torun Dudzikowa M., Czerepaniak-Walczak (2008), Education, Concepts-Processes-contexts. Volume 4, Gdansk Publisher Psychology, Gdańsk Popular Encyclopedia, (1982), PWN, Warsaw Gronowska B., Jasudowicz T., Mik, C., (1993), Human rights. International documents, TNOiK, Torun Gronowska B., Jasudowicz T., M. Balcerzak, Lubiszewski M., Evolution lie R., (2010) Human rights and their protection, TNOiK, Torun The Helsinki Foundation for Human Rights (1993), School of Human Rights. The texts of lectures, Zeszyty1-5, the Agency EXIT, Warsaw Jasudowicz T., (1997), Administrative against human rights TNOiK, Torun Ministry of Justice, Department of International Cooperation and European Law (2005), Poland’s Implementation of the International Covenant on Civil and Political Rights. V progress report on the implementation of the Polish provisions of the International Covenant on Civil and Political Rights, Publishing Industry Wema Sp.zo.o., Warsaw Polish Yearbook of Human Rights and Humanitarian Law No. 2, (2011), published by the University of Warmia and Mazury, Olsztyn Rosa R., (1999), Human Rights and Freedoms in the education of a democratic state. Materials and National Scientific Conference Siedlce-Chlewiska 7-8 December 1999, University of Podlasie, 232 | Siedlce Rosa R. (2001), Human Rights and Freedoms in Education, published by the University of Podlasie, Siedlce Rutkowska-Paszta M. (1998), Human rights in civic education, WSiP, Warsaw Suświłło M. (2012), Teacher Early Childhood Education - Contexts and Challenges, published by the University of Warmia and Mazury, Olsztyn Wesołowska EA (1993), co-operation among peoples and peace-education for social and behavioral problems, Publisher UMK, Toruń Wojnar, J.Kubin, J. (1999), Education for Europe. A European Commission report. Forecasting Committee “Poland 2000 Plus” at the Polish Academy of Sciences, Ellipse, Warsaw Sources of law: Final Act on Security and Cooperation in Europe of 1 August 1975 Document of the Copenhagen Meeting on the Human Dimension of the CSCE z1990 Meeting in Moscow Document on the Human Dimension of the CSCE of 1991 The United Nations Charter on June 26, 1945 The Concordat between the Holy See and the Polish Republic on 28 July 1993, Coll. Laws of 1998, No.. 51, item. 318 Convention on the Rights of the Child of 20 November 1989, Coll. Law of 23 December 1991, No. 120, item. 256 Convention on the Elimination of Discrimination in Education of 15 December 1960: Coll. Law of 19 November 1964, No. 40, item. 268-Annex International Covenant on Economic, Social and Cultural Rights of 16 December 1966, in: Journal. Laws of 1977 No. 38, item. 169 The Universal Declaration of Human Rights of December 10, 1948 Additional Protocol to the American Convention on Human Rights in the Area of ​​Economic, Social and Cultural Rights, the z1988 Act guarantees freedom of conscience and religion of May 17, 1989, Journal. Laws of 2000 No. 26 item. 319 The Act of 26 January 1982, the Teachers’ Charter, Dz. U. of 2004 No. 179, item. 1845 The Education Act of 7 September 1991, Coll. Laws of 2004 No. 256, item. 2572 Other: Implementation of the International Covenant on Economic, Social and Cultural Rights. General Comment No.13: The Right to Education December 8, 1999. - UN Doc.E/C.12/1999/10 The answer of the Minister of National Education No. 378 interpellation on ensuring students belonging to national minorities conditions to retain their sense of national identity and language in http://www.sejm.gov.pl/sejm7.nsf/ InterpelacjaTresc.xsp? Key = 716EFF94 The final conclusions of the Committee on Economic, Social and Cultural Rights - Poland. Forty-third session, Geneva 2-20 November 2009, Social and Economic Council, E/C.12POL/CO/5. | 233 234 | Elżbieta Deja University of Warmia and Mazury in Olsztyn [email protected] The Palestinian Factor in Europe Abstract The main aim of this study is to discover why Palestinians have chosen European countries as a place for their settlement. The research based not only on the data gathered by Palestine institutes but also on this one presented by European scholar. Two main factors were taken into consideration: the number of Palestinians and the status of Palestinian persons living in Austria, Belgium, Denmark, France, Germany, Greece, Italy, the Netherlands, Norway, Spain, Sweden and the United Kingdom. The conducted research shows that the main reasons of choosing one of the mentioned countries as a place of residence were the rights and a material status which could be acquired by Palestinian persons. It also indicates that both Palestinian and European researchers encounter the same problems with giving the certain numbers of Palestinian Diasporas as a result only estimated data can be given. Keywords: assimilation, community, diaspora, dispersal, expulsion, influx, integration, migration, settlement, status, society. 1. Introduction The main objective of this article is to give a general characteristics of the Palestinian diaspora in Europe taking into consideration two main aspects: the number of this community members and its profile. The research is going to investigate what factors have determined the choice of Palestinians to settle in one of European countries – whether the possibility of obtaining the citizenship and lead stable lives have been important or not. Palestinian communities in European countries are different. This article presents how various they are, focusing on the readiness for assimilation or integration, the number of members and the reasons of settlement. Every escalation of the conflict between Israel and Palestine or tension in the Arab host countries lead to more massive influx of Palestinian refugees into Europe. The paper is going to show how the Israeli-Palestinian argument has reflected on the refugees’ mater and their dispersal all over Europe, listing the main waves of Palestinian migration ( comparing to the history of the Israeli –Palestinian conflict) and their general description. The major reason of undertaking this problem is the lack of sufficient knowledge among the European citizens about Palestinian people living on our continent. This leads to creating and sustaining stereotypes of a Palestinian as a terrorist or a victim who are not able to assimilate. These two images are widely broadcasted without any reflection about the reasons of this nation settlement outside the Arab world. In addition, there are not many publications, especially Polish ones, which deal with Palestinians as ordinary people searching for home, more often scholars tend to show the armed side of Palestinian society. 2. The origin of the Palestinian migration to Europe The Palestinian immigration to Europe has not a long history. The symbolic date which is | 235 considered as the beginning of the Palestinian dispersal is the year of 1948 (Bowker, 2003; Cohen, 2008). From the Arab scholars point of view it is associated with the Arab word – Nakba, which can be translated as a catastrophe by the Arab society and for the Israeli people this year is regardedas the establishing of their own state. The Palestinian appearance in Europe was started by the arrival of a few students at the turn of the 20th century. After the Palestinians expulsion in 1948, few Palestinians settled in Europe (Bruneau, 2010; Masalha, 2003). Some of them, who worked for the British Mandate authorities and students, chose Britain as the place of residence (Harik, 1986; Said, 1980). They were allowed to replace their Palestinian Passports with a British one until the early 1960s (Takkenberg, 1998). It is worthy to mention that a very small amount of them decide to take this opportunity because they were not conscious of this chance and they treated staying in Britain as a temporary situation. It was more than ten years later, in the mid 1960s, when a few hundred Palestinian labourers, mainly holders of Jordanian passports, arrived to work in Germany (Shiblak, 2005, 2011). Since the 1970s, especially in the 1980s and 1990s, an immense migration has occurred as a result of the 1967 occupation of the Palestinian territories by Israel (Tomeh, Sharif, Simpson, Boudreault, La Rivière & Audeh, 2009). The dispersal of Palestinians has been generally connected with Israel policy towards this nation (Bowker, 2003; Cohen, 2008). Among the main reasons of the Palestinian expulsion it is worth to list: blocking the return of thousands of the West bank and Gaza inhabitants by Israel; changing the status of the Palestinian people - from citizens to foreigners residing in the West Bank and Gaza Strip; the establishing of the Palestinian Resistance Movement (PRM) and complicated relations between the PRM and Arab countries (Shehadeh, 1996; Takkenberg, 1998). The Palestinian migration to Europe was maintained by Palestinian entrepreneur and businessmen who went to Britain. It is said that the main reason for their migration was to find a good environment for investments (Hanafi, 2001). After the mobility of entrepreneurs, professionals – such as engineers, doctors and members of the teaching profession - came to settle in Europe (Shiblak, 2005, 2011). Germany, Scandinavian and other European countries, including former socialist ones in Central and Eastern Europe, were chosen as the final destination by the refugees who hailed mainly from Lebanon. Although, about 10,000 Palestinians moved to Britain during the 1990s, even more searched for asylum in Germany and Scandinavian countries, which are their dream place for settlement, apart from Palestine (Shiblak, 2005). An increasing number of the Palestinian refugees have began to settle in Europe since 2000, most of them are holders of travel documents issued by Lebanon, Egypt or Jordan. A lot of Palestinian newcomers are stateless and posses refugee travel documents or Palestinian passports (Shiblak, 2011). 3. The number of Palestinians in Europe It is extremely difficult to give the exact number of Palestinians living in Europe. Only rough estimation can be done because of possessing by them different documents or treating Palestinian people as stateless. They are also classified together with other immigrants from countries from which they last came, what is more, they are often added to the category of stateless persons. The calculation has to based on different data sources from immigration agenciesto the knowledge of community leaders. According to this data around 191,000 Palestinian people live in Europe (Endrese & Øvensen, 1994). The biggest communities can be found in Germany - 80,000 persons and in Scandinavian countries - 50,000. There are about 20,000 Palestinian residents in the United Kingdom. About 12,000 Palestinians live in Spain; 5, 000 - in France; 4,000 – in Greece. There is an amount of about 20,000 Palestinian persons spread in other European countries (Shiblak, 2000 a, b). 236 | The Palestinian community in Austria The number of Palestinians in Austria is estimated to range from 1,500 to 5,000 people. The majority of the members of the Palestinian diaspora live in Vienna and Graz. It should be emphasized that the main waves of Palestinian migrating to Austria are similar to the trend that occurred in the whole Europe. The influx of refugees has started after Nakba and has still been lastingwith the times of increases and decreases. The year 1958 is considered to be the beginning of Palestinians arrival in Austria. It began with the immigration of students and their dwelling in Graz and Vienna for education (Shiblak, 2005). The second major stage was in the late 1970s after the movement of UNRWA’s chief office to Vienna. The Palestinians, who came from late 1975 through 1976, hoped to return to Beirut. Those who migrated in mid - 1978, mostly from Lebanon, came to Austria for permanent residence. The third main phase, from the mid - 1980s to the - late 1990s, was characterized by the arrival of Palestinian students from the West Bank and Gaza and immigrants in search of political asylum. For them, Austria was more a transit point than a place for permanent residence. The fourth key period started with the beginning of the second Intifada, a lot of Palestinians seeking political asylum went to Austria (Mikdashi, Al-Charif, Khoury & Dajani, 2008 a). It is worthy to highlight that Palestinians settled in Austria are well - educated and due to this feature able to assimilate. Among the members of this nation living in Austria there are not many labourers or political immigrants. The great majority of the society comes from the West Bank and Gaza Strip, a minor group consists of Palestinians from Lebanon, Jordan, Syria and the Gulf countries. The smallest group is carrying Israeli passports (Shiblak, 2005). The Palestinian society in Belgium The number of Palestinians living in Belgium is placed at 1,000 persons. This country seemed to be just a stopover for about 30 Palestinians on their way to Germany in early 1960s. Later it turned into their final destination. In 1960s and 1970s Palestinians arrived there mainly for the need of studying. The waves of immigrants in 1980s consisted of Palestinian refugees from Lebanon and Syria, they came to Belgium after the Israeli invasion, in 1982. The rest of the Palestinian diaspora members arrived after the Iraqi invasion of Kuwait, around the time of the Oslo process (1993 and after), and the emergence of the Palestinian Authority (Shiblak, 2005). The Palestinian diaspora does not include many prominent figures, independent professionals and businesspeople. Some of its members work as parliamentary assistants to ministers, local political parties, members of parliament or senator. Palestinians are guite well – educated; there are about 30 master’s and doctoral researchers specialized in computer science, engineering, health science. Some Palestinians were naturalized as Belgian citizens. During the beginning of the migration Palestinian people demanded political asylum. The majority of them were recognized as political refugees. The problem of granting citizenship or refugee status occurred in 1994 (Mikdashi, Al-Charif, Khoury & Dajani, 2008 b). This year is regarded as the end of the Israeli occupation and Palestinians from West Bank and Gaza denied granting Belgium residence. The Palestinian diaspora in Denmark The majority of 23,000 Palestinians in Denmark live mainly in Odense and Arhus. We can distinguish two main waves of migration. The first influx started in the late 1960s and lasted through early 1970s. That time 100 Palestinians arrived in Denmark from Jordan and the West Bank. The second wave came after the 1982 massacres of Sabra and Shatilla. According to the official Danish figures about 3,00 Palestinians arrived in the 1980s. The arrival of Palestine refugees beganto fall gradually - in the year 2000, only 189 immigrants came (Mikdashi, Al-Charif, Khoury & Dajani, 2008 c). The number of Palestinians who residence in France is estimated from 1,000 to 5,000 persons. It is easy to list the main waves of their migration. In 1948, after Nakba, a limited number of Pales- | 237 tinian families came to France. The wave of the 1970s consisted of Palestinian students. Whereas in the 1980s the majority came from refugees camps located in Syria and Lebanon. During the next decade immigrant came as tourist and overusing the law of birth place – country stayed in France. Some arrived after the Second Intifada in 2000 (Shiblak, 2005). The first generation of immigrants did not assimilate easily, they were too focused to preserve old habits. The Danish government introduced programs to facilitate assimilation, it brought positive results but there has been a lack of adequate jobs to absorb the unemployed Palestinians, often high-qualified and skilled (Mikdashi, Al-Charif, Khoury & Dajani, 2008 c). The Palestinian community in France Among the Palestinians dispersed in France there are about 300 – 400 students. The small number of the Palestinian learners is connected with a very limited scholarship program (about 20 scholarships), the others, usually hailing from affluent families, afford to pay on their own. They are generally interested in law and business studies (Larzillière, 2005) Not only did Palestinians immigrate looking for a higher level of education but also for employment. Most members of the Palestinian community are either students, graduates, labourers or white - colour workers (Shiblak, 2005). The first generation considered themselves as ‘returnees‘ and not as permanent refugees in France. The majority of Palestinians did not experience the life of refugees in the camps. The members of the Palestinian diaspora share common interests such as a feeling of national belonging, history, culture, traditions and a common language. Some Palestinians came from refugee camps in Lebanon, Jordan or the West Bank and Gaza Strip (Mikdashi, Al-Charif, Khoury & Dajani, 2008 d). The Palestinian diaspora in Germany The largest Palestinian community in Europe is in Germany. According to the figures of the Palestine Liberation Organization (PLO), the number of Palestinians reach 100,000, with 25,000 of them living in Berlin. The Palestinian Refugee Department in Berlin says that 72.5% of all Palestinians residing in Berlin came from Palestinian camps in Lebanon, and the rest come from the refugee camps situated in Syria and the West Bank (Mikdashi, Al-Charif, Khoury & Dajani, 2008 e). Arab researchers give the number of 80,000 Palestinians in Germany, with 20,000–25,000 living in Berlin (Shiblak, 2005). There is no ‘Palestinian’ nationality in official statistics. At the beginning Palestinians had travel documents issued by different countries but passports from the Palestinian Authority in the Occupied Territories have not changed this situation – the Palestinian nationality is not accepted by the German authorities. As a result until the end of 1984, Palestinians were recorded as stateless. Later Interior Ministry stated that Palestinians should be categorised as ‘Unknown Nationality’ (Shiblak, 2011). After the Second World War few hundred students chose Germany as the place of their settlement. Palestinians were also seeking a higher education in the early 1960s. In the late 1960s and early 1970s, despite students, whole families from Palestine and Jordan came, too. Some of this families settled in West Berlin. In the 1960s German companies made contracts with Palestinians. They hailed from the West Bank and Jordan. Most of them held Jordanian passports. At the end of the 1960s Palestinian refugees from Lebanon migrated to Berlin. In 1970, after the events in September, Palestinians from Jordan as well from Lebanon applied for asylum in Germany (Mikdashi, Al-Charif, Khoury & Dajani, 2008 e). The members of the Palestinian diaspora in Germany are mainly political refugees. The decade of 1990s forced young unskilled Palestinians from Kuwait to look for employment in Germany. Some of the Palestinians from 1960s earned a lot of money and returned home. The rest 238 | of them stayed in Germany and assimilated smoothly into society - 60% of all Palestinians are fully naturalized (Shiblak, 2005). They live in major German cities and their suburbs, especially in: Hanover, Munich, Hamburg and Frankfurt. Most members of the community, especially this ones who immigrated between 1960 – 1970, work in the medical and engineering sectors. We can find Palestinian doctors, engineers and lawyers, have had good positions at hospitals, clinics and governmental departments. These ones who have come since 1990 suffer poor living conditions. Most families do not receive government handouts or welfare benefits (Mikdashi, Al-Charif, Khoury & Dajani, 2008 e). The Palestinian community in Greece According to the data gathered by the Palestinian embassy in Athens, about 3,000 - 3,500 Palestinian persons live in Greece. Palestinians are present in almost every Greek city and island.The most attractive places for settlement have been cities, especially Athens and Salonika. Although since 1948 has been the permanent Palestinian migration, they came to this country in four main waves. The first one started at to the end of the 1960s with the Palestinian students arrival (Fakiolas, 1999). They chose Greek universities to study because of possibilities of obtaining scholarships and the relatively low costs of living. This group of people came mainly from Jordan and the Palestinian Occupied Territories (Al-Ajouz & Al-Shawa, 2008). The Palestinian migration lasted during the 1970s and 1980s (Shiblak, 2000 a, b). In 1976 businessmen and professionals from Lebanon came. They considered Greece to be a more safe alternative than Arab countries. The next group followed them, consisted mainly of less affluent Lebanese and Jordan refugees (Al-Ajouz & Al-Shawa, 2008). The last influx was connected with political and economic problems in the Arab world in the 1990s, some Palestians went to and stayed in Greece illegaly (Al- Shawa, 2005). Palestinians married Greek citizens. Due to these mix marriages they were able to settle permanently and lead stable lives as the doctors and engineers. A lot of white - collar workers and businessmen hail from Lebanon (Al-Ajouz & Al-Shawa, 2008). The Palestinian diaspora in Italy 4,000 Palestinians live in Italy. Among their permanent migration we can distinguish four main periods. The first one was after Second World War. The large numbers of Palestinians came between 1967 and 1969; 1970 and 1978; 1982 and 1985. Although Palestinians arrived in Italy mainly from Jordan and Palestine, smaller groups came also from Jordan, Syria, Lebanon and the Gulf countries, especially Kuwait and Saudi Arabia. Some of them hail from Iraq, Libya and some East European countries, for instance: Romania and East Germany. The main purpose of their migration and choosing Italy was a university education (Al-Qaryouti, 2008). Due to obtaining scholarships at Italian universities by Palestinian students, the members of diaspora became intellectuals, ambassadors and high - ranking officials. In 1980s majority of Palestinian after graduation was employed at public and private hospitals (Shiblak, 2005). The Palestinian community in the Netherlands The number of Palestinians living in the Netherlands is estimated around 7,000 people. The Palestine migration to this country started in 1948 when students came both to study and work. In the 1960s a group of 120 Palestinians arrived to find work here (Mikdashi, Al-Charif, Khoury & Dajani, 2008 f). In general the members of Palestinian community used to live in poor accommodations and had to stand hard work conditions. At the beginning they found it difficult to learn Dutch and to assimilate into local society. Palestinians tended to keep their original habits and practices. It was common for Palestinian people to present themselves as Jordanian. Nowadays we can notice them doing different jobs: from labourers, students, through engineers, physicians, artists, to | 239 painters, writers and journalists (Shiblak, 2005). The Palestinian society in Spain The Palestinian diaspora in Spain has between 3,500 and 5,000 people, with 100 members living permanently and 3,500 - 4,500 student (Mikdashi, Al-Charif, Khoury & Dajani, 2008 g). Choosing Spanish country as a place of residence has had two main reasons: work and university studies. The first group of Palestinians, located on the Canaries Islands, had its origins in the Arab emigration to America which took place from the end of the 19th century to the early 20th century (Tarbush, 2005). The second wave, Palestinians who settled around the main university cities, consisted of students seeking for a higher education, in the second half of the 20th century (Mikdashi, Al-Charif, Khoury & Dajani, 2008 g). Although the migration to this country started after the Second World War, with the mass influx of Palestinian from the West Bank, the greatest increase - 30 per cent - of the Palestinian community was noticed during the 1970s. The main group arrived at the Spanish islands in the second half of the 20th century came from the territories occupied in 1967 (Tarbush, 2005). In 1980s it was observed the considerably decrease in the number of Palestinian people. This fall was related to gaining Spanish citizenship, passing away of Palestinians form the first generation immigrants, modernizing of the foreigners’ register. This community is going to disappear (Shiblak, 2005). The major society of Palestinians lived at the Canary Island. It was the stopover on the way to North America, later it became their final destination. Among the members of the Palestinian diaspora we can distinguish mainly students and a large amount of businessmen and professionals. They are not willing to join to any movements or Palestinian organisation (Mikdashi, Al-Charif, Khoury & Dajani, 2008 g). Palestinian people in Sweden The Palestinian community in Sweden is estimated to have around 10,000 persons. According to the Central Statistics, the official number of Palestinians in Sweden was placed at 4,746 (all of them are put under the category of ‘stateless persons‘). Some community members give the number of around 10 - 40,000. Arab scholars give the data of 10,000 Palestinians living in Sweden (Isotalo, 2003). They live mainly in such cities as: Upsala with 2,500 Palestinians; Malmo - 2,000; Stockholm2,000; Göteborg - 1,000 (Mikdashi, Al-Charif, Khoury & Dajani, 2008 h). Among the main waves of the Palestinian migration, the first stage was placed in the early 1960s.It consisted of Palestinians seeking for education. The next wave arrived in Sweden after the civil war in Lebanon. This immigration group possessed Lebanese or Syrian travel documents. After obtaining permission to reside in Sweden the names of their previous host countries were not registered in the official statistics (Mikdashi, Al-Charif, Khoury & Dajani, 2008 h). In 1990, after Iraqi invasion of Kuwait, about 300,000 Palestinians went through Jordan and neighbouring countries, to Sweden. In 1999 Palestinian immigrants from Gaza holding Palestinian passports went to Swedish territory (Ghani, 2006). A large number of Palestinian immigrants came not only from Palestine, but also from other countries such as: Kuwait, Syria, Jordan, Lebanon. The main problem connected with Palestiniansis the lack of knowledge of the Swedish language. The majority of them is not ableto learn it which leads to the high rate of unemployment among Palestinians around 70 - 80 per cent (Schulz, 2003, 2005). This lack of employment as well as the segregated housing conditions of Swedish cities are firm obstacles toward integration. Many members of Palestinian society also consider cultural background and morals problematic, especially behaviour of young girls and the respect for the elderly (Ghani, 2006). This cultural isolation is a common trend. Palestinians con- 240 | sider both – Palestine and Sweden - as home. Palestine is for them the true homeland because of emotions and morality. Sweden is ‘home’, too, because of giving security and individual freedom - as a source of stability and shelter. For Palestinian women Sweden is seemed to be a better place to live in because of the possibility of emancipation (Schulz, 2005). 20 per cent of the members of Palestinian community get work in the food sector or in education and journalism. Most young people after schooling go to work in the consumer sector but only 1 per cent of Palestinian young adulthood go to college. It results of obtaining a higher education level by only few Palestinians (Ghani, 2006). The Palestinian community in the United Kingdom There are between 20,000 and 30,000 Palestinian people living in the United Kingdom. One can have problem with giving the exact data because of: the nature of the British census, ethnic classifications, the lack of the Palestinian diaspora homogeneity and their geographic dispersal (Khalidi, 1997,1995) The 1991 census placed the total number of Arabs born in the Arab countries, ignoring these ones born in other places and residing in Britain, at 101,886. Taking into consideration only Palestinian nations unclear estimates range from 15,000 to 20,000 were conducted (Mahmoud, 2005; Uthman, 2008). The main waves of their migration occurred: after the June 1967 war, when the Israeli army started to occupy the West Bank and Gaza Strip; after the Israeli invasion of Lebanon in 1978 and in 1982; after the Iraqi invasion of Kuwait in 1990; after the liberation of Kuwait in 1991 (Masalha, 2003). The members of Palestinian community have been able to integrate into British society without losing their national identity but with partial adaptation. Thousands Palestinian teenagers have taken oriental studies at British universities. Despite learning English as a foreign language Palestinian learners have also studied medicine, pharmacy, engineering and physics. There are Palestinian scholars at British universities (Mahmoud, 2005; Uthman, 2008). 4. Summary The Palestinian communities in Europe are various, especially when their identity, social and cultural background, experience in the first country of refuge, legal status and level of assimilation are taken into consideration (Harik, 1986). In Britain, France, Spain refugees showed to be more open and ready to integrate. At the Canary Islands, they were ready to assimilate with keeping their own culture and strong community ties (Tarboush, 2005) whereas in the Scandinavian countries, Palestinians seem to be unprepared for assimilation and afraid of losing their identity and own culture (Schulz, 2003). Due to the lack of protection and recognition for Palestinians under international law one can observed unsolved residence status for the majority of them (Dawker, 2007; Smith 1986). This insecure residency has led the members of the Palestinian community to be marginalized in such terms as living conditions and social status. In response Palestinians seem to be more traditional and willing to be more conservative (Kannana, 2005). Without resolving Palestinians’ problems, their migration is going to continue (Sayigh, 1999). Every violence escalating in the occupied territories and the rejection of social and economic rights in the host Arab states are reflected in a massive influx of Palestinian refugees (Kadur & Foda, 2005; Safran, 1991). It should be highlighted that The Intifada was a decisive factor which made the German authorities in to accept Palestinian asylum seekers. As a result there is a large | 241 young Gazan population in Berlin whilst mainly middle-aged Palestinians migrants to the Scandinavian states. The youth is more interested in studying and making professional careers whereas the older ones usually become unskilled and manual employees. 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Cycle of Isolation: the Situation of Palestinian Refugee Women in Germany. The Palestinian diaspora in Europe. Challenges of Dual Identity and Adaptation Refugee 242 | and Diaspora Studies Series. 2. pp. 59-76. Kanaana, S. (2005). Towards the Preservation of Palestinian National Identity. The Palestinian diaspora in Europe. Challenges of Dual Identity and Adaptation Refugee and Diaspora Studies Series. 2. pp. 8-16. Khalidi, R. (1997). Palestinian Identity: The Construction of Modern National Consciousness. New York: Columbia University Press. Khalidi, R. (1995). Peace & its Discontents: Gaza-Jericho 1993-1995. London: Vintage . Larzillière, P. (2005). Adaptation without Assimilation Palestinian Youths in France and Germany. The Palestinian diaspora in Europe. Challenges of Dual Identity and Adaptation Refugee and Diaspora Studies Series. 2. pp. 122-129. Mahmoud, L. (2005). British Palestinians: the Transformation of an Exiled Community. The Palestinian diaspora in Europe. 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The question of Palestine. London: Routlege. Safran, W. (1991): Diasporas in Modern Societies: Myths of Homeland and Return. The Journal of Transnational Studies. 1 (1). pp. 83-99. Sayigh, Y. (1999). Armed Struggle and the Search for State: the Palestinian National Movement, 1949-1993. Oxford: Oxford University Press. Schulz, H. L. (2003). Palestinian Diaspora: Politics of Homeland and Formation of Identities. Washington: Routledge & University of Washington Press. | 243 Schulz, H. L. (2005). The Palestinian Diaspora: Between Nationalism and Transnationalism. The Palestinian diaspora in Europe. Challenges of Dual Identity and Adaptation Refugee and Diaspora Studies Series. 2. pp. 20-31. Shehadeh, R. (1996). The Arab-Israeli Accords: Legal Perspective (pp. 3-21). London - The Hague – Boston: CIMEL SOAS. Shiblak, A. (2000 a). Palestinian Refugee Communities in Europe, an Overview. Oxford: University of Oxford. Shiblak, A. (2011). Palestinian Refugees: Identity, space and place in the Levant (pp. 29-50, 113135). New York: Routlege. Shiblak, A. (2000 b). Palestinian Refugees in Europe; Challenges of adaptation and identity - Summary Report of Workshop. Oxford: University of Oxford. Shiblak, A. (2005). Reflections on the Palestinian Diaspora in Europe. The Palestinian diaspora in Europe. Challenges of Dual Identity and Adaptation Refugee and Diaspora Studies Series. 2. pp.7-19. Smith, A. P. (1986). The Palestinian Diaspora, 1948-1985. Journal of Palestine Studies. 15 (3). pp. 90-108. Tomeh, G.T., Sharif, R.S., Simpson, M., Boudreault, J., La Rivière, K. and Audeh, I. (2009). United Nations Resolutions on Palestine and the Arab-Israeli Conflict: 1947-1998. 2009. Institute for Palestine Studies. Takkenberg, A. (1998). The Status of Palestinian Refugees in International Law. Oxford: University Press. Tarbush, J. A. (2005). The Palestinian Community in Spain: Past and Present. The Palestinian diaspora in Europe. Challenges of Dual Identity and Adaptation Refugee and Diaspora Studies Series. 2. pp. 77- 97. Uthman, M. (2008). The Palestinian Community in The United Kingdom. Palestinian International Institute. 244 | III. European values | 245 246 | Tadeusz Jasudowicz University of Warmia and Mazury in Olsztyn European Union towards the roots of European identity Abstract To fruitfully enjoy the present, to constructively build the future, all in the human world must be based on the roots of the past, based on the historical heritage. It also concerns the unification of Europe, also in the form of the European Union. Meanwhile, it is hard to find in the preambles to the European Treaties clear and unambiguous embed in this rich heritage, but has appeared in the preambles to the Constitution for Europe and the Charter of Fundamental Rights of the European Union. It is therefore important, firstly, to perceive the EU and its legal order with regard to normative roots formed by the Council of Europe in the European system of human rights protection, on the one hand, and the common constitutional traditions of the Member States, on the other hand. The Statute of the Council of Europe and the European Convention on Human Rights strongly emphasize the significance of historical achievements of the existing cooperation. The necessity of recognition of these values ​​as general principles of EU law - affects a duty to respect achievements of history and respect it in work of EU. In this historical achievements - not only to the age of enlightenment and not just to the experience of the French Revolution, but from the beginning and to this day – the first place falls to Christianity, including Catholicism, of course. Although it was not manage to place the truth in the preambles to the founding treaties, the truth and naturaliter and necessariter maintain its objective validity and must be respected in EU activities. Key words: European Union - European values - the roots of identity - the traditions of democracy and human rights - the achievements of Christianity. 1. Introducion Because “the union language” is full of references to the category of European identity, associating this category with own proceedings and achievements, as well as trying to convince citizens of the EU to believe in a sense of this identity, it means all citizens of all EU Member States, there is an important question about the nature and shape of the “European identity”. Is this a “new invention”, unrealistic and untested, inconsistently designed in subsequent actions and statements for the future, or whether it has any connections with the traditional “before-union” European identity. The question about the identity largely coincides with the question of European Union axiology. These questions are important as it has been 60 years since the beginning of the realization of the great European project, carefully and sensibly initiated from the common market of coal and steel, with the rejection of far-reaching political integration projects and defense. (I mean the preparation of texts and defeat of the process of ratification of treaties of the European Defence Community and the European Political Community - see Galster, 1995, pp.14-17.). By reason of repetitive and fabricated claims of some inherent incompatibility between Catholicism and European integration, along with the claim that Catholicism in general, including also the Holy See and the successive popes are opposed to European integration. However, it should be reminded that among the “founding fathers” of European integration the most im- | 247 portant roles were played by the great Catholics of the time, foreign Minister Robert Schuman from the French Republic, the Italian Prime Minister Alcide De Gasperi and the German Federal Chancellor Konrad Adenauer. None of successive popes, from Pius XII to Francis has not withstood the process of European integration or has opposed any principle. In particular, this applies to our Holy Father John Paul II. The latest one - on the occasion of 1200 anniversary of the coronation of Emperor Charles the Great - in his message to the conference anniversary has positively referred to the idea of European integration, including the Charter of Fundamental Rights of the European Union, although at the same time - of course - did not fail to point out errors in a particular implementation. He interpreted the card as an “attempt to re-synthesis of the main values that should the base of the coexistence of the peoples of Europe”, expressing at the same time disappointment with “the fact that the text of the Charter has not even made any reference to God, who is the highest source of human dignity and the fundamental rights”. The Pope John Paul II was also disappointed with the fact that “the text of the European Charter did not come out to meet the expectations of many people”, especially to the issue of “the courageous defense of the individuals and family rights” (Message of December 14th, 2000, the Polish text [in:] Bulletin OCIPE. No. 1 (44) of 21st January 2001, p. 2). At the same time, Pope stressed: “In many European countries, basic human rights are threatened by policies favoring abortion that is legalized almost everywhere. The threat is also a consent to euthanasia, and more recently the draft of laws in the field of genetic engineering, which do not guarantee respect for human embryos. Using big words on human dignity is useless if it is heavily affected by the adopted rules of law). 2. Conclusions against a background of preambles to Community Treaties and EU Treaties In the history of the law of treaties it found acceptance that in its admissions, also known as preambles, refers to the sources and the most relevant values to the subject of treaty regulation. Therefore, it is in the preambles where a deep underlying purpose of the treaties (ratio legis) can be found, including interpretation and applying the specific provisions. The preamble is an integral part of the treaty and performs very important role to its functioning, the more if we are able to free ourselves from the plane legal positivism, and open up to the outside-and above-positive depth of the law. It is worth noting that not only treaties operate technique of prefixing their specific norms by preambles, the resolutions of international organizations, both binding (such as EU regulations and directives) and a soft-law regulations (such as recommendations and resolutions of the Committee of Ministers of the Council of Europe), contain extensive preambles. Preambles of the first founding treaties, so treaties establishing the European Coal and Steel Community, the European Economic Community and the European Atomic Energy Community, do not return to the teachings of the past, or to the roots of European identity. These preambles do not contribute anything that might be relevant in the world of basic current values​​, including not even using the concept of human rights (or fundamental rights), and do not refer to the category of the inherent dignity of the human person. For example, the EEC Treaty, also in the consolidated version of the Treaty of Maastricht from 1992, mentions in its preamble the “establishment of foundations of an ever closer union”, “ensure economic and social progress”, “improve the living and working conditions”, “guarantee steady expansion, balanced trade and fair competition” etc. A preamble of EEC Treaty has a pragmatic approach for the applications of its targets, historical and axiological ground is not showed at all. (Treaty establishing the European Community, 2000, p. 72; European Treaties, 2003, p. 71; Human Rights, 1993, p. 341). The same applies to the preamble of the Treaty establishing the European Atomic Energy Community (European Treaties, 2003, p. 241). Slight - one might say, partial – the improvement in this regard was brought by the Single European 248 | Act, which in its preamble, did not only referrer to the “fundamental rights recognized in the constitutions and laws of the member states”, emphasizing the “special manifestation of the principles of democracy and respect for human rights, to which they are attached”, but also expresis verbis - as the source of those rights – showed “Convention for the Protection of Human Rights and Fundamental Freedoms and the European Social Charter” (Human Rights, 1993, p 352). Communities’ transformation to the Union led - it cannot be denied - to continue improvement in the research area. In the preamble to the Treaty on European Union from 7th February 1992 it was clearly confirmed that “its attachment to the principles of liberty, democracy and respect for human rights and fundamental freedoms and the rule of law,” and - in connection with the move towards stronger “solidarity between their peoples”, it was claimed that it should take place “while respecting their history, culture and traditions” (Text [in:] the European Union, 2005, p. 78. Compare European Treaties, 2003, p. 33). It has to be seen in close connection with the provisions of Article 6 of the TEU, where in paragraph 1, EU indicates the point of its support “principles of liberty, democracy, respect for human rights and fundamental freedoms and the rule of law, principles which are common to the Member States”. In paragraph 3 undertakes to respect “the national identity of the Member States” (Recall that in section 2 constitutes that “The Union shall respect fundamental rights guaranteed in the European Convention on the protection of Human Rights and fundamental Freedoms signed in Rome on 4th November 1950, and stemming from the constitutional traditions common to the Member States as general principles of Community law”. Both “groundings” of EU law are indicated here: normative - the European system of human rights protection on the basis of the ECHR, as well as historical - in the common constitutional traditions). The Treaty of Lisbon is nothing new in this respect, on the contrary - goes back to the first dry pragmatism of founding treaties, ignores entirely the question of its normative and axiological ground. In this sense, it is a regress to what was proposed by preamble - rejected in the ratification process - Constitution for Europe. There, at the beginning, it was pointed out the inspiration of “cultural heritage, religious and humanist Europe, on the ground of which have developed the universal values ​​of the inviolable and inalienable rights of the human person, freedom, democracy, equality and the rule of law.” The postulated “Unity in diversity” is due to the fact that “the peoples of Europe, while remaining faithful to its identity and its national history, decided to break the old divisions and - united in an ever more closely - to forge their common fate” (La Constitution Europeenne, 2005, p. XXV. See also: 6655/7/09 REV 7, p. 483). It should be added that art. I-2 was specifically dedicated to the “Values of the Union” and proclaimed: “The Union is founded on the values of respect for human dignity, freedom, democracy, equality, the rule of law and respect for human rights, including the rights of persons belonging to minorities . These values are common to the Member States in a society characterized by pluralism, non-discrimination, tolerance, justice, solidarity and equality between women and men”. I am not going to comment the catalogue of these values, a bit chaotic crowded here, I only note that the Constitution has to be opened for the world of values, vainly searched in the Treaty of Lisbon. From the analyzed point of view, actually it is distinguished in plus the Charter of Fundamental Rights of the European Union of 7th December 2000, which - after years of controversy according to its legal nature and degree of binding – Lisbon normalization has given the nature of the treaty, cutting the existing doubts and disputes. Category of “common values” permeates the entire contents of the preamble to the Charter of Fundamental Rights of the EU. It states unequivocally that “conscious of its spiritual and moral heritage, the Union is founded on the indivisible, universal values of human dignity, freedom, equality and solidarity and is based on the principles of democracy and the rule of law”. Not only these values are the basis of the Union, but this preamble also declares that it will contribute “to the protection and development of these common values” significantly, “while respecting the diversity of the cultures and | 249 traditions of the peoples of Europe, as well as the national identities of the Member States” (paragraph. 2 Preamble of the Charter of Fundamental Rights). Importantly, it was further confirmed in the preamble “rights in particular, from the constitutional traditions and international obligations common to the Member States European Convention for the Protection of Human Rights and Fundamental Freedoms, the Social Charters adopted by the Union and the Council of Europe and the case law of the Court of Justice of the European Union and the European Court of Human Rights” (cf. paragraph. 5 of the Preamble, the Charter of Fundamental Rights). This must be associated with a very important decision of art. 52 paragraph 3 of the Charter, which states: “In so far as this Charter contains rights which correspond to rights guaranteed by the Convention for the Protection of Human Rights and Fundamental Freedoms, the meaning and scope of those rights shall be the same as those laid down by the said Convention”. In addition, the penultimate decision Charter defines “level of protection” and clearly states that “Nothing in this Charter shall be interpreted as restricting or adversely affecting human rights and fundamental freedoms as recognized, in their respective fields of application, by Union law and international law and by international agreements to which the Union, the Community or all the Member States are party, including the European Convention for the Protection of Human Rights and Fundamental Freedoms, and by the Member States’ constitutions”. In conclusion, it could be stated that in the preamble to the Charter of Fundamental Rights of the EU and in the Charter as a whole it is enough clearly stipulated the respect of two types of normative roots of EU law: first, in the European system of human rights protection, and secondly, in the national constitutional traditions. It is worth having a closer look at the normative and integrity rooted in theory and verify it in practice. 3. The law and practice of the EU to the European system of human rights protection As it can be seen from the above, beginning from the Single European Act - through the Treaty of Maastricht and its subsequent versions - to the Constitution for Europe and the Charter of Fundamental Rights of the EU, reaching the achievements of the European system of human rights protection, obtained under the European Convention on Human Rights, among others, and above all through the wide Strasbourg case-law is a fundamental assumption. The earlier jurisdiction of Luxembourg is used, as the Court of Justice of the European Communities “invented” and consistently developed the concept of fundamental rights under the ECHR reconstructed in the area of Community law as the “general principles” (See Gronowska, 2010, p. 531). So vivid and consistent confirmation of topicality and immovability of European standards of human rights standards, warranted and creatively developed through legislation in the system of the European Convention on Human Rights, it could be entirely satisfactory, if not a few doubts. First, some risk is already apparent from the practical dimension of the “jurisdiction” of the European Court of Justice. The European Court of Justice rightly has not noticed the Community’s competence in the field of human rights, while ECJ - being a Community institution - felt the master of the situation, discovered and developed the “fundamental rights” under Community law, then the EU, derived, inter alia, from the European system of human rights protection. The European Court of Justice treated the “general principles of community law” - felt entitled to its “reconstruction” for the purposes of Community law, without clinging to the conclusions that for its nature, scope and content of the system resulted from the ECHR, including the extensive jurisdiction of Strasbourg. Was it really – legally speaking, competent to modify the rights for the use of the Community? There can be some certain doubts about it. This “original sin” of the Court may be disclosed on the basis of the Charter of Fundamental Rights of the EU. Beneficial foundations to the ECHR system have already been presented. It is worth showing, that the preamble after including in paragraph 5 “the rights as they result from the European Conven- 250 | tion for the Protection of Human Rights and Fundamental Freedoms… and the case-law of the Court of Justice of the European Union…” - states in the next sentence of that paragraph 5 of the preamble that “the courts of the Union and the Member States with due regard to the explanations prepared under the authority of the Praesidium of the Convention which drafted the Charter and updated under the responsibility of the Praesidium of the European Convention”. Here, in turn, the Praesedium “grows” on unconditional “master of situation”. Is it legally permissible? Similarly, at the end of the content of the Charter in the context of the above-mentioned conditions in art. 52 and 53 for the system of the European Convention on Human Rights, and - especially! - taking into account the provision, art. 51 paragraph. 2 of the Charter, according to which the Charter “does not extend the field of application of Union law beyond the powers of the Union or establish any new power or task for the Union, or modify powers and tasks defined in the other Parts of the Constitution”. In art. 52 paragraph. 7 of the Charter it is stated that “explanations drawn to the interpretation of this Charter shall be given due regard by the courts of the Union and the Member States”. Thus, the reservation disclosed in the preamble to the Charter is confirmed and reflected in its substantive provisions, again as if arguing with these provisions to be guided by the rules of the European system of human rights protection. On the contrary, it has never and nowhere been mentioned in the process of European integration - not in the preambles to the Community Treaties nor the EU Treaties, or in the substantive provisions of these treaties that any and all of the State Members of Community and later of the Union - and at the stage of initiation of the integration process by the “six” and at the stage of the composition of the State to achieve the scale at 27 and now even 28 countries - had previously been parties of the Statute of the Council of Europe and the European Convention on Human Rights. At the same time countries have been required to perform obligations arising from the European treaties in good faith. Good faith as such requires that this performance includes not only the actions of the particular country, but also joint actions with other countries, parties of those treaties. This is all the more true because the European Court of Human Rights sees in the system of Convention the creation of a “European public order”, that is essential for understanding of the current legal “identity” of Europe. Since any and all Member States of the Communities / Union were bound by the European human rights standards, they could not create anything together, what would be exempt from the recognition and enforcement of these standards. Nemo plus iuris in transferre alium potest, quam ipse Habet. Legal and humanistic burden on Member States is “inherent” load of their organizational formations, including the Communities and the Union. Practically speaking there are some reasons to enjoy the serious progress on the road leading to the formal accession of the EU to the European Convention on Human Rights. It is a pity, however, that the Union lacks a sense of “natural legal load” and are too far-reaching tendency to “bargain” something more. If the Union and its Member States with all the depth and the responsibility, come up to the fundamental principle of pacta sunt servenda, perhaps would find in the inner restraint saving them from the greed of jurisdiction for human rights. The economic core of integration is still valid, although overgrowth in the all-embracing, the quasi-state Union. In a meeting with predominant economic reasons human rights can lose painfully. Human rights cannot be condemned for such a confrontation, and such a fate. In a pragmatic process of joining the EU to the ECHR, the priority should be guaranteed by the European Convention on Human Rights and the European Court of Human Rights as the basis of interpretation and main interpreter of human rights standards. So much from the dreams - normatively justified, and indeed justified. Life is sometimes different. Here in the Charter of Fundamental Rights of the European Union - against the “promise” of art. 53 section 3 – in art. 9 we find a specific human right, which has its counterpart in the art. 12 of the European Convention on Human Rights, but radically different in the content of art. 12 of the ECHR. To | 251 make matters worse, the European Court of Human Rights - instead of oppose the “illegal competitor”, which contradicts the firmly established case law - refers to the art. 9 CFR EU, and in a sense even practically uses its indications (cf. judgment of the ECHR in the Christine Goodwin v. the United Kingdom, 11.07.2002, paragraphs 100-101. Same Case of L. v. the United Kingdom, judgment from 11.07.2002, paragraphs 80-81), opening up the right to marry and found a family on a request of postoperative transsexuals. Considering the greed of the EU institutions on the retail and the “modern” normalization of everything that can be done, we are not facing only the threat situation of summum ius, summa iniuria. The point is that the EU is increasingly bolder and more widely reaches for more and more new skills, virtually leading - the use of “authority” principles of primacy, priority, and the direct application of the rules of EU law in the country - to the threat of European human rights standards as a result of producing more and new EU standards under EU regulations and directives. Connecting the powers of the EU’s understanding of certain laws and principles of the free movement of persons, services, etc., gradually provides a “triumph of modernity” in the context of abortion, euthanasia, homosexual unions, etc. A stronger triumphs; traditional standards gives up. Unfortunately! I am not going to create any special structure of this paper to the problem of the fate of “the common constitutional traditions of the Member States”. Also, they have been recognized as a current source for the Community “fundamental rights”, next and equitably with the system of the ECHR. Similarly, they have been included in the same provisions of the EU Treaties, which were dedicated to the respect of the “fundamental rights”. They finally - as the ECHR - were guaranteed both in the preamble to the Charter of Fundamental Rights of the EU and its art. 52 paragraph. 4, which clearly - as if reassuring - determines that “In so far as this Charter recognises fundamental rights as they result from the constitutional traditions common to the Member States, those rights shall be interpreted in harmony with those traditions” (also art. 53 defines “Level of protection” guarantees human rights and fundamental freedoms as recognized ... by the constitutions of the Member States”. It is interesting that “tradition” in this context was abandoned. Intentionally or through oversight?). Similarly as the thing happened with human rights standards, also in this area risks are involved. Those risks are arising from the interpretation of the Praesidium of the Convention, from explanations accompanying the CPP EU and unbridled EU legislation, reaching for the new areas, which virtually does not respect the common constitutional traditions of the Member States and their national identity. Created in the Constitution for Europe “Unity in diversity” more and more is being transformed into regulated and required uniformity, that does not fit to one, but how diverse heritage of European identity (Jasudowicz, 2008, p. 13 et seq.). I do not deny it: I cannot enter into the group of “Euro-enthusiasts” and I remain to some degree “Euro-sceptic”, recognizing in the processes and results of the EU not only the “pros”, but also “shadows”, threatening to individual European countries, especially medium and small, as well as for us, the Europeans themselves. 4. In search of historical roots of contemporary European identity Against the background of noticeable scarcity of references to historical roots in the Community Treaties and EU Treaties, it is worth noting that in the preamble part I of the Final Act of the CSCE, immediately preceding the Declaration of principles guiding relations between participating Member, those state indicate that they work “aware of their common history and recognizing that the existence of common elements of their traditions and values ​​can assist them in the development of their relations (...)” (Conference on Security, 1975, p.77, section 4 of the preamble). As it can be seen, all - except Albania - the then European countries (including the U.S. and Canada) appreciate the importance of the cooperation of these “common elements to their traditions and 252 | values,” which Member States of the Communities / European Union did not want and do not want to show. How eloquent in this respect are the wording of the preamble to the Statute of the Council of Europe of 5th May 1949, which confirmed “their attachment to spiritual and moral values ​​which are the common heritage of their peoples and the true source of individual freedom, political liberty and the rule of law - the principles, which form the basis of all genuine democracy” (Paragraph 2 of the Preamble of the Statute of the Council of Europe, 1976, pp. 137 et seq.). This “constitutional” assumption for the Council of Europe’s system fully refers, of course, to the European Convention on Human Rights, the Treaty Council described as the “pearl in the crown of the Council of Europe.” It is worth noting that the Convention also absorbed somewhat ratio of the preamble to the Universal Declaration of Human Rights, which, in its preamble, refers several times and which axiology takes, all, for its part does not repeat. It can be found, along with the category of human dignity, in a later Strasburg jurisdiction. European countries, originally parties to the European Convention on Human Rights have developed it and contain it as “the first steps for the collective enforcement of certain of the rights stated in the Universal Declaration”, “the governments of European countries which are like-minded and have a common heritage of political traditions, ideals, freedom and the rule of law” (paragraph 5 of the preamble to the European Convention on Human Rights). Thus, the reference to the spiritual and moral heritage of European countries is supplemented by reference to the common political and legal traditions, the underlying causes of modern European democracy. I dare say that this “establishment” in a rich and versatile European heritage “weighs” for the European integration process and lies at the root of the Community and European activities and standardization. This historical “coin inventory”, which each Member State of the Communities / European Union entered to integration experience and determined this “experience”, just as the “European” so important for the Member States themselves and created integration structures. Therefore, this heritage is worth recognizing, reconstructing its “guiding lines”, discover the science flowing from it. When we face the problem of determining and understanding European identity, not this declared or simply imposed by the EU institutions, but the entrenched, antiquated and conscious through the long history, it is impossible not to notice in the area of polish science the importance scientific conference under the theme “Identity of the Old Continent and the future of the European project”: papers presented there, discussions and “Introduction”, deftly prepared by D. Pietrzyk-Reeves (Pietrzyk-Reeves, 2007). Against the background of A. Gwiazdy (Gwiazda, 2007, pp. 17 et seq.), the editor-author speculates about “Introduction” of the gold reflections: “the identity of Europe, of which we usually ask in times of crisis, which should be primarily search for in the historical consciousness beginning with the earliest times of prehistory, and thus from Greek mythology, but also Slavic, Celtic and Germanic” (Gwiazda, 2007, p 11). Immediately - turn on the background of G. Górny (Górny, 2007, pp. 123 et seq.) - adds: “However, a dispute over whether a European identity owes more to Christianity, or rather enlightenment is important, (...) because concerns the question of whether European civilization was shaped by the Bible or Encyclopedia. This dispute can be considered as a still ongoing struggle for the soul of Europe, and by analyzing the present spiritual crisis of the Old Continent to wonder if a remedy could be to restore the Christian foundation” (Gwiazda, 2007, p 11). This fundamental issue has also dealt a significant part of the discussion meeting at the conference. It was no coincidence that E. Ośniecka-Tamecka recalled the words of great Catholic and fathers of integration, Robert Schuman and Konrad Adenauer “Europe is our necessity” (OśnieckaTamecka, 2007, pp. 253 et seq.). Against the background of the EU’s motto “Unity in diversity”, she | 253 added: “Underlining the integrating function of the identity of connecting multiple, often conflicting elements must lead to the recognition of the coexistence of multiple entities within the whole, which is Europe. It embodies the unity of a higher degree. It changes distinction into the identity about which we can say: Nova et Vetera” (Ośniecka-Tamecka, 2007, p 255). Looking critically at centralizing standardization track the implementation of the “European project”, Roger Scruton puts the prescription: “Surely it is time that we looked at with fresh eyes at our continent, as well as a civilization, we can answer the question, what really unites us, what is the best way to translate what we have in common on the political alliance” (Ośniecka-Tamecka, 2007, p. 264). On the other hand, Roberto de Mattei, sharply criticized the skipping in the Christian roots in the European language asks painfully, “But, rejecting the reference to Christian roots, there did not we reject the history of Europe? In fact, the Christian heritage of Europe translates directly into our historical heritage. This is equivalent to our and anthropological heritage. (...) From this point of view, our Christian roots creates the foundation of European culture and reflects the spirit of the popular idea of Europe. What is, therefore, the Spirit of Europe? Now, the Spirit of Europe comes out of the very historical roots, because if Europe does not have historical roots, what other has? What is the Spirit of Europe? Each plant needs roots to grow, just as a man, just as Europe grows from some roots. European identity is rooted in the past, in the historical heritage, in the cultural heritage, the heritage of shared values, which then translated into the language of the institutions and rights create a civilization that has survived thousands of years and is still flourishing” (Ośniecka-Tamecka, 2007, p. 270; Kuklinski, 2007, p. 301: said: “European civilization is built on Christian values”, “Europe is built on Christian civilization”). The history and the heritage can be forgotten and disregarded. They are stuck in the Europeans subconscious, and about its cultivation all European countries should ensure. When integrating “Europe” gain speed to “European project”, without considering its roots, encounters “surprises” in the form of: blocking the ratification procedure of the Constitutional Treaty. In its essence through the history of Christianity, Europe cannot just turn away from its Christian roots, but simply choose for almost the main enemy Catholicism. Uprooted, vulnerable - cannot resist the storm of history. It is therefore necessary to read carefully titles-questions of G. Górny: “The Bible or encyclopedia?” and “Evangelism and secularism?” (Górny, 2007, pp. 130-133 and 133-139). It is worth – while wondering about acceptable ways of implementation of the “European project” - reading thoughts of L. Morawski (Morawski, 2012, pp. 40 et seq.). 5. Final Remarks On the ruins of the Roman Empire, in the pain of migrations and conquering march of the Arabs, in the struggles and battles against each other, the Christian Europe was born, for which the seal has become the coronation of Charlemagne in 843, the Christianization of Europe made any further progress - to the east and the north, emerging European Civitas Christian, with the highlighted role of the Pope of the church and the state, but mainly to the dominant influence of Christianity on culture and architecture, but also the economy of Europe. Benedictine’s “Ora et labora” for centuries has been the message for Europe. On the basis of Roman law and its creative reception in European countries, in the process of a birth, development and maturation of ius gentium within the community of Christian nations in the historical process of becoming a human rights standards in medieval Europe, among others, and in a sense even then primarily through following privileges and immunities of the nobility, the legal concept was being created not only in European countries but also throughout the whole Christian Europe. Religious wars have been a painful and cruel experiences in the history of Europe; however, 254 | these wars did not prevent the European co-operation, in spite of divisions within Christianity. When - after the experience of the French Revolution and the Napoleonic Wars - the European powers took Declaration on the elimination of the black slave trade, explained that they do this, because such trade “by fair and enlightened people of all times was considered to be contrary to the principles of humanity and universal morality” (The text of the Declaration, 1954, p. 19). Moreover, the same Final Act of the Congress of Vienna in 1815 preceded, in accordance with their traditions, invocatio Dei “In the name of the Holy and Undivided Trinity” (text of the Declaration, 1954, pp. 20, cf invocatio Dei in the Convention on the Straits of March 30th 1856 “In the name of Almighty God” on page 58). The Lords of our three occupants in the Act of the Holy Alliance, 26th September 1815, took as the starting point “a deep conviction of the need to support their further relations on the sublime truths which we are taught by the religion of the eternal God the Savior” (text of the Declaration, 1954, pp. 26 et seq.). In the texts of the treaties concluded with non-Christian countries were inscribed specific guarantees for the protection of Christians (cf. eg art.VIII of the Peace, Friendship and Trade treaty between China, the United Kingdom from June 26th, 1858, which says: “The Christian religion, professed by Protestants and Roman Catholics, inculcates the practice of virtue, and teaches man to do so, as he would like to it was done to him. Educators and believers will therefore be equally entitled to protection by the Chinese authorities and none of them conveying the quietly to their vocation and not offending against the law will not be subject to harassment or restrictions”ibid, p. 76. See also: Article 9 of the Treaty of peace and friendship between Austria, France, the United Kingdom of Great Britain and Ireland, Prussia, Russia, Sardinia and Turkey from March 30th, 1856 ) (text of the Declaration, 1954, p. 52). Note, that in the modern evolution of the international protection of human rights in all universal and regional documents to the catalogue of the international protected rights explicitly included freedom of thought, conscience, religion and belief (See: Article 18 of the Universal Declaration of Human Rights, Article 18 of the International Covenant on Civil and Political Rights, Article 9 of the European Convention on Human Rights, Article 12 of the American Convention on Human Rights the text of all [in:] Human Rights. (1993), pp. 15 et seq., 41 et seq., 173 et seq. and 383 et seq.). In the Citizens’ Pact has been given to this law no annulled binding nature, so it is not the subject to exceptions or limitations in emergency situations, including armed conflict (see paragraph 2 of Article 4 of the Covenant. See Article 27 paragraph 2 of the American Convention). What’s more, in the Decalogue of the Principles of the Final Act of the CSCE the guarantee of this right - and only that! - inscribed in the same title of principles, giving it a more ruthless character (“VII. Respect for human rights and fundamental freedoms, including the freedom of thought, conscience, religion and belief” - Polish version [w:] Human Rights, 1993, p. 279). It should be add, finally, that the European Court of Human Rights, stressing the importance of this right for everyone: believers and non-believers, emphasizes that it is the right and freedom for centuries in Europe selflessly fought, what is more - emphasizing that religion is a vital factor that clarifies itself the identity of the man, his view of the world and sets the sort his way through life (cf. eg the judgments of the ECtHR on Kokkinakis against Greece on 25th May 1993, paragraph 31, and Otto-Preminger-Institute v. Austria of 20th September 1994, paragraph 49). It is - both at the individual scale, the nations scale as well as the whole ols continent fundamental value, which has to be watched carefully and meticulously which should be protected, not dismissive forget about or attack blasphemously and hatred to fight it. That’s not right, especially since this is the sort of “suicidal” action, directed against our own roots and values. We cannot allow the final “eradication” of Europe! | 255 Referenes Conference on Security and Co-operation in Europe. Final Act. (1975). Helsinki. Europejska Konwencja Praw Człowieka. Tekst [in:] Prawa człowieka. Dokumenty..., p.175 et seq. Galster J. (1995). [in:] J. Galster, C. Mik. Podstawy europejskiego prawa wspólnotowego. Zarys wykładu, Toruń. Górny G. (2007). Europa, Chrześcijaństwo, Oświecenie, [in:] Tożsamość Starego Kontynentu i przyszłość projektu europejskiego, Warszawa. Gronowska B. (2010). Prawa człowieka jako zasady ogólne prawa wspólnotowego, [in:] B. Gronowska, T. Jasudowicz, M. Balcerzak , M. Lubiszewski, R. Mizerski, Prawa człowieka i ich ochrona, ed. II. Toruń. Gwiazda A. (2007). Europa – historia symbolu, [in:] Tożsamość Starego Kontynentu i przyszłość projektu europejskiego, Warszawa. Gwiazda A. (2007). Konferencja „Tożsamość Starego Kontynentu i przyszłość projektu europejskiego”. Warszawa, 21 marca 2007 roku. Wystąpienie wprowadzające oraz zapis dyskusji panelowej, Warszawa. Jasudowicz T. (2008). Poszanowanie tożsamości narodowej w procesie integracji europejskiej, [w:] Koncepcje integracji w Europie w XX i XXI wieku. Prawo i stosunki międzynarodowe, edited by. D. Bunikowskiego i R. Musiałkiewicza, Toruń. Kukliński A. (2007). Konferencja „Tożsamość Starego Kontynentu i przyszłość projektu europejskiego”. Warszawa, 21 marca 2007 roku. Wystąpienie wprowadzające oraz zapis dyskusji panelowej, Warszawa. La Constitution Europeenne. (2005). Presentee par O.Duhamel,Editions Dalloz, p. XXV. Morawski L (2012). „Zjednoczeni w różnorodności” – dwie wizje integracji europejskiej, [in:] Konferencja „Unia Europejska: zjednoczeni w różnorodności:” C. Mika (ed.), Warszawa. Ośniecka-Tamecka E,. (2007). Konferencja „Tożsamość Starego Kontynentu i przyszłość projektu europejskiego”. Warszawa, 21 marca 2007 roku. Wystąpienie wprowadzające oraz zapis dyskusji panelowej, Warszawa. Pietrzyk-Reeves D. (ed.). (2007). Tożsamość Starego Kontynentu i przyszłość projektu europejskiego, Warszawa. Prawa człowieka. Dokumenty międzynarodowe. (1993). elab. B. Gronowska, T. Jasudowicz, C. Mik, Toruń. Statut Rady Europy. (1976). Test polski [in:] Wybór źródeł do nauki prawa międzynarodowego, elab. K. Kocot, K. Wolfke, wyd. IV, Wrocław-Warszawa. Tekst Deklaracji z 8 lutego 1815 r. (1954). [in:] Prawo międzynarodowe i historia dyplomatyczna. Wybór dokumentów, wstęp i oprac. L. Gelberga, t. I, Warszawa p.19. Traktat ustanawiający Wspólnotę Europejską. (2000). Tekst [in:] Traktaty europejskie, oprac. E. Wojtaszek-Mik, C. Mik, Zakamycze. Traktaty europejskie. (2003). introduction A. Łazowski, Bydgoszcz-Warszawa. Unia Europejska. Wspólnota Europejska. Zbiór dokumentów. (2005). introduction E. Wojtaszek-Mik, C. Mik, Zakamycze. 256 | Bronisław Sitek University of Warmia and Mazury in Olsztyn [email protected] The human right to respect the religious identity in the light of the media and political regulation Abstract The human rights undergo deep transformations related with the metamorphoses in the existing system of values, originated from the European culture based on three pillars: Greek philosophy, Roman law and Christianity. The idea of the United Europe was also based on the same values, the result of that conception is the contemporary European Union. The domination of economic thought resulted in economization the life of individual persons and the society. Consequently, the idea and the content of the human rights are adapted to the needs of economy, mainly stimulated by the profit conception. The significant instrument of this new process are media which are financed by the big business. Media create and dictate the needs and stereotypes for a human being. The politicians who are depended on economic lobbing and acting under the press of media play the same role as media. Therefore, this is necessary to carry out the deliberation towards the changes in thecontent of the human rights. Keywords: economy, the content of human rights, lobbing, economization of human rights, evaluation of the content of human rights. 1. The end of anthropocentrism of the western culture The individual person was in the centre of interest in the culture of west, based mainly on the Latin, Roman and Christian cultures and also on Greek and Jewish ones. Hence, it was defined as the anthropocentric culture for ages. Anthropocentrism was visible in science, art and culture. The philosophical thought shaped in this way had its influence on the legal culture. The text by late classical Roman lawyer Hermoganianusbecame the fundamental idea for that culture. Hermog. l. 1iurisepitomarum (D. 1.5.2): Cum igiturhominumcausaomneiusconstitutum sit, primo de personarumstatu ac post de ceteris, ordinemedictiperpetuisecuti et his proximosatqueconiunctosapplicantestitulosut res patitur, dicemus. There is the idea formulated in the extract given above, according to which every law is created thinking about the person (Sitek, 1995,pp.135-148). The man is in the centre, hence, even the systematization of Roman law, given by Gaius, included the reference to the nature of man at the beginning. According to this order the first are the human matters, and after that the legal matters, obligations and the cases in law courts. The man is in ontologically central position, he is also spiritual because of his body and psyche, he creates unlimited researching areas. The researchers in different periods, carried out their researches either of the spiritual sphere or the body sphere. From the late antiquity till the end of the medievalperiod the people’s soul and salvation. This direction of the interest of a person was reflected in art, literature, the style of life, politics, legislation and philosophy. During that period the big theological-philosophical works were created and the canonical-Roman law was written. The big cathedrals were built. The numerous wars were made for the souls salvation, quite often the fire and the sward were the instruments of reformation. | 257 The sphere of corporeality of a person and the existence in society started to be in the centre of attention from the beginning of the period of Renaissance. There was expressed by the art, the development of medical and natural sciences, philosophy, the development of the science of the state, the belief in mind and physical strength of the man. In this way, the significant element of the paintings from that period was the person and his natural existence, e.g. Mona Lisa by Leonardo Da Vinci. The conception of authority (social agreement) its origin and the despotic ruleschanged (N. Machiavelli, Priest) (Christie, 1970, p.10 and following). The belief in the man power caused the discoveries of new lands, development of mathematics, chemistry, physics, astronomy and medicine. The man discovered the new possibilities of self-realization. The Renaissance philosophical thought led to wide ranging transformations in the previous conception of man and brought the creation of the theory of human rights. The thinkers such as D. Hobbes, J. Lock and J.J. Rousseau and their opinions should be mentioned in particular way. The theories predication quite quickly found their reflection in the normative acts of that period, particularly in the Declaration of Independence of the United States (1776), the Constitution of the United States (1787), the Declaration of Human and Citizen Rights (1789) and Polish Constitution of 3rd May (1791). (Hołda, 2008,pp.15-22). The radical resignation of the fascination of man started in the period of big industrialization and polarisation of wealth and poverty. On the one hand,big industry allowed the small social groups to become rich quickly, but on the other hand huge masses of poor people were born, who worked out the big capital but they did not participate in it. That situation had to cause numerous social unrestsand in the end the October revolution. However, at the beginning the situation of polarisation was reflected in different philosophical doctrines, particularly in the Marxists Communistic Party Manifest from 1848, the catholic social science e.g. the encyclic by Leon XIII Rerumnovarum from 1891. The philosophical systems, lying on the basis of the human rights, did not stop to create the philosophy and the doctrines which justify applying violence, particularly in building the authority power directed against the man. There was even the paradoxical situation, namely, to fight for the rights of the persons from a particular social group, the physical extermination of whole societies was carried out. Such the actions were undertaken during the French and October revolutions. The creators of those events referred to the respect of human rights, freedom, brotherhood and equality. At the end of the 19th century and at the beginning of the 20th century the totalitarian systems, fascism and communism were created in Europe. Both the systems were based on the similar message, namely on the need of protection the interest only of the chosen group of people. Fascism, according to the ideology of national socialism, became the basis of building the country only for the citizens belonging to the same nation, so Germany for German people or Italy for Italian people. The others became the category of sub people (Kuryłowicz, 2008, pp.40-43). Then the communism tended to protect the interests of one social class, namely, the working class, the definition of which was not precisely clear. The other classes, particularly gentry, the middle class and the clergy, were deprived their rights, sometimes the right to life. Nowadays the human rights constitute one of the basic, but not the only one, indicators of democratic country, the country of law and progress. The other important indicators are: ecology, economy and secularity of the country. This caused the redefinition of the country, and as the consequence the society and even the legal system. We can say about the ecologization, economization or secularization dependently on the interests of the given social group. Everything proves that it does not exist the uniformal vision of social organization and transformations and the conception of human being. The person became only the one of many elements of politics, the object, the illness unit, the statistical number, but not the most important at all. 258 | Politicians, journalists and the social groups who mostly create the opinionsuse the language whichis soaked with specific new words, complicated phraseology, notions which apriori refer to new meanings. The new language plays bigger and bigger role in shaping the direction of changes in our previous culture, it creates the thinking stereotypes and the changes in the behaviour of ordinary people. The new notions are: progress, innovativeness, innovative, profit, high-availability, single, and in the end the human rights. Their opposites are: conservatism, tradition, traditional, medieval, ignorance, non- progressive, breaking human rights. All of these notions have only the intuitive or emotional meanings. The ordinary person does not know the content and the meaning of these words, but he follows the specific fashion. These notions are used by the ‘stars’ created by media and politics and it becomes the indicator how to use them to give simple evaluations within the categories of good and bad, justice and injustice, acceptation and rejection. These are the specific spells how to classify the people, how to distinct them or simply eliminate or marginalise the whole groups from the social life. From that perspective the human rights became only the signal, mostly associated by the ordinary viewers with the subject power, beyond the duties. We can even say about the abuse in instrumentalization the human rights, which more and more often become the instrument of discrimination one of the groups by the other one (Longchamps De Berier 2004,10). The example of this is the discredit of religiousness, particularly Catholicism. Religion became the symbol of conservatism, obscurantism and non-scientific attitude towards the reality. Additionally, the religious system of values is in conflict with the new economic, social and particularly political trends. A person does not exist here, and particularly his freedom to possess beliefs. This work is based on the examples taken from the press reports in comparison to specific human rights. 2. Respecting the reputation In the ancient world, particularly in the Ancient Rome, reputation had its great importance at legal actions or when applying for the public positions. The loss of reputation could be caused by the behaviour against the accepted moral standards (mosmaiorum), or by false accusation (Jurewicz,2011,p.202). The reputation in Rome meant that each person had the right to the respect and protection of the reputation which was linked with dignity. Such the right was guaranteed in the preamble to the UniversalDeclaration of Human Rights from 1948, where there is stated: Whereas recognition of the inherent dignity and of the equal and inalienable rights of all members of the human family is the foundation of freedom, justice and peace in the world. Whereas in art.7 there is implemented the prohibition of any discrimination of the other person because of any reason. Then in art.1 of the Charter of Fundamental Rights of the European Union there is stated that the human dignity is inviolable. Dignity is also guaranteed in civil codes. In art.23 of Polish Civil Code thelegislator decided that the personal goods of the person including dignity are protected by the civil code. Reputation can be violated by inconsiderate prejudging the actions or moral blames of the other person. The sign of violating the reputation is also gossiping and scandal, revealing the disadvantages and mistakes of the other person to people who do not know about it. Such the behaviour occurs mostly without any reason.In the end the reputation is violated by the slanderer, the person whose opinions are not the truth and harm the reputation of other people and give the opportunity to give false judgement about them. The persons who violate the reputation can be prosecuted on the basis of the penal code. Art.212§1.p.c. If any person accuses the other person, the group of people, the institution, the legal person or the organisational unit without the legal status about such the proceeding or characteristics which can humiliate the person publically or expose the person to the loss of trust | 259 needed for the given position, profession or the kind of the activity, this person is subject to the fine penalty or restriction of liberty. In the media and in the opinions of politicians we can often observe the attack on the reputation and as a consequence the dignity of the other person. Such the attacks are often linked with the word-conception manipulation. In one of the interviews M.Środa wrote about the PIS paganism?(Środa,2012). This is the paradoxical statement, with ideological connotation, which was directed against the practising Catholics. Thus for almost two thousand years paganism was identified with the religions not belonging to the Christian religion. In this way M.Środa in her opinion gave the redefinition of the notion paganism. Atheism or liberalism became the legal religion, whereas the Catholicism is negative which means pagan. The attempt to change the existing conception of social behaviour through the change of the previous stereotypes is visible in the statement by Anna Grodzka, who claimed that her activities tend to assure the procreation possibilities for young people. There is nothing known about the meritoriousknowledge of Ms Deputy to undertake the actions within this area. It is not clear what procreation does she say about? Natural or artificially supported. However, the paradox of her statement is the fact, that making the change of sex she negates the natural procreation possibilities as a woman or as a man.What is more, she is a member of the party which promotes abortion and the free access to contraceptives. That statement, full of inner inconsistency in logic thinking is typical for people leading the policy of excerpt statements, in no way interrelated. Such the statements are exclusively based on the situational game and directed towards achieving the political or social effect, however, only on the level of feeling, not the real solution of the problem (Środa,2013). According the art.23c.c. the right to fight for the reputation possesses not only the individual person but also the institution. On February 2013 the American journalist Tim Parks published the article in Newsweek, he compared the pontificate of Pope Benedict’s XVIand John Paul II. The repercussion of that article found its reflection in all the world media, particularly on the Internet (American “Newsweek”2013). According to the American publicist the pontificate of the pope who came from Poland was harmful to the Church. Such the assessment is seemingly innocent, however limited only to the moment of leaving the pope duties and dying. In this case, according to the American publicist, Benedict XVI is a very good example, whereas Pope John Paul II a very bad one. John Paul II, according to the journalist, spread the old fashioned behaviour and conservative opinions. He did not reveal the scandals associated with the Vatican bank and did not fight with paedophiles in the Church. Such the assessment of John Paul II, who is still respected and popular all over the world, has to rise astonishment, and also the question about the responsibility for the journalist statement. It constitutes not only disturbing the reputation of a person who is dead, who cannot defend, but it is also against the reputation of Church, against the religious feelings of millions of believing Christians in the world. The similar statement in relation to the clergymen of other beliefs, particularly towards the Islam or Judaism, would be impossible and it would be strongly criticized and the journalist himself would meet the ostracism. The lack of tolerance and respect to the worship together with the manipulation of information, was also visible in the media attack on business connected with Catholicism, but supporting the charity and priestly activities. The example is Brian Souter, the owner and creator of the bus line called Polski Bus. There is the article “Fighting catholic” in GazetaPrawna from 20th February 2013. When first seen the article seems to be impartial. However, the arrangement of the material contained there is typical sociotechnical. At the beginning of the article there is the Scottish businessman presented as the dishonest person, involved in the corruption on other drivers from the competitive firms. There is specified that there were some accusations during the investiga- 260 | tion, however, without the information if they were proved by the law court. Further in the article, as a sequence of the events from the first part, there are revealed the actions supporting the Christianity and the charity activities. However, it is difficult to link logically and explain writing in one article about two completely different information. Therefore, it does not seem, that the composition of two accusations of dishonest activist and the actions supporting the Catholics, was accidental (Twórca PolskiegoBusa,2013). 3. Presumption of innocence and baseless accusation There are the normative regulations associated with the presumption of innocence and the right to defence in numerous conventions of the international law. In art.11 of the Universal Declaration of Human Rights there is stated that every person has the right to defend and if this person is not sentenced by the legal judgement, he enjoys the presumption of innocence. Similar normative regulations are also in the Pact of Personal and Political Rights and in art.48 of Charter of Fundamental Rights of the European Union. The similar guaranties are also in the constitutions, e.g. in art.42item3of Constitution of Polish Republic, or in the penal codes of individual countries, e.g. in art.5§1p.c.Polish p.c. Although there is the legal international guarantee of innocence, from time to time, some illegal or absurd accusations against religion, particularly catholic, appear in media. The example is the information created by the organisation called Survivors Network of those Abused by Priests (SNAP). This information is multiplicated in different media and it says about accusation the Pope Benedict XVI in the law court or the international tribunal for not offering the help for the victims, the children and adults, and for the lack of the activities preventing the sexual abuse by the representatives of the catholic clergymen. Mentors of those accusations suggested to bring the case to the International Penal Tribunal (Wiadomości onet.pl). From the legal point of view, the motivation of the members of SNAP organisation, repeated very often without criticism, , has to raise many controversies. This is the kind of concluding defined as reducio ad absurdum, which means the kind of motivation leading to nonsensical conclusions.From the legal point of view, what is the way to prove the Pope personal responsibility for sexual abusing particular clergymen, belonging to the administrative units, legally constituting the separate legal subjects? This is possible to imagine the pope responsibility only in the situation in which the pope would organise the system of abusing, or he would give instructions, or would create the ideology which would involve abusing children or adults. Therefore, it could be supposed that the SNAP members are not interested in the real judgement of the pope because of the lack of any legal or factual bases, but they are only interested in the pope dehonestation, the institution which he runs, and in the end they are interested in the media publicity for one of the groups. The evident instrumentalization of human rights and showing the ‘wolf’ putting on the evangelic clothes of the ‘sheep’ has its purpose to turn away the attention of the audience and readers not to see the real social problems of 20th and 21st centuries. The human rights became the significant element in building the media power and some other groups connected with them. Nowadays the media create the heroes devastating the former idols and saints. Several years ago that was impossible to write the book Non saint pope by PiotrSzmulewicz. The author of this publication attempts to prove the responsibility of John Paul II for paedophilia, fiddling and contacts the Church with mafia. The accusation itself must be very surprising and it must raise distaste from the point of view of the art.23 and 24c.c. and 212p.c. Each dead person should have the reputation guaranteed. We say good things or nothing about the dead people. The people close to the dead person, related with him and also having the similar system of values, beliefs or affiliation to the same social group, have the right to protect the reputation of the dead. | 261 The publication by P. Szmulewicz substantially breaks the norms of international right of respecting the religious feelings (art.18 of the Universal Declaration of Human Rights from 1948). The statements offend millions of people, destroy their system of values and the ethos of the Catholic Poland. The freedom of speech and expressing the own opinions have the clear borders, the respect of other people including the believing Christians. The so called critics of the Christian religion, particularly the Catholicism, but in reality the slanderers, do not criticise alive or dead leaders of Islam or Judaism. The reasons can be find in the threat of the consequences of such the activities (Wyrawal,2013). 4. Freedom of consciousness, religion and scientific researches and the discrimination because of the religion or opinions Inart.18 of UniversalDeclaration of Human Rights there are protected the freedom of thought, consciousness and religion. In the International Pact of Citizen and Political Rightsin art.18 there is decided that every person has the right to freedom of thought, consciousness and religion. The similar statement is in art.10 of the Charter of Fundamental Human Rights of EU. The religious freedom is also guaranteed by the Milan Edict from 313, it is built on the basis of tolerance of opinions, including the religious ones, of other people. The prohibition of discrimination because of the religious reasons was defined in art.2 of the Universal Declaration of Human Rights and in art.24 of the International Pact of Citizen and Political Rights and also in art.21.issue1 of the Charter of Fundamental Rights of EU. Freedom of consciousness, belief and religion assumes the freedom of choice of the religion and ideology. Possessing and expressing the opinions publically, excluding fascism, should not constitute the basis for any forms of discrimination, in particular by the public administration organs. In many European countries the Christian religion, particularly Catholicism, is treated similarly as the prohibited ideologies. The marriage couple Eunice(62) and Owen Johns (65) from Oakwood (Great Britain), started the procedure of the child adoption. During the interview carried on with the candidate for parents, there was stated that they do not accept the “homosexual life style” and they do not intend to bring up the child in this way. As a consequence, the case was given to the law court, which should decide the issue of the conflict of values.On the one hand there is the religion with its rules, and on the other hand there is the sexual orientation. According to the British law court the “priority should have” the law which protects against the discrimination because of the sexual orientation before the non -discrimination law against the religious beliefs. Such the decision arose the astonishment and the feeling of discrimination of the religious marriage couples. They stated that everything we wanted to offer was giving the loving home which children need. But because we are Christians who agree with the Christian sexual ethic, we cannot be the foster family. They added then we feel excluded, there is not the space for us in the society (British Law court,2012). The freedom of scientific researches is commonly accepted. In art.27issue1of the Universal Declaration of Human Rights there is stated that each person is acknowledged to participate in the community cultural life and to participate in the scientific progress, so in carrying out the scientific researches as well. The similar inscription is in art.15 of the International Pact of Economic, Social and Cultural rights. Freedom of scientific researches is also guaranteed by numerous other international and national legal acts. Despite the declarations of freedom of the scientific researches, more and more often we can face the discrimination because of the belief in Christian religion or because of quoting the official Church documents in the scientific researches, e.g. the popes works or the church council 262 | constitutions. The example can be the refusal of the request to inscribe the widely recognised in the world the scientific UWM journal Law Review to the Scopus base.In the refusal to accept there was stated: This is a promising journal with a distinctive often Catholic Influenced perspective. In the journal there were also the papers associated with Islam and Judaism. To make the matter clear, there should be added that this is the legal journal with legal comparative subjects. 5. Conclusion Tolerance is the value which is difficult to define and respect in case of particular situations. The European Union was based on the Latin culture, the Greek philosophy, the Roman law, Christianity and now it is promoting the deep ideological transformation. The cultural anthropocentrism is gradually replaced by the cultural polycentrism. The beginnings of these transformations are in French revolution, according to which to build the new social, economic and political system, this is necessary to damage the past (ancient regime). Paradoxically, the revolutionary symbols as freedom, equality and brotherhood remain only as a wish. In practice there is the marginalization or even partly the extermination of the two social groups. The blade of revolution was directed mainly against the Christianity, particularly Catholicism. The phenomenon of religious intolerance started to consolidate, and at the end of the 20th century they became dominant. The media common practice is to blame the catholic Church of every kind of abuses within sexuality (mainly paedophilia), finance, illegal intervention in politics and others. Public declaration of the belief is accused of old-fashionedness, ignorance, whereas the works of scientists are treated as they do not have the scientific value. Intolerance towards the Catholics appears in the law courts, where respecting the Christian system of values, people cannot adopt the children. However, such the accusations should be seen through the prism of statistical data and the facts undoubtedly stated. Admittedly the cases of paedophilia occurred in church, this is the undisputed fact. However, the clergymen is not the group with mostly paedophiles. The depreciation only the representatives of one professional groups maybe arises the acceptance for the paedophiles activities within the other professions.Mentioning the frequent financial abuses in church does not have any confirmation in the law courts sentences. Similarly there should be noticed the pope responsibility for the deeds of individual clergymen. The leader should not be blamed for their workers activities. We cannot accuse the Main Chief of the Police that some of the policemen occasionally take the material benefit. There is the logical mistake which finds its acknowledgement in the regulations of the domestic and international law. Tolerance, and the religion as well, were§ given to us and defined in different international and domestic legal acts. At the same time the tolerance was given to us not only theoretically to deliberate it, but as something which we should practice every day. The diversity of the opinions should not only be practiced within the homogenous ideological group, but also in the multicultural society, which the European Union and the whole Europe gradually become. References American “Newsweek”: Joseph Ratzinger jednym gestem zrobił więcej dla Kościoła niż Karol Wojtyła (2013) [online] Available at: <http://wiadomosci.wp.pl/kat,1356,title,AmerykanskiNewsweek-Joseph-Ratzinger-jednym-gestem-zrobil-wiecej-dla-Kosciola-niz-KarolWojtyla,wid,15348485,wiadomosc.html?ticaid=11018f&_ticrsn=3> [Accessed 27 May 2013]. British law court: orientacja ważniejsza od religii. (2012). [online] Available at:<http://wiadomosci.onet.pl/swiat/brytyjski-sad-orientacja-wazniejsza-od-religii,1,4196858,wiadomosc. html>[Accessed 27 May 2013]. | 263 Christie, R., Geis, F. L., & Berger, D. (1970). Studies in machiavellianism (p.106). New York: Academic Press. Hołda, J. (2008). Prawa człowieka: the outline of lecture. Wolters Kluwer Polska. Jurewicz, A. (2011). O morlaności i etyce, In: A. Jurewicz (red.), Rzymkie prawo publiczne. Chosen issues, Olsztyn: UWM, pp.199-254. Kuryłowicz, M. (2008). Symbol Prawa ludzkiego. Szkice o prawie rzymskim w utworach Louisa Aragona i Mieczysława Jastruna, Lublin: PublishersUMCS. Longchamps De Bérier, F. (2004). Nadużycie prawa w świetle rzymskiego prawa prywatnego, Wrocław: Wydawnictwo UWr. Sitek, B. (1995). Elemente des Anthropozentrismus im römischen Recht. Reflexion über Text von Ulpianus 1 Inst. D. 1, 1, 1, 3, In:I diritti fondamentali dell’uomo e dell’ambiente nei cambiamenti dell’Europa centro-orientale, Varsavia: ATK,pp.135-148, Środa, M. (interview). (2013). Annie Grodzkiej puściły nerwy, Super Express. [online] Available at: <http://wiadomosci.onet.pl/kraj/sroda-annie-grodzkiej-puscilynerwy,1,5411664,wiadomosc.html> [Accessed 27 May 2013]. Twórca Polskiego Busa Brian Souter: „Wojujący“ katolik, który dał Polakom przewozy autobusami „za złotówkę“. (2013). [online] Available at: <http://twarzebiznesu.pl/artykuly/680270,tworca_polskiegobusa_brian _souter_wojujacy_katolik_ktory_dal_polakom_przewozy_autobusami_za_zlotowke. html>[Accessed 27 May 2013]. Wiadomości onet.pl.(2013). [online] Available at: http://wiadomosci.onet.pl/wideo/benedyktxvi-stanie-przed-sadem,116381,w.html>[Accessed 27 May 2013]. Wiadomości. (2013). Anna Grodzka: płeć mamy w głowie, w duszy, w sercu. [online] Available at:<http://wiadomosci.wp.pl/kat,1342,title,Anna-Grodzka-plec-mamy-w-glowie-w-duszy-wsercu,wid,15305454,wiadomosc.html>[Accessed 27 May 2013]. Wyrawal, M. (2013). Wywiad z Piotr Szumilewicz: przeproście za Jana Pawła II [online] Available at: <http://kultura.onet.pl/ksiazki/rozmowy/piotr-szumlewicz-przeproscie-za-jana-pawla-ii,1,5443267,artykul.html.[Accessed 27 May 2013]. 264 | Jaime Bonet Navarro University of Valencia [email protected] The presence of religious elements in the national symbols of the European Union countries Abstract Nowadays, when the religious roots of Europe are denied and when there is usually hindered the presence of the religious symbols in public spaces, it is useful to know what extent the States that take part in the European Union maintain the religious elements in their own national symbols. This paper shows how much these religious elements are present in the flags, coats of arms, mottos and national anthems of such States. It have been analyzed the symbols or elements that clearly show its religious character as those ones that require an interpretation of its symbolism, or it is necessary to know its origins. So, it have been analyzed the elements that are directly related with religion as those which have a mythical or legendary origin, and, also, the ones which have an univocal religious meaning as those which are used both by the secular or religious power. This work has been make inside the Research Project “Derechos Humanos, Sociedades Multiculturales y Conflictos” (DER 2012-31771), granted by the Spanish Ministerio de Economía y Competitividad, as a part of the Spanish VI Plan Nacional de Investigación Científica, Desarrollo e Innovación Tecnológica, (Plan Nacional de I+D+i). Keywords: Religion, National symbols, European Union, Heraldry, Vexillology. 1. Introducion The purpose of this research is to know the extent of the presence of religion in an area that is often overlooked in the debate over religious symbols in the States of the European Union. This research wants to seek the presence of religious symbols or items with religious significance in the national symbols of those States. This research about national symbols is carried out in a time when in many sectors of current European society it is the doubt or the refuse to the religious roots of that society, or there are actions obstructing the display of such religious symbols in public spaces. However, the citizens in that societies which are represent by national symbols with religious elements feel the identification with then despite of the religious presence in the national symbols, and anybody disputes that may be a secular state with religious elements among its national symbols. In a general sense, symbols represent visibly a thought or an idea that they are associated with a convention socially accepted. They are a way to externalize an idea, and they are a sign or expression with a conventional meaning. So, symbols are a means of expression of mythic consciousness, as the concepts are a means of expression of theoretical awareness (GARCÍA PELAYO, 1991, p. 1005). And so, as a kind of symbols, the national symbols –the flag, the coat of arms, the motto and the anthem– are those who take a country to represent their values, goals, history or wealth through, and they identifies and distinguishes itself from other States. National symbol as flags have a certain analogy with totems which are objects that signifies the shared identity of a community op people. In that sense, political symbols serve to unite their citizens and to create a sense of belonging to the community. They are, thus, a factor which facilitates the cohesion | 265 among the citizens because they make more strength the national identity, inasmuch, the integration of a person in a group requires a symbolic expression. On the other hand, political symbols can generate emotions and arousing feelings, touching the emotional side of the citizen (ALEGRE MARTÍNEZ, 2008, p. 11). So, the flag, above all, and other national symbols, as coat of arms and national anthem, are condensed symbols of the social community and its membership. At the same time, the national symbols contain other symbols or elements: objects, shapes and colors. In the case of flags, they are studied by vexilollogy, and in the case of coats of arms, by heraldry. These elements can be a religious element, due to be a religious object, to have a religious meaning or to be a religious origin. So, religious elements which are in the national symbols also help to set the group membership of the individuals, and to contribute to consolidate the nations. Its presence and permanence in the national symbols of the countries of the European Union is a clear example of the religious roots –specifically Christian– of those States and therefore Europe itself. There are some examples of these religious symbols or elements with a religious meaning in national European symbols, as we shall check later. Nowadays, the only European countries without religious elements in the current national symbols are only Germany and Poland, although they have had them in the past. So, the Polish coat of arms had a little cross at the top of the crown at the white eagle`s head; that crown was removed during the communism, and returned with the new democratic Polish State, but the current eagle’s crown has not a cross as formerly. 2. Religious elements in flags Flags are probably the most known national symbol and it is the symbol that identifies the most to the members of the states from each other and from outside them. In national flags, there are some obvious symbols of religion, like crosses, but there also are other elements with no obvious religious symbolism, like the colors in the flags. And there are some flags with a mythicalreligious origin. In this work they have been included all the elements all elements, whether they are directly related to religion as those who have an indirect relationship with religion. The flags with an evident religious symbol are those which have the Scandinavian Cross design, also named Nordic Cross or Saint Olaf cross, which represents Christianity. This cross is always depicted with his vertical part shifted to the hoist side, and extending to the edges of the flag. These are the flags of Denmark, Sweden and Finland –and other European countries out of the European Union such as Norway and Iceland–. The flag of Denmark is a red field charged with the Scandinavian Cross in white. It is known as Dannebrog, that in former Danish language it means the Danish cloth or the flag of Danish people. It has a mythical-religious origin and it is the oldest flag in the world still in use. The legend says that Dannebrog fell from Heaven in the battle of Lyndanisse (near Tallinn, Estonia) on 15 June 1219. Any record supports the legend. However, it is said that Danish warriors were near to be defeat. A Danish priest begun to pray to God at the top of a hill near the battle, and as more he prayed, the Danish were closer to win the battle. The priest got so tired that he dropped his arms and the Danes lost the advantage. When two soldiers keep his hands up, Dannebrog fell from the sky and the Danish king took it, showed it to the troops and the Danish won the battle (BJERG, 2006, p.12). The Danish flag, with the design as is used nowadays, dates back, at least to 1400, and the current rules for the official design for civil ensign were adopted in 1748. Danish flag model was taken by the flags of Finland and Sweden, which are also Scandinavian crosses. So, Swedish flag derives from Danish flag design with other colors: a yellow cross in a blue field. These colors, like we will see, are taken from the Swedish coat of arms. However, there is a legend about a mythical-religious origin of the Swedish flag. According to that, Swedish king Eric 266 | the Holy, when he was staying in Finnish lands in 1157, he saw a golden cross in the sky, and he took it as a sign from God. So, he adopted that golden cross on the blue field, from the sky, as his banner, and some time later, the gold was changed in yellow, for practical reasons. If this legend would be true, the Swedish flag should be older than Danish one, but, really, the first document describing the Swedish flag goes back only to the middle of the sixteenth century. The flag was officially adopted in 1906 and nowadays it is ruled by the Flags Act 1982. By the other hand, Finnish flag is also a Scandinavian cross: a sea-blue cross in a white field. It was officially adopted in 1920 with the design that won the design competition that it was convened after the country’s independence in 1917. There are some other European flags with different types of crosses. These are the flags of the United Kingdom, Greece and Malta. The “Union Flag” or “Union Jack” is the name of the United Kingdom’s flag. It is the European flag with more crosses in it, due that it combines the crosses of the patron saints of England, Scotland and Ireland. The cross of St. George, patron saint of England, is a red cross in the center of a white field, whose arms reach the edge of the flag. It is superimposed on the cross of St. Andrew, patron saint of Scotland, which is a white saltire in a blue field whose blades reach the corners of the flag. Finally, the cross of St. Patrick, patron saint of the island of Ireland, is a red saltire in a white field, and it is located within the Scottish cross. The reason that the flag is not symmetrical is because of the positions of St. Patrick cross inside St. Andrew’s one, but in offset position in order to it doesn’t seem such St. Andrew’s cross would be a border for it. Thereby, St. Andrew’s saltire has the higher position at the hoist side of the flag, and St. Patrick’s one has the same on the opposite side. The current version of this flag dates from the union of Great Britain and Ireland, in 1801, when St. Patrick’s cross was added to the initial combination of the English and Scottish crosses. The crosses of St. George and St. Andrew have a long tradition, because they date back to the sixteenth century, and St. Patrick’s one has an unknown origin, and it remains in the Union Jack although, nowadays, after the independence of the Republic of Ireland, only Northern Ireland remains in the United Kingdom. The crosses of Scotland and Ireland are behind the English one. Out of Europe, this flag is also contained in the flags of independent countries such as Australia, New Zealand, Tuvalu or Fiji. The Greek flag has a blue square, at the top nearest the flagpole, with a white Greek cross, which is the symbol of the Greek Orthodox Church. It dates back from 1822, and it was officially adopted in 1978 like the only national flag. Formerly, a flag with a simple white cross in a blue field, without the nine horizontal stripes; was an alternative flag only in land, not at sea. The white cross is also featured in the coat of arms as the only symbol The Maltese flag is a vertical bicolor with the hoist half in white and the other half in red. On the upper side of the white half, near the mast, the flag has the Cross of St. George. That is a British award which contains a silver Greek cross with St. George killing a dragon in its center. The George Cross appeared in Maltese flag in 1943, on a blue canton, until the day of the independence on 21 September 1964, when the coat of arms and flag were changed: the blue canton was removed and it was substituted by a narrow red fimbriation. Despite the independence, the national flag maintains that British award, because it was granted by the King Georg VI to the inhabitants and defenders of the island fortress for his heroism during World War II. By the other hand, it is a mere coincidence that the colors of the flag, white and red, be the same that were used by the Knights of the Order of Malta and the Sovereign Order of Malta itself (a white Maltese cross in a red field). The flag is featured in the Maltese coat of arms, including the Cross of St. George. The Cypriot flag has an element, other than a cross, whose meaning is related to religion. It is a white flag with a golden map of the island with two olive branches below. Both, white color and olive branches, are symbols of peace. It must not be forgotten that the peace symbolism of the | 267 olive branches dates back to the Bible, meaning the peace that God gave to the mankind after the universal flood, represented by the return of the Noah’s dove with the olive branch in its beak. As we will see, this symbol is also in the Cypriot coat of arms. The current Cypriot flag was adopted after a design competition in 1960, where it was ruled that the flag should not include either blue or red colors, due that they are the colors of the Greek and Turkish flags, and they neither could portray a cross or a crescent, in order to make a neutral flag to promote the unity amongst Greek Cypriot and Turkish Cypriot communities. On 16 August 1960, the President of the Republic, Archbishop Makarios selected a proposal made by a Turkish Cypriot school teacher. In 2006, there were made some minor changes in the flag. It must be added that despite the attempt of a neutral flag, it was most often used by the Greek Cypriots, and finally Turkish Cypriots use their own flag, with an Islamic red crescent on a white field, since the Turkish invasion of Cyprus and the establishment of the self-declared Turkish Republic of Northern Cyprus. The flags with no evident religious elements, due to they are hidden in the symbolism of its colors, are the Ireland, Romania and Netherlands ones. The Irish flag has three vertical fringes. Since hoist parte, they are colored in green, white and orange. It is not an official symbolism, but it is said that the green color symbolizes the Catholic Irish people, the older Gaelic traditions and the sympathy for Irish independence. In the other hand, orange color symbolizes the Protestants of the country, which are also called Orangemen, a word derived from William III of the House or Orange; the Stadtholder of the Netherlands, who defeated the Irish Catholics at the Battle of the Boyne in the sixteenth century However, in nineteenth century it was an early design of the Irish flag with a golden or a yellow fringe instead of orange one. Finally, the white colored fringe between the other two ones symbolizes the peace that must be between those religious groups: the Catholics and the Protestants. The current version of the Irish flag dates back to 1822. In 1919, during the war of independence, it was adopted as the national flag by the Irish Republic, and then, in 1922, by the Irish Free State. Finally, it was given a constitutional status under the Constitution of Ireland of 1937. The origin of the colors of the Romanian flag is also related to religion. The flag consists of three vertical stripes, since flagpole, they are blue, yellow and red. The colors have a secular symbolism which dates back to the revolutionaries during the Wallachia uprising of 1821: Liberty (blue), Justice (yellow), Fraternity (red), and they were adopted as colors of Wallachia in 1834. Some years after, it was adopted in 1848 as Romanian flag, and definitively, it was ruled in 1864. However this relative recent origin, the meaning of its colors has to do with religion, and it dates back a lot of centuries before, when the symbols of the former archbishopric of Justiniana Prima were set by Emperor Justinian in the year 535: “on the right, in the first division, a red shield, in the center of which there will be some towers, symbols of Dacia Ulterior, listed in the second division, a celestial shield with the signs of the tribe of bures, and the gold color in the middle”. Indeed it can be added the flag of the Netherlands, although by an indirect way. The current flag has three horizontal stripes: the upper one, in red; the middle one, in white, and the bottom one, in blue. Nowadays, this flag has not religious element or with a direct religious meaning. But, certainly, the current red stripe at the top of the flag drifts of the original orange color. The native Dutch flag had three horizontal stripes orange, white and blue, which were the colors of the Dutch protestant rebels against the catholic King Philip II of Spain. They were the colors of the Prince of Orange, and for that reason, the Dutch flag was named Prinsenvlag (Prince’s flag). After 1630, the orange stripe was gradually replaced by a red one. The reason to remove the orange stripe is a practical and not politic reason: it is to be better distinguished at the sea. The flag of the Netherlands was adopted in 1937. Despite its similarity and neighborhood, the flags from the Netherlands and Luxembourg are unrelated, not having any common origin, and it is just a coincidence, due that Luxembourg colors 268 | are derived from its coat of arms. Rather than Danish and Swedish ones, even the Austrian flag has a religious and legendary origin: Austria’s flag consists of three horizontal stripes of equal width, red upper and lower, and with white color at the center. The flag was invented by Duke Leopold V of Austria after the Battle of Acre in 1191, during Crusades, due to his white robe was totally blooded except the part of the girdle, which will remain white (ELGENIUS, 2007, pp.19-20). In fact, the Duke Frederick II of Austria created it seeking greater independence of the Holy Roman Empire, in the thirteenth century. After the end of the Austro-Hungarian Empire, the Republic of Austria adopted the red and white flag in 1918, and it was the national flag until the Anschluss. The flag was reinstated after the Second World War. Portuguese flag deserves to be discussed. In a first watch, the religious element in this flag, as we can see before, are only at the coat of arms, as the flags of Slovakia and Spain. Current Portuguese flag has a secular origin, due to in 1910 it was created by a special governmental commission, as a new flag for replacing the former monarchic flag. Nowadays, Portugal’s flag is a vertically striped bicolor of green and red. Green side is near the mast and it is a half large as red pat. There is an armillary sphere with the Portuguese shield –-a simplified version of Portuguese coat of arms–- over the centre of the two color stripes boundary. Both, flag and coat of arms were officially adopted in1911. There is a secular meaning on the flag’s colors: the green color is for hope of Portuguese people, and red one for their blood and sacrifice. Despite of it, there is a theory on the symbolism of the red and green colors that relates them to religious elements. It says that the red signifies the shed blood in the battles against the Muslims of the XII-XV centuries, and the green would be the fields where it happened. On the other hand, the white color of the flag, due to it is the background of the shield, the governmental commission for the change of the flag, stated that it is the “same color that, charged with enthusiasm and faith by the red cross of Christ, marks the Discoveries epic cycle”. The colors of the former monarchic Portuguese flag were white and blue, who had a great religious meaning due to they were the colors of Our Lady of the Conception (Nossa Senhora da Conceição, in Portuguese), who King John IV proclaimed as the Queen and Patroness of the country. Those colors were based in the blue cross of King Alfonso I in a white field, which, still nowadays, remains as a reminiscence in the national coat of arms, as we will see before. As I have said, the Spanish and Slovak flags only have any religious element in their coats of arms, which will be studied before. The Spanish flag dates back to 1785, and the current version was adopted in Spanish Constitution of 6 December 1978: three horizontal stripes: red, yellow and red, the yellow stripe being twice the size of each red stripe; and the Spanish coat of arms is in the yellow stripe, near the flagpole. It was adopted, in its current version, on 5 October 1981. The flag of Slovakia dates back to 1848. It was officially adopted, first time in 1939 and used until 1945. The current Slovak Constitution adopted it again on 3 September 1992, when it was added the national coat of arms. The flag has three equal horizontal stripes, white, blue and red, with the national coat of arms placed to left of center, in the middle blue stripe. Finally, it is interesting to take attention on European Union flag, because it can be also related to religious symbolism. The current version was adopted on 8 December 1955, by the Council of Europe, and on 29 June 1985, by the European Economic Community. The design of the flag is a circle of twelve yellow stars on a blue field. It was proposed by the French Arsène Heitz. Before this, there were some other proposals for the Concils of Europe’s flag, such as the Count Richard Nikolaus von Coudenhove-Kalergi who proposed to adopt the flag of the International Pan-European Union, which was a blue field with a red cross within an orange circle in the center. But the cross symbolism was rejected by Turkey, a member of the Council of Europe, and Kalergi then suggested adding a crescent to overcome the Muslim objections. Among all the designs, it was cho- | 269 sen one of the designs that Arsène Heitz had submitted. Initially, there were fifteen stars, but they were after reduced, in current flag, to twelve stars. Despite that the flag was presented as a flag that does not represent or countries or states or races, the designer himself Arsène Heitz, stated in 2004 that he had been inspired by reading in the Book of Revelation (Apocalipsis) this passage: “And there appeared in the sky a great sign, a woman clothed with the sun, with the moon under her feet and a crown of twelve stars on her head” (Rev. 12:1). On the other hand, as evidence of the religious symbolism, it can be added: a) the twelve stars appears in some representations of Catholic art: b) the twelve stars and sky-blue color are considered Marian symbols; c) the fact that the European flag was adopted just on December the 8th, the Feast of the Immaculate Conception: c) the Council of Europe opened a stained glass window in the Cathedral of Strasbourg with the twelve stars of the European flag, 3. Religious elements in European coat of arms and mottos There are some coat of arms of European Union countries with religious elements, and less examples of mottos. The Spanish coat of arms was adopted in 1981. It has four fields, and the fourth one has an indirect religious meaning. There are the arms of former Kingdom of Navarre: some yellow chains in a red field. The chains are the symbol of the Christian victory against the Muslims in the battle of Navas de Tolosa, in 1212. Also, at the tip of the shield, there is a grenade on a white field: the arms of the Muslim Kingdom of Granada which conquest ended the Christian Reconquista of Spain. At the crest of the shield, there is the Spanish Royal Crown; at its top, it has a blue orb with a golden cross.. In the sides of the shield, there are the two Hercules’ pillars, a Greek mythological hero. At the top of each one of these pillars there is a crown: at right, it is the Holy Roman Empire’s crown, and at sinister pillar it is the Spanish Royal Crown, the same that it is at the crest. Both crowns have the orb with a cross, in a small size. As in Spain, the coat of arms of some European monarchies contain the orb with the cross. This religious element is named as globus cruciger, in Latin, and it represents a globe surmounted by a cross, a Christian symbol of authority and the domain of Christ (the cross) upon the world (the orb). It have been used throughout the ages and today it appears on Crown Jewels and coat of arms of many countries of European Union such as Denmark, which holds, at the timbre, the royal crown with a blue orb and a cross of gold and silver. It dates back to 1190, and the current version was adopted in 1919. The coat of arms of Luxemburg has the crown of Grand Duke. It is at the upper part of the coat of arms, and it contains an orb in blue and a gold cross. It dates back to Middle Ages. On the other hand, Luxembourg has a Greater coat of arms that it has another crown with orb and cross; and the cross of the Order of the Oak Crown passed around, which is a Maltese cross. The coat of arms of The Netherlands, which current version was adopted in 1907, has also the orb and cross. In the upper sternum ornamentation, there is a royal crown with a golden orb and cross. Dutch coat of arms can there be on a royal mantle with four-poster on which there is the royal crown, also with the golden orb and cross. So, there are two globus cruciger. The same happens with the Belgian coat of arms, which was adopted in 1837. In the simple version of this national emblem there is a blue orb with a golden cross, at the top of the Belgian Royal Crown, sited in the timbre of the shield. The greater version of the coat of arms, has another Belgian Royal Crown in the high part, with another orb and cross. Both coats of arms, greater and lesser, have the necklace of the Order of Leopold, which contains a white Maltese cross. The coat of arms of Sweden has, also, a royal crown with a blue orb and a golden cross. Also, it has two equal fields, firth and fourth, with three yellow crowns. They were, formerly, a symbol of 270 | the three Magician Kings, which worshiped Jesus. Eventually the shield may also be surrounded by the necklace of the Order of Seraphim, which they are a kind of angels. Also, a silver Maltese cross hangs from this necklace. There is also a large version of the Swedish coat of arms (main shield), with the same mentioned religious elements and an ermine’s mantle with another Swedish Royal Crown, with its blue orb and golden cross. The shield is supported by two rampant and crowned lions. At the top of these crowns are also two little crosses. The Swedish coat of arms dates back to 1525, and currently version dates back to1905. There are no less than three golden orbs with crosses in the current version of the United Kingdom’s Royal coat of arms, which was adopted in 1837. They at the top of the three crowns of Saint Edward; at the stamp of the shield; at the lion which is stand up on that crown, which is also crowned; and in the golden rampant lion which is at right side of the shield. In addition to the golden orbs and cross, there are some other religious elements in British Royal coat of arms. It is surrounded by the badge of the Order of the Garter, with a motto in old French that it says: “Honi soit aui mal y pense” (Shame upon him who thinks evil of it). At the feet of the coat of arms it is the national motto, inside of a ring of silver. It says, in French, “Dieu et mon Droit” (God and my right). Curiously, also the coat of arms of Bulgaria has the orb and cross, despite to be a Republic. It dates back to fifteenth century, but current version was adopted in 1997. It consists of a crowned golden lion rampant over a dark red field, and at the top of the crown there is a little cross. Above the shield it is the Bulgarian historical Royal Crown, and in its top there is a blue orb and a golden cross. The crown is the same used by the ancient Bulgarian monarchs from 1878 to 1946, and it consists of eight golden crosses, and five of them are seen. The shield is supported by two crowned golden lions, in a rampant position; also at the top of these crowns there are two little crosses. As stated, the Slovak coat of arms appears in the national flag, and it consists in a red field with a white double cross –known as patriarchal cross or apostolic cross– standing on the middle peak of a dark blue mountain. The cross is designed with longer extremities and its ends are concaved. The current version of the coat of arms was adopted in 1993. The double cross symbolizes the most important saints of the country: Cyril and Methodius, byzantine missionaries, and the Christian faith. In other words, it would symbolize Slovakia as a guardian of Christian tradition, brought to the region by St. Cyril and St. Methodius. The two-barred cross has a Byzantine origin: it dates back to the ninth century, and, probably, ,the first horizontal arm would symbolize the secular power, and the other horizontal line would be the ecclesiastic power of Byzantine emperors. Another interpretation could be that the two arms represent, respectively, the death and resurrection of Jesus Christ. This Christian symbol is also featured in the Hungarian coat of arms, and it also came to Lorraine in France, where it is called the cross of Lorraine. Indeed, the second field of the coat of arms of Hungary, adopted in 1992, has, in a red field, the double byzantine cross in white, situated inside a small golden crown at the top of a mountain of three peaks in green. It was thought that the double cross have been given to Saint Stephen I of Hungary, in 1100, by the pope Silvestre I, as the symbol of the apostolic Kingdom of Hungary; but today it is accepted that it derives from Byzantine influence, and the cross appeared around 1190. Also, it is said, as in Slovakia’s coat of arms, that the double cross derives from Saints Cyril and Methodius. On the other hand, at the stamp of the shield, it is the crown of King St. Stephen, known as the “Holy Hungarian Crown” the only crown that nowadays it is appealed as “Sacrum Attribute”. This crown has distinct figures of angels, indeed, Jesus, and in the height, a cross twisted to the left. At the early times after the Hungarian independence, it was a debate about the Holy Crown on the coat of arms, and between the parties at the opposition, as Alliance of Free Democrats, it was preferred a republican version of the coat of arms. But a parliamentary majority decision restored the coat of arms with the crown and the cross, and it became accepted by every political party. As I said, the Portuguese coat of arms is officially sited in the flag. After a long evolution, the | 271 current version of the coat of arms was adopted in 1911. Besides what has already been said about Portuguese flag, the coat of arms consists in a white field where are five dark blue escutcheons, which are situated making the shape of a cross. They are a derivation of the initial Henry of Burgundia’s blue cross on a white field. Each of them escutcheons has five white points, and there is a red border with seven golden castles. It is said, unlikely, that the five escutcheons symbolize the five Muslim kings that King Afonso Henriques beat in the battle of Ourique, and that the five points inside the escutcheons would represent the five wounds of Christ, and the addition of all points and escutcheons would be the thirty pieces received by Judas to betray Christ. The seven golden castles in the border, supposedly, represent the Moorish castles that the Kingdom of Portugal conquered during the Reconquista. On the other hand, it has been said that the Greek, Maltese, and Cypriot coat of arms have the same religious elements that there are in the flag. It must be remembered that the Greek coat of arms, adopted in 1975, is the same white cross in a blue square which it is in the flag. It represents the Greek Orthodox Church. Current Maltese coat of arms was adopted and described by the Emblem and Public Seal of Malta Act of 1988: a shield showing a heraldic representation of the national flag of Malta, even with the Cross of St. George, as it has been said. In addition, around the shield there is a wreath of two branches: at right side, an olive branch, at left side, a palm; as a symbols of peace. It must be remembered now what it has been said about the original religious symbolism of the olive branch, related to Noah. On the other hand, the palm branch has been a symbol of victory since roman times; for early Christians whom used the palm branch to symbolize the victory of the faithful over enemies, as in the Palm Sunday celebrating the triumphal entry of Jesus into Jerusalem, and for Hebrews, it represents peace and plenty. The current coat of arms of Cyprus, adopted in 1960, contains the same olive branches of the flag symbol of peace, around the shield. In addition, the shield has a dove carrying an olive branch in its beak, also a known symbol of peace. Really, as said, both symbols are related to the same religious origin in the Biblical passage of Noah and the universal flood. The coat of arms of the Czech Republic, adopted on 1992, has four quarters or fields. In the third one, a yellow field with a black eagle charged with the so-called “clover stalk”, that it is a white crescent moon with three little white crosses, two of them are at the ends of the crescent; the other cross is in the middle of it. This is the coat of arms of Silesia. Lithuanian coat of arms is one of the oldest in Europe (RIMSA, 2005, p. 58): it dates back to1366, but current version is official since 1991. It is a red field with a white armed knight mounted on a horse. A sky-blue shield hangs on the sinister shoulder charged with a yellow double cross. It is the same double cross that we have seen in the Slovak and Hungarian coat of arms. Romanian coat of arms was adopted in 1870, and its current version, in 1992. It is taken by a golden eagle, which has a golden Orthodox cross in its beak. It symbolizes the importance of religion in the origins of the Romanian State. The coat of arms has four fields. The first one, of Wallachia, it has, in a blue field, another golden eagle which supports a golden Orthodox cross in its beak. In this first field and in third one (from Transylvania) there are a little sun and a little crescent (in first field, both are in yellow; in third one, the sun is in yellow, and crescent is in silver). The symbols of Sun and Moon came from the arms of Szekler people; that are the symbols of two gods of primitive Hungarian people. Then, they were Christianized, but the religious meaning is lost nowadays. The symbols have passed to Transylvania coat of arms and after to Romanian one. Finally, the second field (from Moldova) has a new moon of gold, in a red field, beside to a golden head of an auroch. Finally, the Irish coat of arms has an indirect relation with religion. It consists in a blue field with a yellow harp. It dates back to thirteenth century and it was adopted in1945. The harp is 272 | a musical instrument usually associated to biblical King David, and the blue field of the shield has relation with religion and mythological Gaelic origins. That blue color is sometimes called St. Patrick’s blue, and in the Irish national heraldry it has been associated with a mythological Gaelic personification of Ireland: Gormfhlaith, compound of the Irish words “gorm” (blue) and “flaith” (sovereign). At last, on mottos, in addition to United Kingdom’s motto (in French, Dieu et mon Droit, “God and my right”), it is only possible to say that the Austrian one is, in German: “On the sacred rights of Austria”. Finally, there is no national Danish motto, but the royal one says: “The help of God, the love of the people, the strength of Denmark”. 4. Religious elements in national athems We have included a reference to the national anthems, although they are not a proper political symbols. Really, they are national symbols due to its connection to the primeval symbols. So, national anthems make honors to the national symbols, as the flag, and through them, to the realities that they represent and symbolize. But they are also capable of producing a national identification between the members of a community (MUÑOZ ARNAU, 2008, p. 1659), and in many of them, there are religious elements (words or phrases) that work in that community identification. So, half a part of the national anthems of the States in the European Union has religious elements. They can be classified by the depth of the religious mentions, since the simple mythological mention, as in Denmark’s anthem, to authentic prayers mentioning God, as in Latvia, Hungary Malta, The Netherlands and United Kingdom ones. Also, Luxemburg anthem is a prayer, but not mentioning God. Other anthems, not being a prayer, make a mention to God, as Estonian, French, Italian, Slovenian and Swedish ones. Finally, they are some religious sentences in Romanian anthem, and some others anthems have religious meaning or they are related to religion, as the national anthem of Austria, Belgium, Ireland, Greece and Cyprus. So, it is in the national anthems where there are more religious references in national symbols. Thus, as said, there is a mythological reference in Danish anthem, Der er et yndigt land (There is a beautiful land), which was adopted in 1835. It says, in Danish language “and here he still lives Freia”, which is one of the goddesses of Nordic and Germanic mythology. Then, there are some national anthems which include words or expressions related with religion or with an original religious meaning, despite that in any case, they are describing secular situations or they have nowadays a secular use or meaning. So, Austrian anthem, Land der Berge, Land am Strome (Land of mountains, land on the river), adopted in 1946, make refers to “the land of cathedrals” and “people blessed with beauty”. Also, the Belgian anthem, adopted in 1860, and current text adopted in 1921, La Brabançonne (The Brabantian), in French, says: “Nous le jurons tous, tu vivras !” (All swear that you will live!). It’s the same as the Irish national anthem, “Song of a soldier”, which has a military character, but it says, in English: “We are soldiers / who have sworn his life to Ireland”. The Greek and Cypriot anthems, Yμνος εἰς τὴν Ἐλευθερίαν (Hymn to Freedom), curiously, they are the same. It says, in Greek, “Output from the bones / sacred of the Hellenes”. It was officially adopted by Greece in 1865 and by Cyprus in 1966. As I said, Romanian anthem, Deşteaptă-te, Române! (Wake up, Romanian!), adopted in 1990, has some religious sentences. It says, in Romanian: “But we, whose souls were pierced by holy liberty, / Swear that for ever in brotherhood will join”; “Didn’t we have enough of the yatagan of the barbaric crescent” (yatagan is a type of Turkish sword): “But the Lord is our witness that we shall not accept it alive”, and “Priests, lead with your crucifixes, for our army is Christian / The motto is Liberty and its goal is sacred”. | 273 The Estonian anthem is Mu isamaa, mu õnn ja rõõm (“My Fatherland, My Happiness and Joy), which dates back to 1920 and it was readopted in 1990. It says, in Estonian: “May God watch over you, /My precious fatherland! / Let Him be your defender / And provide bountiful blessings”. Unexpectedly, also “La Marseillaise” (The song from Marseille), French anthem since 14 July 1795, speaks of God, in French: “Great God ! By chained hands / Our brows would yield under the yoke”. Also, the Italian anthem Inno di Mameli or Il Canto degli Italiani, or Fratelli d’Italia (Mameli’s Hymn, or The Song of Italians, or Brothers of Italy), has some references to God: “Iddio la creò” (God has made her); and, in Italian “For union and love / Reveal to the people / The ways of the Lord. / Let us swear to set free / The land of our birth: / United, for God, / Who can overcome us?”. Finally, it might be recorded a last sentence, indirectly related to religion: “il suon d’ogni squilla / i Vespri suonò” (The sound of each ring / the Vespers it sounds), which alludes to the Sicilian eve, which began with the thunder of the churches bells. Italian anthem was adopted, de facto, in 1946, and officially,in 2005. The Slovenian anthem, Zdravljica (Brindis), is the seventh stanza of a poem written by France Prešeren in 1844, and adopted as national anthem in1989. It says, in Slovenian: “God bless all the nations”, and “God prejudice to our country and nation”. Finally, also has a mention to God, the Swedish anthem Du gamla, du fria (You old, you free). In Swedish, it says: “With God I shall fight for home and for hearth”. Also, with an analogous sense, it says: “when your name was revered all over the world”. The Swedish anthem dates back to 1844, but it has not been officially adopted. The Luxemburg anthem is a prayer to God, but not mentions Him. In Luxembourgish, Ons Heemecht (Our Homeland), it was adopted in 1895. The official English translation says: “Oh Thou in heaven that night and day / Leads the nation in the world; / Excludes the country of Luxembourg / The foreign oppression / Children we have received from you / The spirit of liberty; / Let the sun of freedom / To shine forever”. One of the anthems which are a prayer with a mention to God, is the Hungarian one. Himnusz (Anthem) was adopted in 1844. It says, at first stanza: “O Lord, bless the nation of Hungary / With your grace and bounty / Extend over it your guarding arm / During strife with its enemies / Long torn by ill fate / Bring upon it a time of relief / This nation has suffered for all sins / Of the past and of the future!”; at second: “You brought our ancestors up / Over the Carpathians’ holy peaks / By You was won a beautiful homeland / For Bendeguz’s sons / And wherever flow the rivers of / The Tisza and the Danube / Árpád our hero’s descendants / Will root and bloom”; at third: “For us on the plains of the Kuns / You ripened the wheat / In the grape fields of Tokaj / You dripped sweet nectar / Our flag you often planted / On the wild Turk’s earthworks / And under Mátyás’ grave army whimpered / Vienna’s proud fort”; at fourth: “Ah, but for our sins / Anger gathered in Your bosom / And You struck with Your lightning / From Your thundering clouds / Now the plundering Mongols’ arrows / You swarmed over us / Then the Turks’ slave yoke / We took upon our shoulders”; at fifth: “How often came from the mouths / Of Osman’s barbarian nation / Over the corpses of our defeated army / A victory song! / How often did your own son agrees / My homeland, upon your breast, / And you became because of your own sons /Your own sons’ funeral urn!”, and, finally, at ninth stanza: “Pity, O Lord, the Hungarians / Who are tossed by waves of danger / Extend over it your guarding arm / On the sea of its misery / Long torn by ill fate / Bring upon it a time of relief / They who have suffered for all sins / Of the past and of the future!”. Latvian anthem, Dievs, Sveti latviju! “God, Bless Latvia”, officially adopted in 1920, says, in Latvian: “God bless Latvia, / Our beloved fatherland. / Bless Latvia, / O, to bless it, we beseech thee/ O, to bless it. We beseech thee”. It is also a prayer mentioning God the Maltese national anthem, L-Innu Malti (The Maltese 274 | Hymn), which was adopted in 1964. It says: “Guard her, O Lord, as ever Thou hast guarded! / This Motherland so dear whose name we bear / Keep her in mind, whom Thou hast made so fair! / May he who rules, for wisdom be regarded! / In master mercy, strength in man increase! / Confirm us all, in unity and peace!”. The Netherlands’ anthem Het Wilhelmus (The William) is also a prayer. It dates back to the sixteenth century, and it is the oldest in the world, but official since 1922. In his very long text, it tries to win the sympathy of the German princes to ally against imperial Catholic Spain, appealing to their Protestant sense and against the Papacy, and “the text remains as a pure obsolete historical relic” (MIKUNDA FRANCO, 2008, p. 73). It has fifteen stanzas, and only, first and ninth to eleventh hasn’t a reference to God or religion. Usually, in official ceremonies they are only played the first and sixth ones: Sixth stanza says: “A shield and my reliance, / O God, Thou ever wert. / I’ll trust unto Thy guidance. / O leave me not ungirt. /That I may stay a pious / Servant of Thine for aye / And drive the plagues that try us / And tyranny away”. The other stanzas with religious references are: second, “I’ve ever tried to live in / The fear of God’s command / And therefore I’ve been driven, / From people, home, and land, / But God, I trust, will rate me / His willing instrument / And one day reinstate me / Into my government”; third: “Let no despair betray you, / My subjects true and good. / The Lord will surely stay you / Though now you are pursued. / He who would live devoutly / Must pray God day and night / To throw His power about me / As champion of your right”; fourth:“Life and my all for others / I sacrificed, for you! / And my illustrious brothers / Proved their devotion too. / Count Adolf, more’s the pity, / Fell in the Frisian fray, / And in the eternal city / Awaits the judgment day”; fifth: “I, nobly born, descended / From an imperial stock. / An empire’s prince, defended / (Braving the battle’s shock / Heroically and fearless / As pious Christian ought) / With my life’s blood the peerless / Gospel of God our Lord”; seventh: “My God, I pray thee, save me / From all who do pursue / And threaten to enslave me, / Thy trusted servant true. / O Father, do not sanction / Their wicked, foul design, / Don’t let them wash their hands in / This guiltless blood of mine”; eighth: “O David, thou soughtest shelter / From King Saul’s tyranny. / Even so I fled this welter / And many a lord with me. / But God the Lord did save him / From exile and its hell / And, in His mercy, gave him / A realm in Israel”. Le last stanzas of the Dutch anthem say; twelfth, “Surely, if God had willed it, / When that fierce tempest blew, / My power would have stilled it, / Or turned its blast from you / But He who dwells in heaven, / Whence all our blessings flow, / For which aye praise be given, / Did not desire it so”; thirteenth: “Steadfast my heart remaineth / In my adversity / My princely courage straineth / All nerves to live and be. / I’ve prayed the Lord my Master / With fervid heart and tense / To save me from disaster / And prove my innocence”; fourteenth: “Alas! my flock. To sever / Is hard on us. Farewell. / Your Shepherd wakes, wherever / Dispersed you may dwell, / Pray God that He may ease you. / His Gospel be your cure. / Walk in the steps of Jesus / This life will not endure”, and, finally, fifteenth stanza says: “Unto the Lord His power / I do confession make / That ne’er at any hour / Ill of the King I spake. / But unto God, the greatest / Of Majesties I owe / Obedience first and latest, / For Justice wills it so”. Finally, the known United Kingdom’s anthem is also a prayer to God. “God Save the Queen” (or “God save the King”, when there is a King), was adopted in 1745. The first three stanzas say: “1. God save our gracious Queen! / Long live our noble Queen! / God save the Queen! / Send her victorious, / Happy and glorious, / Long to reign over us: / God save The Queen! / 2. O Lord our God arise, / Scatter her enemies, / And make them fall: / Confound their politics, / Frustrate their knavish tricks, / On Thee our hopes we fix: / God save us all. / 3. Thy choicest gifts in store, / On her be pleased to pour; / Long may she reign: / May she defend our laws, / And ever give us cause / To sing with heart and voice”. There are another three stanzas which are considered staggered, | 275 with some religious elements. 5. Summary As it has been showed, is a fact that most of the States of the European Union have, and maintain, religious elements in their national symbols, either on the flag, coat of arms, motto or hymn. Already all the European countries have any religious element in its national symbols, less than Germany and Poland. In the opposite position, United Kingdom and Denmark are the countries with more religious elements in all their national symbols. It is not a coincidence that they are a confessional States. However, the religion is also present in secular countries as France (the name of God is in its national anthem). The most evident are the flags with a cross (or crosses): Denmark, Finland, Sweden, United Kingdom, Greece and Malta, but it is also very interesting the religious meaning of the colors of the Irish flag. The religious elements are evident in the coat of arms which show crosses, such as Greece, Hungary, Malta, Slovakia, or Romania, but it also deserves to be highlighted the hidden cross in the coat of arms of Portugal, or the presence of common objects which have a religious origin or meaning (such as the Cypriot olive branches or the Spanish chains). In addition, it must be remembered the presence of the orbs with cross at the top of the crowns of all monarchic countries (Spain, Belgium, Denmark, Luxembourg, The Netherlands, Sweden and United Kingdom), and some republican ones, such as Bulgaria, or Hungary, with the Holy Hungarian Crown. Finally, where the element religious are more present and they don’t need explanations, is in the national anthem, some of they are authentic prayers to God, with a total religious sense, such as Hungary Malta, The Netherlands or United Kingdom.. After checking the repeated presence of religious elements in the national symbols of European countries I think that it is not possible to be questioned the Europe’s religious roots. References Alegre Martínez, M. A. (coord.) (2008). El Himno como símbolo político. León: Universidad de león. Bjerg, H. C. (2006), Dannebrog, Historien om et kristent og nationalt symbol. Højbjerg: Hovedland. Bordalo Pinheiro, C. (1910). Bandeira Nacional: Modelo aprovado pelo Governo Provisorio da Republica Portuguesa. Lisboa: Imprensa Nacional. Du Payrat, A. & Roudaut, D. (2000). Album des pavillons nationaux et des marques distinctives, Brest: Service Hydrographique et Océanographique de la Marine. Elgenius, G. (2007). The origin of European National Flags. In: T. Hylland Eriksen & R. Jenkins (eds.) Flag, Nation and Symbolism in Europe and America (pp. 14-30). New York: Routledge. Flags of the World. http://www.crwflags.com/fotw/flags/ (internet) Fox-Davies, A. (1985). A Complete Guide to Heraldry, London: Orbis Publishing. Friar, S. (1993). Basic Heraldry, London: Herbert Press. García Pelayo, M. (1991). Ensayo de una teoría de los símbolos políticos. In: Obras completas (pp. 987-1031). Madrid: Centro de Estudios Constitucionales. Groom, N. (2007).Union Jacks and Union Jills. In: T. Hylland Eriksen & R. Jenkins (eds.) Flag, Nation and Symbolism in Europe and America (pp. 68-80). New York: Routledge. Groom, N. (2006). The Union Jack: the Story of the British Flag. London: Atlantic Books. Hayes-McCoy, G. A. (1979), A History of Irish Flags from the Earliest Times, Dublin: Academy Press. 276 | Iglesias, C. (2000). Símbolos de España, Madrid: Centro de Estudios Políticos y Consitucionales, Jenkings, R. (2007). Inarticulate speech of the heart: Nation, Flag and Emotion in Denmark. In: T. Hylland Eriksen & R. Jenkins (eds.) Flag, Nation and Symbolism in Europe and America (pp. 115-135). New York: Routledge. Loutsch, J. C. (1974). Armorial du pays de Luxemburg, Luxemburg: Publications nationales du Ministère des Arts et des Sciences. Menéndez Pidal de Navascués, F. (2000). El Escudo. In: C. Iglesias (coord.), Símbolos de España (pp. 200-202). Madrid: Centro de Estudios Políticos y Constitucionales. Mikunda Franco. E. (2008). Los himnos en particular: panorama europeo global en perspectiva cultural comparada. In: M. A, Alegre Martínez (coord.) El Himno como símbolo político (pp. 65-90). León: Universidad de León. Muñoz Arnau, J. A (2008). Reflexión final. In: M. A. Alegre Martínez (coord.) El Himno como símbolo político (pp. 159-174). León: Universidad de León. Nettl, P. (1967). National Anthems. New York: Frederick Ungar Publ. Oltean V. (2005). Imnul Național Deșteaptă-te, române!. Brașov: Salco. Oswald, G. (1985). Lexikon der Heraldik. Leipzig: Bibliographisches Institut. Rimsa, E. (2005). Heraldry: past to present. Vilnius: Versus aureus. Zapheiriou, N. (1995). Ηελληνική Σημαία από τους αρχαίους χρόνους μέχρι σήμερα (The Greek Flag from Antiquity to the Present). Athens: Eleftheri Skepsis. Znamierowski, A. (1999). The World Encyclopedia of Flags. London: Anness Publishings. | 277 278 | Luigi Pruneti Imperial Academy of Russia Moscow University Sancti Nicolai La multicultura come aspetto della societa` moderna Le origini del dibattito sulla multicultura, ebbero un antecedente quando, con la Riforma protestante, l’Europa smarrì l’unità religiosa e affrontò il problema della conflittualità fra fedi diverse. A un primo momento improntato sul tentativo di eliminare le minoranze non conformate al pensiero egemone1, subentrò la fase del compromesso che portò, il 13 Agosto del 1598, alla promulgazione, dell’Editto di Nantes, da parte di Enrico IV di Borbone2. Contemporaneamente intellettuali, scienziati e filosofi, difendevano la libertà di coscienza e auspicavano uno stato laico che consentisse la convivenza di diversi pensieri religiosi. Furono queste le posizioni assunte da Paolo Sarpi, Galileo Galilei3, Descartes e Spinosa4. Quest’ultimo fu considerato un pericoloso sovversivo e di conseguenza fu cacciato dalla propria comunità, costretto a rinunciare all’insegnamento ed accusato di ateismo; riuscì, comunque, a sopravvivere, fatto inusuale per un libero pensatore del XVII secolo. Nei Paesi Bassi, tuttavia, era possibile giacché la tolleranza era diventata per necessità virtù. Le Fiandre erano minacciate da vicini potenti e sul loro territorio coabitavano confessioni diverse: era fondamentale che vi fosse convivenza, perciò, come sottolineò il calvinista Johannes Barueth, si giunse alla coesistenza di riformati ortodossi, cattolici, luterani, mennoniti e arminiani. Furono proprio gli arminiani5 i vessilliferi dell’ariastanesimo, una dottrina6 che promuoveva la libertà di pensiero e di culto. Successivamente Noodt ed altri studiosi di diritto giunsero a stabilire l’impossibilità di dimostrare la superiorità di una religione su un’altra7. Alla fine del XVII secolo anche in Inghilterra il Toleration Act (maggio 1689) introdusse il concetto di libertà religiosa, che fu accordata ai dissidenti protestanti, non come diritto, ma sotto forma di esenzione dalle pene previste dalla legge8. Le cause di una siffatta apertura vanno rintracciate nel latitudinarismo, una corrente dell’anglicanesimo che, riprendendo il pensiero di Erasmo9, insisteva sulla difficoltà esegetica di taluni passi delle Scritture e sulla marginalità delle divergenze teologiche, le varie fedi riformate erano in definitiva “come tanti raggi convergenti verso lo stesso mozzo”10. Questa posizione fu condivisa da Locke11 che nel 1689 pubblicò l’Epistola sulla Tolleranza, nella quale sottolineò l’inutilità della repressione, giacché il pensiero non può essere costretto o modificato con la forza. Al pari di Spinosa, riteneva che la scelta religiosa afferisse all’ambito della coscienza individuale, sulla quale può agire solo il convincimento, supportato dalla ragione, in altre parole l’errante può essere ricondotto sulla retta via unicamente con giuste argomentazioni12. Infine, Locke denunciò i pericoli impliciti in un atteggiamento intollerante, giacché il dissenso, quando è sottoposto a vessazioni, può mutarsi in una destabilizzante opposizione politica. Il pensatore inglese ritornò nel 1692 sull’argomento, precisando come per la fede non esista la dimostrabilità tipica delle scienze, pertanto posizioni diverse possono essere sostenute da ragionamenti ugualmente apprezzabili, di conseguenza ogni “verità” è tale per qualcuno ma non è la verità in senso lato13. Locke, dunque, raccomandava un atteggiamento tollerante verso tutti ad eccezione di atei e da cattolici14. Locke, insieme ad Hume, fu un esponente di spicco del contrattualismo, le cui origini risalgono alla Magna Charta15 e al giusnaturalismo, sorto nel 1625 col De jure belli ac pacis di Ugo Grozio. Il Pensatore olandese sosteneva l’esistenza di norme di diritto naturale, anteriori alla legge positiva, le quali offrivano modelli imprescindibili. Il pensiero di Grozio dette fondamento umano al potere, inoltre vincolò l’attività del giurista a principi universali, al di fuori dei quali non esisteva legge ma arbitrio. Fra i diritti naturali, originali e inalienabili, vi erano quelli alla vita, alla libertà e | 279 alla proprietà. I contrattualisti, partendo da simili presupposti, ritenevano gli aggregati sociali, degli artifici, dovuti a una sorta di convenzione stipulata fra i vari soggetti. Lo stato, afferma Locke16, è il risultato di tale contratto, la sua funzione è quella di assicurare a tutti i diritti naturali, a loro volta i sudditi rinunciano ad alcune prerogative, insite nello stato di natura, come quella di farsi giustizia da soli. Giusnaturalismo e contrattualismo ebbero l’effetto di laicizzare il concetto di stato traslandolo da un piano trascendente a un contesto immanente. Ai contributi degli autori inglesi si unirono quelli di altri pensatori17, sollecitati spesso dalla polemica sollevata dall’intellighenzia borghese contro i nobili, reputati moralmente degradati, coperti “a un tempo […] d’infamie e di dignità”18. La citazione ora riportata è di Montesquieu, uno dei principali esponenti dell’Illuminismo, col quale il concetto di tolleranza conobbe un ulteriore sviluppo e una capillare diffusione. Basti pensare a Voltaire che nelle Lettere filosofiche o Lettere inglesi esaltò l’Inghilterra per essere la terra dove la pluralità di fedi rappresentava una garanzia per la pace e libertà. “Se in Inghilterra – scriveva - esistesse una sola religione, si dovrebbe aver paura del dispotismo; se ve ne fossero due, si azzannerebbero alla gola; ma [essendocene trenta tutti …] vivono in pace e felici!”19 Nel Trattato sulla Tolleranza del 1763 inquadò l’argomento in un’ottica jusnaturalistica. Da ciò ne derivò che la norma non può prescindere dalla legge naturale: “Il diritto umano non può essere fondato in alcun caso che sul diritto della natura; ed il grande principio, il principio universale dell’uno e dell’altro, è in tutta la terra il seguente: non fare ciò che non vorresti fosse fatto a te”20. Di conseguenza l’intolleranza è un abominio: “Il diritto all’intolleranza è […] assurdo e barbarico: è il diritto delle tigri, ed anzi più orribile di questo, poiché le tigri divorano per mangiare, mentre noi ci sterminiamo [per …] semplici paragrafi”21. Ed ancora: “E’ chiaro che qualsiasi individuo il quale perseguita un uomo, suo fratello, per il solo fatto che non è della sua opinione, è un mostro”22. Nel Dizionario filosofico, fu ugualmente esplicito giungendo a definire la tolleranza la prima legge naturale: “Che cos’è la tolleranza? E’ l’appannaggio dell’umanità. Noi siamo tutti pieni di debolezze e di errori: perdoniamoci a vicenda le nostre sciocchezze, questa è la prima legge di natura”23. La matrice jusnaturalistica, fu presente in tutti gli Illuministi, da Holbach24 a Rousseau25, da Cesare Beccaria a Pietro Verri26 e trovò una propria realizzazione giuridica con la Rivoluzione Francese e la pubblicazione de I diritti dell’uomo e del cittadino che all’articolo 10 recitavano: “Nessuno deve essere molestato per le sue opinioni; anche religiose, posto che la loro manifestazione non turbi l’ordine stabilito dalla legge”. La Restaurazione non riuscì a riportare indietro le lancette della storia, ma nel corso dell’Ottocento il quadro complessivo della società occidentale mutò radicalmente. Le grandi rivoluzioni della fine del secolo precedente avevano dischiuso orizzonti nuovi e, al di là dell’Atlantico, si era formato un soggetto politico che destava grande interesse: gli Stati Uniti che, dopo pochi anni dalla nascita, con la dottrina Monroe, reclamavano l’egemonia su un intero continente27. La giovane potenza americana fu oggetto di studio da parte di Alewxis de Tocqueville, autore di un saggio fondamentale: Democrazia in America. Lo studioso francese riteneva che la giovane società statunitense avesse un limite nell’utilitarismo e nella tirannia della maggioranza perché quest’ultima tendeva ad essere autoreferenziale e si considerava soggetto unico di libertà, di conseguenza era spesso oppressiva ed incline al conformismo ideologico. La libertà d’opinione era invece “il sale di un governo” giacché pareri discordi, messi a confronto, permettevano la crescita della società stessa. Da ciò derivava l’importanza dei partiti politici che concorrevano a formare la complessità del reale”28. La diversità di pensiero era l’unica cura contro l’omologazione, prodotta e dal peso dell’opinione pubblica, ergo dal giogo della consuetudine. Nel 1859 John Stuart Mill nel saggio Sulla libertà rielaborò le tematiche di de Tocqueville, in 280 | un’ottica utilitaristica. Scopo della politica era cercare di realizzare il massimo benessere possibile per il più esteso numero di individui. Ma chi erano questi individui soggetti di benessere? La risposta era scontata: il gruppo egemone col quale s’identificava la società. La democrazia in America era solo per i bianchi, gli americani, i cittadini a pieno titolo, il resto della popolazione, uomini di colore in stato di schiavitù e amerindi, erano considerati o fonte di energia o antagonisti da eliminare. D’altra parte il capitalismo trionfante e famelico stava imponendo le sue logiche; la crescita, l’espansione necessitavano di nuovi mercati, di materie prime a basso costo, di aree da sfruttare, di spazio, per questo vi fu la smania di conquiste, la fame di territori, la corsa agli imperi coloniali29. Necessitavano, però, argomentazioni per motivare lo sfruttamento spietato dei popoli e dei territori sottomessi che furono trovate nell’opera civilizzatrice dell’Occidente cristiano. Più tardi, però, se ne trovò un’altra, più forte, incontestabile, partorita dal positivismo, l’unica impronta di pensiero sostenibile dal capitalismo selvaggio. Ed ecco che nei docili atenei della vecchia Europa, si cercò di confezionare il razzismo su basi pseudoscientifiche, di cui maestro fu Robert Knox della scuola di anatomia di Edimburgo. Egli iniziò a sentenziare che nelle persone di colore il tessuto celebrale era più scuro e fibroso, il sistema nervoso meno evoluto. Ebbe numerosi emuli come il francese Arthur De Gobineau, autore del celebre saggio Essai sur l’inégalité des races humaines. Egli fu il teorico della superiorità della razza bianca30, le altre, le inferiori erano destinate a scomparire come accadeva in Sud Africa con i Boscimani e gli Ottentotti31. Uomini, donne, bambini, vennero così associati ad animali esotici, divennero attrative da portare per piazze e città, soggetti di esposizioni etnologiche ed antropologiche, fenomeni da baraccone, atti a suscitare la curiosità morbosa di migliaia e migliaia di visitatori. Scrive Laura Putti, ricordando un’importante mostra, sull’argomento tenuta a Parigi nel 2011 - 201232: “Già nel 1550 gli indiani della tribù Tupinamba sfilarono a Rouen davanti a Enrico II. Il successo fu immenso, la gente accorreva, qualcuno fiutò l’affare. Nacquero così gli “zoo umani”, le fiere, i circhi, i freak show, (nel 1932 sui deformi, l’americano Tod Browning girerà proprio freak, divenuto film cult); i selvaggi, gli uomini esotici vengono mostrati alle Esposizioni universali e coloniali. Gli zulù a Londra, gli aborigeni a Parigi, i circhi Barnum e Bailey negli Stati Uniti. La diversità diventa spettacolo, e il “selvaggio” garanzia del tutto esaurito. Inizia il razzismo scientifico con un esempio per tutti: la “venere ottentotta” dal sesso smisurato […] è prima sfruttata da un sudafricano come lei (ma bianco); poi morta di stenti e sifilide, sezionata e il suo calco di gesso esposto al pubblico”33. I selvaggi in gabbia, gli esemplari delle razze inferiori, destinate ad estinguersi per l’affermazione della civiltà superiore dei bianchi, divennero garanzia di successo per le grandi esposizioni nazionali e internazionali. A Chicago nel 1893 accorsero torme di curiosi a vedere gli esquimesi, “così carini”, le perverse amazzoni dal seno nudo o una perfetta riproduzione di un villaggio algerino, ove donne discinte si esibivano nella danza del ventre34. A Glasgow nel 1888 vi furono quasi sei milioni di visitatori, attratti da baiadere e fachiri. Anche l’Italia di fine secolo, proiettata verso imprese coloniali non fu da meno ed ecco a Torino nel 1884 gli “assabesi” e i dancali, a Palermo nel 1892 la ricostruzione dei suk del Cairo e a Milano nel 1906, altri selvaggi. Erano così pittoreschi che si pensò di trasportarli al Quirinale per deliziare la corte, peccato che morirono per strada35. Le conseguenze di questa linea di pensiero furono massacri e genocidi, dimenticati poi dalla storia e annotati frettolosamente dalla cronaca di allora che spesso sottolineava l’importanza dello “spazio vitale” teorizzato da Friedrich Ratzel (1891) 36. Insomma, fino al secondo conflitto mondiale, vi fu una sola cultura, quella bianca euro-americana il resto era considerato sotto cultura, cultura marginale o periferica, secondo quanto era stato sentenziato per gran parte dell’Ottocento e oltre37. Con la fine del secondo conflitto mondiale, l’avvento del processo di decolonizzazione, la nascita delle Nazioni Unite, vi fu un cambiamento radicale della situazione. Opere come i Tristi | 281 tropici di Claude Lévi – Strauss38, dense “di suggestioni roussoiane”, con la “figura espiatoria” dell’antropologo, divennero dei best – seller e il concetto di parità delle culture e dell’importanza della diversità si affermarono definitivamente, tanto che nell’atto costitutivo dell’UNESCO (16 novembre1945) la “feconda diversità delle culture” fu posta come un valore assoluto. Sette anni più tardi 1952 l’United Nations Educational Scientific and Cultural Organization, affrontò questo argomento, incaricando proprio Claude Lévi-Strauss di elaborare un studio sulla diversità culturale. Fu così pubblicato Razza e storia39, dove l’antropologo distingueva la “diversità in sé” dai contenuti delle varie diversità dettati dalla storia. Se la prima era una risorsa da conservare e da promuovere non era detto che i secondi dovessero essere perpetuati, potevano, infatti, essere superati, trasformati, elaborati attraverso processi d’integrazione. In pratica la difesa della diversità non doveva ostacolare il mutamento. La stessa UNESCO, dopo aver definito nel 1982 a Città del Messico la cultura come: “l’insieme dei tratti distintivi, spirituali e materiali, intellettuali e affettivi che caratterizzano una società o un gruppo sociale, che inglobano, oltre alle arti e alle lettere, i modi di vita, i diritti fondamentali dell’essere umano, i sistemi di valori, le tradizioni e le credenze”, si prefisse come obiettivi, non solo di salvaguardare le diversità culturali, ma anche d’interessarsi al dialogo interculturale e ai processi di relazione fra le varie culture. Intanto l’accelerarsi dei processi di migrazione ponevano sempre di più il problema della convivenza e del confronto di culture diverse, tanto che fu affrontato anche dal pontefice Giovanni Paolo II nel celebre discorso tenuto all’ONU il 5 ottobre del 1995. Per Karol Jozef Woityla “ogni cultura [aveva] il diritto di essere rispettata”, la differenza non doveva essere considerata una minaccia ma un’opportunità per meglio comprendere il “mistero dell’esistenza umana”40. L’UNESCO, sotto la presidenza del giapponese Koichiro Matsuura (1999 – 2009), ritornò più volte sull’argomento, nel 2001 con la Dichiarazione universale sulla protezione e la promozione della diversità delle espressioni culturali e nel 2003 facendo stipulare ai paesi membri la Convenzione per la salvaguardia del patrimonio culturale immateriale, che rappresentava un’estensione del concetto stesso di patrimonio culturale. L’anno successivo fu poi pubblicato il Rapporto mondiale sulla libertà culturale in un mondo diversificato, un documento particolarmente importante perché insiste sull’opportunità di agire sul piano legislativo per la difesa della diversità e della libertà culturale. Nel 2005, infine, fu completa la dichiarazione del 2001 e stipulata un’ulteriore convenzione che, oltre ad insistere sulla protezione della multicultura, incoraggiava lo sviluppo del dialogo interculturale, considerato un punto irrinunciabile per il futuro dell’umanità41. Siffatta sottolineatura sorgeva dalla preoccupazione per una tendenza contraria che si stava delineando in diversi paesi, dove particolari situazioni socio-politiche comportavano orizzonti di chiusura, in nome di una specificità culturale da salvaguardare. Tale problema rischiava, addirittura, di mettere in discussione i principi della Dichiarazione Universale dei Diritti Umani, come affermava con forza il pontefice Benedetto XVI nel suo intervento all’Assemblea Generale dell’ONU nel 200842. La multicultura e l’intercultura rappresentano, pertanto, tematiche di estrema attualità che suscitano un continuo dibattitto perché gli approcci possibili sono diversi anche se non necessariamente contrastanti. La multicultura altro non è che la convivenza fra culture diverse, convivenza che può implicare processi di scambio vicendevole e quindi di arricchimento reciproco, fenomeno che è avvenuto più volte nella storia, basti pensare all’Ellenismo, ove l’incontro fra culture diverse implicò pure una riflessione sulla tolleranza religiosa: la così detta “filantropia”, intesa da Antioco II di Siria, Tolomeo II Filadelfo d’Egitto ed Alessandro II d’Epiro come accoglimento di qualsivoglia religione43. Se laicizziamo l’assunto, sostituendo il termine “religione” con “cultura” la posizione odierna è simile. La multicultura è considerata in tale maniera da Otto Filtzinger44 che la definisce l’incontro delle diversità che rimangono tali; Alessio Surian45 precisa, inoltre, il carattere descrittivo, analiti- 282 | co, storico, sociologico della multicultura, invece l’interculturalità ha aspetti prescrittivi, programmatici e politici e si esplica soprattutto sul piano didattico e pedagogico. Essa tende, a superare, a eliminare e a integrare le differenze. Molti intendono, perciò, la multicultura una situazione transitoria di confronto e convivenza che si evolve poi, attraverso l’integrazione, nell’intercultura. Il processo d’integrazione, avviene attraverso un’opera di decostruzione, spesso su base etnografica, degli aspetti peculiari di una cultura, insistendo sul carattere contingente, variabile, mutevole indefinito, instabile della differenza. Vi è in questo caso l’incapacità di collocare la propria analisi in un panorama più vasto che permetta di contestualizzare il ruolo della differenza nella società. Siamo cioè agli antipodi di quanto affermava, nel corso di un’intervista televisiva il sociologo polacco Zygmunt Bauman46: “Penso egli diceva -che la cosa più eccitante, creativa e fiduciosa nell’azione umana sia […] il disaccordo, lo scontro tra diverse opinioni, tra diverse visioni del giusto, dell’ingiusto, e così via. Nell’idea dell’armonia e del consenso universale, c’è un odore davvero spiacevole di tendenze totalitarie, rendere tutti uniformi, rendere tutti uguali. Alla fine questa è un’idea mortale, perché se davvero ci fosse armonia e consenso, che bisogno ci sarebbe di tante persone sulla terra? Ne basterebbe una: lui o lei avrebbe tutta la saggezza, tutto ciò che è necessario, il bello, il buono, il saggio, la verità. Penso che si debba essere sia realisti che morali. Probabilmente dobbiamo riconsiderare come incurabile la diversità del modo di essere umani”. D’altra parte l’atteggiamento conservativo di una certa tendenza multiculturale tende a realizzarsi attraverso il relativismo di una “tollerante indifferenza” che mira a un mero stato di convivenza, agendo soprattutto sul piano normativo. In siffatta visione la “differenza” è un qualcosa di definitivo e di non modificabile giacché se ciò accadesse verrebbe meno il fattore identificante, ergo la differenza diventa ragione di sopravvivenza. Da qui il diritto alla differenza che viene promossa e regolamentata attraverso la norma. Così facendo si configura, tuttavia, una società chiusa, immutabile, una sorta di visione utopistica improntata a uno stato teorico di giustizia. In questa società immutabile nella sua perfezione, vigerebbe la convivenza rispettosa di culture diverse, senza che queste abbiano la possibilità e la capacità di modificarsi reciprocamente. In realtà si creerebbe un grande zoo umano, ove le specie più disparate si spartiscono pacificamente un lembo di territorio, grazie alle sbarre e alle gabbie che impediscono loro qualsiasi contatto. Se queste ultime dovessero, però, venir meno la coesistenza rischierebbe di cadere immediatamente e alla pluricità di soggetti si sostituirebbe l’egemonia di uno solo, il più forte e numeroso. Ambedue le posizioni hanno il difetto di non tener conto come la partecipazione a una sfera culturale non sia identica per tutti, ma varia da individuo ad individuo; le culture non sono pacchetti standard che uno si carica sulle spalle al momento della nascita e che si porta dietro per tutta la vita per poi passarlo alle nuove generazioni. Il patrimonio culturale è simile, per certi versi a quello immobiliare, è oggetto di mutamenti continui, in parte viene ceduto ad altri e a sua volta è sostituito con apporti assunti dall’esterno, per tanto è sottoposto a continue fluttuazioni e modificazioni. I fautori del multiculturalismo, temendo la conflittualità culturale, cercano di prevenirla con un dispositivo giuridico che consenta la conservazione per un tempo indefinito della diversità. Al contrario i fautori dell’integrazione, perseguono un progetto che rischia di scadere in una “ibridazione forzata” e ingiustificata di culture diverse. Invece di elaborare progetti, di anticipare, modellare, imporre una società del domani, si dovrebbe essere più attenti a ciò che sta accadendo oggi e cercare di facilitare sia i fenomeni d’integrazione che di confronto culturale, processi che si sviluppano parallelamente, spontaneamente e indipendentemente dalla volontà politica. Cosicché il multiculturalismo non dovrebbe più essere un modello ma una realtà di convivenza, all’interno della quale si svolgono processi più o meno | 283 importanti d’integrazione. Nello studiare la globalizzazione culturale sia Roland Robertson47 che Zygmunt Bauman48 hanno coniato un neologismo assai pertinente: glocalizzazione. Con questo concetto si vuol coniugare due termini antinomici “globalizzazione” e “localizzazione”, evidenziando come culture diverse possono sussistere e dar luogo a fenomeni di osmosi in un pluralismo di offerte impostate su una mutua comprensione e rispetto di valori condivisi. Pertanto intercultura e multicultura possono rappresentare le facce diverse di una stessa medaglia49, valida comunque per le attese del terzo millennio50. Nel frattempo dobbiamo prendere atto che la multiculturalità ha fornito spunti interessanti, validi per risolvere, in parte, i molti problemi posti dal mondo globalizzato, come è testimoniato dai rapporti dell’UNESCO. In primo luogo i saperi delle comunità autoctone possono offrire delle indicazioni importanti in tema di gestione di risorse ambientali, di sviluppo sostenibile e di rispetto ambientale. Culture strutturatesi in sinergia con un ecosistema possono dire molto su un modello di produzione che abbia scarso impatto ambientale, che conservi la diversità biologica e che eviti sprechi. In secondo luogo il favorire la diversità culturale aiuta ad accrescere il livello di autodeterminazione delle minoranze marginalizzate. “Gli sforzi tesi a consolidare il tessuto nazionale negando l’esistenza di differenze culturali producono [solo] shock di ritorno […]. Per costruire delle società coese è necessario concepire e mettere in opera politiche che garantiscano il rafforzamento dell’autonomia e la partecipazione politica di tutti i gruppi e di tutti gli individui. I regimi di condivisione del potere, come la democrazia consensuale, devono essere completati da politiche di rafforzamento dell’autonomia nel campo dell’educazione, della cultura e dei mass media”51. Infine “La divergenza sulle memorie è stata causa di numerosi conflitti. Il dialogo interculturale può contribuire con successo alla costituzione di un fondo di memoria comune, in cui sarebbero riconosciuti gli errori commessi e in cui le memorie antagoniste potrebbero essere oggetto di dibattiti. L’elaborazione di una narrazione storica comune può rivelarsi fondamentale nelle strategie di prevenzione dei conflitti e nelle gestioni delle fasi post-conflitto, sanando piaghe di “un passato che non passa”52. Ne sono esempio le Commissioni di verità e di riconciliazione del Sudafrica e i processi di riconciliazione nazionale del Ruanda. Nella storia, momenti multiculturali, incontri di civiltà, produssero la nascita di nuove culture e un’innovazione nel campo del pensiero. Ho già accennato dalla convergenza fra Oriente ed Occidente, dovuto alle conquiste di Alessandro il Macedone che portò al sorgere dell’Ellenismo. Con modalità diverse, l’avvicinamento fra culture fu fondamentale per la nascita dell’Europa moderna. Nel XIII secolo, grazie alla corte imperiale di Federico II, si ebbe una sinergia fra cultura cristiana, islamica ed ebraica53 che gettò le fondamenta, dopo la parentesi drammatica del Trecento, per il fiorire dell’Umanesimo e del Rinascimento. Il multiculturalismo di oggi potrebbe, perciò, essere il prologo per una nuova pagina di umanesimo e per un rinascimento globale nel pianeta del terzo millennio. References N. ABBAGNANO, Dizionario di filosofia, Torino 1968. M. ADRIANI, Tolleranza, in Enciclopedia delle religioni, vol. V, Firenze 1973. R. H. BAINTON, La Riforma protestante, Torino 1958. Z. BAUMAN, Paura liquida, Bari 2009. Z. BAUMAN, Globalizzazione e glocalizzazione, Roma 2005. Z. BAUMAN, Società individualizzata, Bologna 2001. 284 | U. BECK, Che cosa è la globalizzazione, Roma 1999. B. BORSATO, L’alterità come etica. Una lettura di E. Lévinas, Bologna 1995. T. CASALONGA J. O. GRATIOT R. SALMON, Sauver deman, Paris 2008. C. DI SANTE, Responsabilità. L’Io per l’Altro, Roma 1996 Dizionario di antropologia, a.c. di U. FABIETTI e F. RIMOTTI, Bologna 2001. Dizionario di filosofia, a. c. di P. ROSSI, Firenze 1999. O. FILTZINGER, I servizi sociali e educativi di fronte alla sfida della multiculturalità, in “Educazione interculturale”, 2 (2), 2004. O. FILTZINGER, Politica migratoria in Germania e integrazione degli immigrati, in “Studi emigrazione” 38 (144) 2001. S. GINZBERG, Uomini e zoo. La fabbrica del razzismo, in “La Repubblica”, 27 Novembre 2011. Gli Illuministi Francesi, a. c. di P. ROSSI, Torino 1977. P. MIQUEL, Les guerres de religion, Paris 1980. C. LEVI - STRAUSS, Razza e storia e altri studi di antropologia, Torino 1967. C. LEVI - STRAUSS, Tristi tropici, Milano 1960. G. L. MOSSE, Il razzismo in Europa, Bari 1985. C. NATALIZIA, Religione e secolarizzazione nel sistema internazionale. La trasformazione di un sistema politico, Roma 2011. N. PERRONE, Progetto di un impero 1823 L’annuncio dell’egemonia americana infiamma la borsa, Napoli 2013. L. PRUNETI, Radici lontane e recenti del terzo millennio e orizzonti possibili, in Etica, coesione e solidarietà: valori per il terzo millennio?, a. c. di A. FOCCILLO, Roma 2011. L. PRUNETI, Riflessioni sulla crisi attuale, le sue origini e un nuovo possibile modello socio economico, in AA. VV., L’economia egoista. Un nuovo modello economico è possibile?, Roma 2013 L. PUTTI, L’Europa in fila davanti alle gabbie del buon selvaggio, in “La Repubblica”, 27 Novembre 2011. E. RAGIONIERI, La storia politica e sociale, in Storia d’Italia dall’Unità a oggi, vol. IV, tomo III, Torino 1976. R. ROBERTSON, Globalization. Social theory and global culture, London 2000. A. ROTONDO’, Tolleranza, in L’Illuminismo, dizionario storico, Bari 1997. A. SURIAN, L’educazione interculturale in Europa, Bologna 1998. C. VIVANTI, Le guerre di religione nel Cinquecento, Roma – Bari 2007. www.unesco.org/fr/world-reports/cultural-diversity www.pass.va/content/scienzesociali/it/events/2009-13plenarysession2011.html (Endnotes) 1 Cfr. C. VIVANTI, Le guerre di religione nel Cinquecento, Roma – Bari 2007. 2 Cfr. P. MIQUEL, Les guerres de religion, Paris 1980; C. NATALIZIA, Religione e secolarizzazione nel sistema internazionale. La trasformazione di un sistema politico, Roma 2011. 3 N. ABBAGNANO, Dizionario di filosofia, Torino 1968, p. 506. 4 R. H. BAINTON, La Riforma protestante, Torino 1958, p. 194. 5 Erano i seguaci del teologo Jacobus Arminius | 285 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 29 30 31 32 33 34 35 36 37 38 39 40 Dottrina sviluppata da Tommaso Erasto (1524 – 1583) A. ROTONDO’, Tolleranza, in L’Illuminismo, dizionario storico, Bari 1997, p. 71. A. ROTONDO’, Tolleranza … cit, p. 68. R. H. BAINTON, La Riforma protestante … cit, p. 198. Ibidem, p. 203. Così nella prima Lettera sulla Tolleranza del 1689. Terza Lettera sulla Tolleranza, 1692. Prima Lettera sulla tolleranza, 1689. La cui emancipazione si ebbe solo nel 1829. A. ROTONDO’, Tolleranza … cit,, p. 698. La Magna Charta fu promulgata da Giovanni d’Inghilterra a Runnymede, il 15 Giugno del 1215. Trattati sul governo (1690). Gli Illuministi Francesi, a. c. di P. ROSSI, Torino 1977, p. 19. Espris des lois, XVIII, 7. Gli Illuministi Francesi … cit, p. 71. Ibidem, p. 110. Ibidem, p. 110. U. NICOLA, Antologia di filosofia … cit, p. 296. Gli Illuministi Francesi, … cit, p. 112. Ibidem, p. 294. Ibidem, p. 345. Ibidem, p. 41. Cfr. N. PERRONE, Progetto di un impero 1823 L’annuncio dell’egemonia americana infiamma la borsa, Napoli 2013. Dizionario di filosofia, a. c. di P. ROSSI, Firenze 1999, pp. 200 – 2001. E. RAGIONIERI, La storia politica e sociale, in Storia d’Italia dall’Unità a oggi, vol. IV, tomo III, Torino 1976, p. 1744 e segg. Cfr. G. L. MOSSE, Il razzismo in Europa, Bari 1985. L. PRUNETI, Radici lontane e recenti del terzo millennio e orizzonti possibili, in Etica, coesione e solidarietà: valori per il terzo millennio?, a. c. di A. FOCCILLO, Roma 2011, p. 78. L’invention du sauvage, Paris, Musée Quay Branly, 29 Novembre 2011 – 3 Giugno 2012. L. PUTTI, L’Europa in fila davanti alle gabbie del buon selvaggio, in “La Repubblica”, 27 Novembre 2011. L. PRUNETI, Riflessioni sulla crisi attuale, le sue origini e un nuovo possibile modello socio economico, in AA. VV., L’economia egoista. Un nuovo modello economico è possibile?, Roma 2013, pp. 45 – 46. S. GINZBERG, Uomini e zoo. La fabbrica del razzismo, in “La Repubblica”, 27 Novembre 2011. Dizionario di antropologia, a.c. di U. FABIETTI e F. RIMOTTI, Bologna 2001, p. 219. L. PRUNETI, Riflessioni sulla crisi attuale … cit, p. 46. Cfr. C. LEVI - STRAUSS, Tristi tropici, Milano 1960. C. LEVI - STRAUSS, Razza e storia e altri studi di antropologia, Torino 1967, pp. 96-144. Cfr. C. DI SANTE, Responsabilità. L’Io per l’Altro, Roma 1996; B. BORSATO, L’alterità come etica. 286 | 41 42 43 44 45 46 47 48 49 50 51 52 53 Una lettura di E. Lévinas, Bologna 1995. www.unesco.org/fr/world-reports/cultural-diversity www.pass.va/content/scienzesociali/it/events/2009-13plenarysession2011.html M. ADRIANI, Tolleranza, in Enciclopedia delle religioni, vol. V, Firenze 1973, pp. 1800 – 1801. O. FILTZINGER, I servizi sociali e educativi di fronte alla sfida della multiculturalità, in “Educazione interculturale”, 2 (2), 2004, pp. 157 – 164; O. FILTZINGER, Politica migratoria in Germania e integrazione degli immigrati, in “Studi emigrazione” 38 (144) 2001, pp. 877 – 893. Cfr. A. SURIAN, L’educazione interculturale in Europa, Bologna 1998. Cfr. Z. BAUMAN, Società individualizzata, Bologna 2001; Z. BAUMAN, Paura liquida, Bari 2009. Cfr. R. ROBERTSON, Globalization. Social theory and global culture, London 2000. Cfr. Z. BAUMAN, Globalizzazione e glocalizzazione, Roma 2005. Cfr. U. BECK, Che cosa è la globalizzazione, Roma 1999. Cfr. T. CASALONGA J. O. GRATIOT R. SALMON, Sauver deman, Paris 2008. www.unesco.org/fr/world-reports/cultural-diversity www.unesco.org/fr/world-reports/cultural-diversity Ne è testimonianza diretta la ventata di tolleranza religiosa che penetrò la cultura dell’epoca come testimonia il racconto delle “tre anella”, presente nel Novellino, nel Decameron e nello Shevet Jeuda di Salomon Ben Virga, dove è proposta la tesi dell’equivalenza delle religioni, perché “le fedi sono tre: il padre che le diede sae la migliore, e li figliuoli, ciò siamo noi, ciascuno si crede avere la buona”. Come il Soldano, avendo mestiere di moneta, volle cogliere cagione ad uno Iudeo, in Novellino e Conti del Duecento, a. c. di S. LO NIGRO, Torino 1968, p. 174; cfr. Decameron I, 3. | 287 288 | Tomasz Rakoczy Catholic University of Lublin in Stalowa Wola [email protected] Protection of Christian values in Polish normative acts on the means of social communication Abstract Catholics have the right to demand protection of values according to which they live, also in public life. Today, means of social communication are the place of mutual communication. So the question arises whether the valid normative acts which regulate the means of social communication, i.e. the Act on radio and television broadcasting and, to a lesser extent, Press Law, guarantee sufficient protection of Christian values. As the analysis shows, such guarantee exists only indirectly and takes place in three areas. Firstly, it may be found in the presence of religious programmes in the radio and television. Secondly, it is present in the internal programme construction, where the Polish broadcaster obliges broadcasters to respect the Christian system of values and to respect religious beliefs. Finally, protection of Christian values may also be found in indirect requirements, such as the registration of a press title, advertising construction and transmission time. The Polish law leaves for discussion the catalogue of programmes of major importance for society, to which one can enter programmes promoting Christian values. Interesting, yet less practical form is the status of social broadcaster. Keywords: Christian system of values, press title registration, National Broadcasting Council, advertising, social broadcaster 1. Introducion Religious identity of a person is an essential element of his/her dignity. Thus, religious beliefs, besides political or cultural views, are the object of legal protection. It is worth posing a question how the Republic of Poland protects the values with which its citizens, most of them being Catholic, identify. This question is worth addressing to the contemporary areopagus of the means of social communication. The Catholic Church, and other churches to follow, demand the right to be present in these important communication tools. Yet, it cannot be the presence bought at all costs. Thus, at the crossroads of these two vectors, the question arises whether Christian values are protected in the means of social communication. As the analysis of concordats executed with the Holy See shows, the problem is fairly important, since in these agreements the protection of religious feelings is guaranteed as one of the elements of the right of the Church to the means of social communication. Such guarantees have been included in the Concordats signed between the Holy See and Lower Saxony, Spain, Croatia, Thuringia and Lithuania (Rakoczy, The Right, 2005, pp. 155-161). The Polish Concordat of 1993 does not include such guarantees, though. Hence, there is a question whether in Polish normative acts on the means of social communication, Christian values enjoy protection and whether it is sufficient. In answer to this question, three groups of legal guarantees will be analysed: the right for the Catholic Church’s own programmes to be present in radio and television broadcasting; protection of Christian values in the requirements of the internal programme construction; other requirements concerning the function of the means of social communication which can include the registration of a press title, con- | 289 struction and transmission time of advertisements, possibility of entering programmes promoting Christian values into the catalogue of programmess of social importance, or, finally, the possibility to obtain the status of a social broadcaster. 2. The position of churches in the public mission of radio and television broadcasting Public radio and television broadcasting, pursuant to article 21(1) of the Act of 29 December 1992 on radio and television broadcasting (hereinafter referred to as “the Broadcasting Act”) is to pursue a public mission. It is to offer the entire community and its individual groups a variety of programmes pluralistic in character. So the legislator notices that Polish society is not a uniform formation and that it is composed of groups, and each of the groups has the right to expect broadcasts of programmes interesting for them. Consequently, public broadcasters are obliged to respect the interests and expectations of each of the groups. Thus, it is reasonable to enter into agreements between the units of public radio and television broadcasting and the subjects representing the interests of particular social groups. The presence of programmes of the Catholic Church in public radio and television broadcasting is guaranteed by Article 20 of the Concordat with Poland (Journal of Laws 1998, No. 51, item 318). Detailed arrangements are included in agreements made between TVP SA [Polish Television JointStock Company] and PR SA [Polish Radio Joint-Stock Company] and the Secretariat of the Polish Bishops’ Conference. These agreements are updated (Rakoczy, The Right, 2005, pp. 145-148) and have also been entered into programme schedules. Acting pursuant to the Regulation of 27 April 2011 on the terms of submitting and the scope of financial and programme schedules, operations to pursue the public mission of public radio and television broadcasting (Journal of Laws 2011, No. 99, item 580), the National Broadcasting Council submitted its entire programme (including the described programmes) for public consultation (National Broadcasting Council, Consultations, Retrieved June 24, 2013). These proposals include financial plans and programme schedules for 2014, prepared by 17 joint-stock companies of public means of social communications. For the purpose of this article, Channel I and Channel II of TVP SA and Channel I of PR SA will be analysed. As for Channel I of TVP SA, among information programmes there is a weekly 50-minute broadcast “Between Heaven and Earth” scheduled for one hour. Whereas among broadcast journalism: a transmission of the Angelus prayer, the programme “Word for Sunday”, a transmission of Church representatives’ Address – five times a year. Besides, there is a weekly transmission of the Holy Mass, the annual Christmas Midnight Mass and once a year a transmission of the Way of the Cross. There is also a one-time 30-minute transmission of the Lednica event. In the area of cultural programmes, there is a 50-minute transmission of the Papal Day Concert once a year and the programme “Miraculous Places. Great Sanctuaries” – a 25-minute programme once a week. Among educational programmes there is a place for “Seed”, a weekly 25-minute broadcast. To sum up the transmission time, the National Broadcasting Council distinguished, for its own purpose, the category of “programmes addressing the religious needs of recipients” and indicated that they take 167 hours and 42 minutes, which amounts to 2 % of the total transmission time. Among them, most of the transmission time is taken by broadcast journalism, that is 1.11 %. Out of curiosity, it is worth noting that broadcasts addressed to the youth take 173 hours and 35 minutes, which also amounts to 2 % of the total transmission time. In Channel II of TVP SA, in the information slot, there are series of 20-minute weekly Catholic programmes, a 5-minute weekly programme “Word for Sunday”, 20-minute weekly ecumenic programmes, a 50-minute transmission of prayers of Jewish communities once a year, seven times a year 50-minute transmissions of masses of the Churches associated in the Polish Ecumenic Council, as well as twice a year the Christmas and Easter Primate’s Address. Thus, it is estimated 290 | that the programmes in Channel II of TVP SA “addressing the religious needs of recipients” will take 53 hours and 50 minutes in total, which will amount to 0.6% of the broadcast time. This indicated type of programme, however, is not scheduled in the slot for broadcast journalism, culture and education. In the programme schedule of PR SA in the information slot there are the following programmes scheduled “addressing the religious needs of recipients”: a 10-minute programme “Churches in Poland and in the World”, a 15-minute Radio Vatican News, a one-hour transmission of the Holy Mass, a 4-minute programme “Thoughts for a Good Day” and a 20-minute programme “Imprints on the Sand”. As it can be concluded from this account, the programmes “addressing the religious needs of recipients” would take 201 hours annually, which would amount to 2.3 % of transmission time. Programmes of this type are not scheduled in the slot for broadcast journalism, culture and education. In the definitions of the scheduled programmes we can find that the programme “Thoughts for a Good Day” will be a daily, morning feature talk. It is a short form of broadcast journalism, which is to help the listener start a day, encourage morning reflection on important matters, such as time passing, good, evil, etc. By undertaking such topics and concepts, the programme supports, and by its meaning, encourages respecting the Christian system of values, taking as its basis the universal principles of ethics (Article 21(2) p. 6). The programme came into being by the Agreement of 2008 between PR SA and the Secretariat of Polish Bishops’ Conference, whereas the purpose of the programme “Imprints on the Sand” is to develop culture, science and education, with particular emphasis on Polish intellectual and artistic achievements. It is also created on the basis of the Agreement of 2008 between PR SA and the Secretariat of Polish Bishops’ Conference. 3. Obligation to respect the Christian system of values In Article 18 of the Broadcasting Act, the legislator included a catalogue of tasks set to all broadcasters (public and private), stipulating general clauses. Among them, the legislator rules that “Programmes or other transmissions should hold in esteem recipients’ religious beliefs, and the Christian system of values, in particular”. A similar in content norm was entered in Article 21(2) of the Broadcasting Act with reference to public radio and television broadcasting. It is ruled in it that “programmes and other services of public radio and television broadcasting should respect the Christian system of values taking as its basis the universal principles of ethics” (Matlak, Radio, 2008, p. 181). While analyzing the above legal principles, one should pay attention to the following elements: the terms: “Christian system of values” and “religious beliefs of audiences”, the difference between the indicated terms, expressed by the words “in particular” and, finally, the importance of the word “respect” or else “esteem”. 3.1. Programmes or other transmissions as space of respect Broadcasters are obliged to show respect (or esteem) towards the Christian system of values in programmes and other transmissions. Thus, the place for expressing that respect or admiration are programmes and other transmissions. Unfortunately, the glossary in the Act defines only a programme. Pursuant to Article 4(2), a programme is a sequence of images with or without sound (an audiovisual programme), or a sequence of sounds (a radio programme), constituting, in terms of its contents, form, purpose or authorship, a separate entity in a, created by the media service provider, programme or catalogue of programmes delivered to the public within the framework of audiovisual medial on demand service, further called “a catalogue”. However, the legislator did not define the transmission, although in the glossary of the Broadcasting Act, this term is often used as a technical concept to define other concepts such as e.g. | 291 commercial transmission (Article 4(16) of the Act), hidden commercial transmission (Article 4(17)), advertising (Article 4(17)), teleshopping (Article 4(19)), product placement (Article 4(21), or subject placement (Article 4(22)). Showing respect [esteem] towards the Christian system of values should take place in all those indicated forms, and it may be assumed that it includes any contents transmitted by radio and television broadcasters, both public and private. 3.2. Christian system of values The key issue for the construction under consideration is the definition of the concept of “Christian system of values”, which is the object of showing esteem or respect by broadcasters. In Sobczak’s opinion, this concept is unclear, for which he gives extensive argument in his commentary (Sobczak, Radio, 2001, LEX. Retrieved June 24, 2013). Searching for the content-related meaning of the term “Christian system of values”, it is worth listening to the voice of the Polish Bishops’ Conference which, as it can be expected, has wide competences to indicate the definition of this term. At its 261 meeting they formed an address on Christian values in the life of the society and the nation. Bishops decided that the term “Christian values” should relate “to those values which Jesus Christ in his teachings, his redemptive deeds and his model of life presented as fundamental for his followers, shaping their life in the light of the Gospels (See Sobczak, Radio, 2001, LEX. Retrieved June 24, 2013). The Christian system of values, according to the legislator, adopts as its foundation, the universal principles of ethics. It is not a good construction as it raises some concerns as to the terminology conformity. The Christian system of values has as its fundamental the message of Christ and not universal principles. One may only agree on the reverse construction, that the Christian system of values became an inspiration for the universal principles of ethics and not vice versa. Hence, if the legislator really wanted to use both concepts, it would be better to call for the respect towards universal principles of ethics, coming from the Christian system of values. The construction adopted by the legislator significantly weakens understanding of the Christian system of values, causing the impossibility of its proper application. 3.3. Recipients’ religious beliefs The subject of respect are also, pursuant to Article 18 section 2 of the Broadcasting Act, “recipients’ religious beliefs”. So it includes a great variety of experiences, defined here as beliefs. Thus, they do not need to be objectivized by a doctrine of a religious association or the Church. Not only Christians but also followers of other religions may be the recipients of public, as well as private, radio and television broadcasters. In Article 18 of the Broadcasting Act, the legislator binds broadcasters to show respect for recipients’ religious beliefs so, presumably, we should bear in mind all the recipients, of any possible religions. Nevertheless, by using the word “in particular” after a coma, the legislator indicates the preference for the Christian system of values. Hence, it is this system which should enjoy particular respect of the broadcasters. As Sobczak mentions, since besides people confessing any faith, there are also atheists who may be the recipients of programmes, their religious beliefs must also be respected. However, a question arises whether an atheist has any religious beliefs. As the quoted author argues for his thesis, it would be a breach of the legal guarantee to reticule the atheistic worldview and the non-believers, and even to force them to accept a religion. (Sobczak, Radio, 2001, LEX. Retrieved June 24, 2013). 292 | 3.4. Necessity to respect and esteem The attitude which broadcasters are to adopt towards Christian values is determined by the use of the word “esteem” in Article 18 of the Broadcasting Act, and the word “respect” in Article 21 of the Broadcasting Act. Both public and private broadcasters are not obliged to promote or show preference to the Christian system of values. If it were so, the legislator would not use only the word “respect” [or esteem], but he would probably use one of the quoted expressions. The conclusion is accurate, as in the analysed Act and, moreover, in the indicated Article 18 of the Broadcasting Act, the legislator uses the word “promote” while referring to the ban on actions against the law or the Polish national interest [raison d’Etat]. Thus, if, knowing the word, he would like to use it towards the Christian system of values, he would certainly have done so. The terms used in the Act are synonymous and may well mean to stay passive. Broadcasters are to keep a certain distance towards the Christian system of values so as not to infringe what is included in the indicated system. Thus, it would infringe the norms to broadcast programs whose content would violate religious beliefs, reticule the truths of the faith or question moral principles. This interpretation was confirmed by the Constitutional Tribunal, which in its Resolution of 2 March 1994 interpreting Article 21 of the Broadcasting Act stated that “the order to respect the Christian system of values does not mean the order to propagate them” (W 3/93). The Constitutional Tribunal stipulated also that the order to respect the Christian system of values refers to the channel as a whole and not to its particular programme. In this sense, the order to show respect is not executed on the basis of particular programme assessment but while assessing the entire channel. This resolution can make us wonder a little because the enforcement of law infringement is practically hardly realistic. Adopting the interpretation presented by the Constitutional Tribunal makes justifiable even systematic interference into the Christian system of values by one of the programmes of the broadcaster justifiable, while preserving the due respect in others. The order to show respect, as emphasised in the literature, need not exclude the possibility to criticise the superiors of religious communities although more often than not one will accompany the other. Hence, the appeals of the Head of the Catholic Church for the durability of marriage may be judged as criticism of the Pope, but they may also and in its strict sense mean the lack of respect for the Christian system of values. It would be different if the activity of superiors of a religious association were beyond religion. Therefore, a Salomon’s solution may be to use restraint and common sense (Sobczak, Radio, 2001, LEX. Retrieved June 24, 2013). 4. Respect for Christian values in other issues related to the functions of the means of social communication 4.1. Registration of a press title A necessary requirement towards embarking on press editing is its court registration. Protection of Christian values is not a direct requirement to achieve this aim. Indirectly, however, it can be noticed. In the Press Law Act, the legislator points to only two criteria and both of them of negative value, the appearance of which can result in a refusal to register the journal. Pursuant to Article 21 of the Press Law Act, they are either the data missing in the application for registration or the infringement of the right of name protection of an already existing press title (E. FerencSzydełko, Press, 2010, p. 154). In the case law there appeared yet another criterion which is the proposal de lege ferenda for the current regulation. The registration body cannot, according to the Appeal Court in Katowice (see Judgement of April 7, 1999, I ACa 738/98, OSA 1999, No. 10, item 41), accept the name of a press title which would meet the criteria of a crime, infringe the principles of social interaction, infringe somebody else’s personal rights or contain abusive contents. However, the problem is | 293 not so easy, as the registration court holds no cognition to examine whether the submitted title infringes other’s personal rights in an illegal way. According to the doctrine, such a refusal could happen only when the infringement in question does not raise any doubts. According to Sobczak, the title “Beat the Negros” could be deemed as such (Sobczak, Press, 1999, p. 287). Another reason to refuse registration might be the title whose infringement of others’ rights was confirmed by a valid court judgment (K. Paczoska, Organisation, 2013, p. 315). The Court, while refusing to register, would have to indicate a relevant legal provision (E. Nowińska, Printed, 2008, p. 106). On the basis of the existing legal status, what is certain is that the subject injured by the press title might vindicate its rights only after the title has been registered (Husak, Organisation, 2012, p. 443). Moreover, the exclusion of the possibility of title registration for the above reasons does not exclude the registration of a title whose wording contradicts or even does not accord with accepted social or political conventions. The problem became topical in a widely publicized case when the registration of the title “Historical Quarterly. Germany – Millennial Enemy of Poland” was refused. Having upheld the refusal of the title registration, the Appeal Court ruled that in the title in question it does not see the reasons for the refusal to register the magazine. (Sobczak, Press, 1999, p. 287). The situation is complicated and needs proper regulation. The current legal status does not oppose registration of a journal which would offend religious feelings. The Court could register such a “controversial press title”, deciding that, even though it is not really pleasing to the ears of some church members, it may be considered acceptable in a pluralistic society. Moreover, registering such a title would not have to be excluded unless it offended (at Court’s discretion) others’ rights. 4.2.Transmissions of events of major importance for society A broadcaster has the right to broadcast live an event of major importance for society. An example of a catalogue of such events was included in Article 20b(2) of the Broadcasting Act and includes only sport events. Nevertheless, pursuant to Article 20b(3) of the same Act, the National Broadcasting Council has the right to form by way of regulation a list of other important events, considering the degree of social interest in a particular event and the impact of such an event on social, economic and political life (Matlak, Radio, 2008, p. 190). Such a regulation was issued on 21 April 2004 (Journal of Laws 2004, No. 82, item 765). On 13 June 2013 the National Broadcasting Council announced social consultations, asking the recipients which, in their opinion, other events of this kind should be included. At the same time, they suggested that there could be cultural events of major importance for society (National Broadcasting Council, Consultations. Retrieved June 24, 2013). These might be major events from the life of churches or religious associations, the more so as these suggested programmes are missing from among the programmes “meeting the religious needs”, shown in financial plans and programme schedules. 4.3. Protection of Christian values in advertising Here we must refer to the observations made earlier, that is, that every radio or television broadcast, which also includes advertising, is supposed to respect the Christian system of values. In the provisions related directly to advertising, protection of Christian values is included in the restrictions regulating their transmission. Although the problem of advertising is regulated by the Press Law Act in Article 36, it does not refer in any way to Christian values (see B. Kosmus, K. Gotkowicz, Ordinary, 2013, pp. 423-434). The Broadcasting Act is lex specialis to the Press Law Act, and not vice versa, therefore the provisions of the Broadcasting Act must not formally apply to the Press Law Act. The lack of regulations on advertising in the Press Law Act should be deemed a serious shortcoming and, simultaneously, should be made de lege ferenda on the necessity of 294 | using provisions of the Broadcasting Act in the Press Law Act. Apart from the indicated Broadcasting Act, the European Convention on Transfrontier Television is of major importance due to its impact on the Polish law (Journal of Laws 1995, No. 32, item 160), as well as the Council Directive 89/552/EEC, amended by the Directive 97/36/EC. The main principle common for the Convention (Article 14(1)), the Directive (Article 11(1)) and the Regulation of the National Broadcasting Council of 30 June 2011 on the pursuit of advertising and teleshopping activities in radio and television channels (Journal of Laws 2011, No. 150, item 895), is the principle of broadcasting advertising between programmes. Moreover, as stipulated in the indicated acts, a broadcaster is to consider the contents of the broadcast programme and the advertisement or teleshopping broadcast before and after it. Paragraph 7 of the Regulation provides that “a broadcaster, while broadcasting advertising or teleshopping, should in the schedule consider the character of programmes preceding or following it”. Thus, it can be concluded that advertising or teleshopping the contents of which not compatible with Christian values cannot be broadcast in a direct vicinity of a religious programme. Hence, it is the legislator who decides about the transmission time before and after the programme. Undoubtedly, this guarantee eliminates advertising and teleshopping of such goods and services that cannot accommodate the programme character. Consequently, the more programs with the religious contents, the less possibility to place advertisements threatening the welfare of faith or morality. Thus, programmes of the religious contents become an eliminator of a certain group of advertising or teleshopping. On the other hand, this principle allows promoting such goods and services which will relate to the transmitted programme. It is acceptable by law to broadcast advertising during the break in the radio or television programme. Both the Convention in its Article 14, as well as the amended Directive in Article 11, uniformly ban placement of advertising and teleshopping, however, only during the coverage of a religious service: “Advertising or teleshopping shall not be inserted in any broadcast of a religious service”. Yet, such a strict ban does not appear in the event of other religious programmes because these may be interrupted by advertising if they are longer than 30 minutes. In their case, the provisions of other paragraphs of Article 14 of the Convention or Article 11 of the Directive apply. And, thus, it is acceptable to broadcast advertising during the break in the programme unless the integrity and value of the programme suffer, as well as if the rights of the rights holders are not prejudiced, whereas the time between successive advertising breaks in a religious programme cannot be shorter than 20 minutes. (see E. Nowińska, Printed, 2008, p. 342). The Broadcasting Act in its current shape (Article 16a) did not fully adopt the provisions of the Convention and the Directives. It prohibits advertising broadcasts in widely understood programmes of religious contents, not specifying their categories. So advertising must not interrupt any programmes or transmissions of religious contents. Another guarantee concerns the ban on offending religious beliefs in television advertising. It was included in Article 12c of the Directive. A wider guarantee was entered into Article 16b(3) of the Broadcasting Act, where a commercial transmission cannot hurt religious beliefs nor can it contain any discrimination, inter alia, on the grounds of religion or worldview. 4.4. The status of a social broadcaster An interesting form of broadcasting activity is to acquire the status of a social broadcaster. Its identity is defined by the legislator in Article 4(10) of the Broadcasting Act. It points out that a social broadcaster is the one whose channel popularizes educative and charity activities, moreover, respects the Christian system of values adopting the universal principles of ethics as its basis and intends to strengthen the national identity. The channel of a social broadcaster does not broadcast programmes and transmissions described in Article 18(5) (containing scenes and content | 295 which might have a negative impact on physical, mental or moral development of minors), does not broadcast commercial transmissions and does not charge fees for broadcasting, distributing or receiving the channel. Moreover, the catalogue of persons entitled to gain such a status is limited, in contrast to the practically open catalogue of commercial broadcasters. Pursuant to Article 39b, the status of a social broadcaster may be granted, inter alia, to a legal person of a church or a religious association of a legal standing regulated in the Act. However, the National Broadcasting Council puts forward a proposal to extend this catalogue. It is of the opinion that it is advisable to include as social broadcaster the so-called third sector, associations or foundations, cultural institutions etc., regardless of the type of ownership, which act on the non-profit basis and are established in order to pursue any non-commercial social, cultural, educational, religious or charity goals in the channel (see National Broadcasting Council, Regulatory, pp. 63-64). For the problem of protecting Christian values, what is important is that, presently, also a church legal person may be the addressee of this legislative proposal. And the exemption from license charges is an unquestionable benefit of holding such a status. (further in Article 39b(2)). The status of a social broadcaster in its present form, is very restrictive because, in the event of infringing by the broadcaster the requirements which resulted in granting the status, the authorised body issues a decision of revoke the decision of awarding such a status of social broadcaster. Moreover, the revoke results in the obligation to pay the charges, together with statutory interest calculated from the date of granting or modifying the license. This forces the broadcaster to constant self-control whether there is any breach of regulations. Having noticed this problem, the National Broadcasting Council proposed mitigation of the condition of a ban on advertising which accounts for a crucial element of financing for a broadcaster. That is, the Council proposes to accept the possibility of advertising transmissions to a “small extent”, with a provision that any income from this source must be allocated only to the broadcasting activity or broadcaster’s development (National Broadcasting Council, Regulatory, p. 64). 5. Conclusions 1. The terminology used by the legislator is worth considering. Nowhere do the mandatory acts of law state that Christian values shall be protected. The term which appears in the law is “Christian system of values” and “religious beliefs”. Both of these concepts do not constitute a direct answer to the proposal of protecting Christian values and, moreover, they lead to much confusion in their definition and use. This is because they refer not only to Christian values but also to any worldview experiences. Furthermore, the National Broadcasting Council distinguished, for its own purpose, yet another, also a very general category, that is, “programmes addressing the religious needs of recipients”. The postulate of “protecting Christian values” encounters ambiguous and indirect acknowledgement in the acts of law, regulating the performance of the means of social communication. Similarly, the postulate of the way of protection of values has little impact. The Polish legislator guarantees respect or esteem, which means taking a passive attitude. It does not demand the promoting attitude, not at all unfamiliar to the terminology of the Act. 2. Protection of Christian values in radio and television broadcasting may be expressed by the presence of programmes promoting such values. By way of agreements made between the National Broadcasting Council and the Secretariat of Polish Bishops’ Conference, the transmission time of programmes “addressing the religious needs of recipients” ranges between 0.6% and 2.3%. Programmes produced in co-operation with the Catholic Church or other churches are placed in the information slot. Their lack is noticeable in key slots (daypartings), which include: broadcast journalism and, particularly, education and culture. 296 | 3. Protection of Christian values has its partial application in press title registration. It does not come directly from legal regulations and lies within the sphere of court’s discretion. The facts reveal that, if such a journal was registered in whose title Germany was called the enemy of Poland, a similar analogy might be adopted towards Christian values or attitudes towards the Church. 4. Advertising is of considerable importance for the protection of Christian values, which is related to its internal construction and the placement in transmission time. Observing legislative activeness, one may conclude that advertising is becoming an important subject to which a lot of attention is paid, also in the international law. Proper regulations refer only to advertising transmitted in the radio and television, and not in printed press. So the proposal de lege ferenda to place appropriate guarantees in the Press Law Act should be considered. As it appears from the acts of law, principally the position of advertising is between programmes, although it is acceptable to transmit advertisements during the programs. Advertising should agree in terms of its contents with the programme around which it is to be broadcast. Thus, it is unacceptable for an advertisement promoting attitudes contrary to the religious message to be broadcast before or after the transmission of a religious service. Polish Broadcasting Act has so far resisted the impact of the union law and does not allow interrupting any religious programmes with advertising. 5. The Polish legislator leaves the catalogue of directly transmitted programmes of major importance for society to be agreed. There is a possibility that, by way of announced social consultations, programmes of religious contents will appear in it. Another benefit, possible to gain, is the acquisition of the status of a social broadcaster. This legislative proposal is addressed, inter alia, to legal church persons. The construction of a status of social broadcaster in the current regulations is deemed unfavourable. The National Broadcasting Council noticed its restrictive character and announced proposals which would allow for its easier acquisition and operation. References Legal sources: Act of 29 December 1992 on radio and television broadcasting, Journal of Laws 1993, No. 7, item 34. Concordat between the Holy See and the Republic of Poland signed on 28 July 1993, Journal of Laws 1998, No. 51, item 318. Directive 89/552/EEC of the Council of 3 October 1989 on the coordination of certain provisions laid down by law, regulation or administrative action in Member States concerning the pursuit of television broadcasting activities, OJ L 298/23 of 17 October 1989. Directive 97/36/EC of the European Parliament and of the Council of 30 June 1997 amending Council Directive 89/552/EEC, OJ L202/60 of 30 July 1997. European Convention in Transfrontier Television, Journal of Laws 1995, No. 32, item 160. Judgement of the Appeal Court in Katowice of 7 April 1999, I ACa 738/98, OSA 1999, No. 10, item 41. National Broadcasting Council, Consultations concerning the list of important events, http://www. krrit.gov.pl/krrit/konsultacje-krrit/news,1214,konsultacje-rozporzadzenia-w-sprawie-listywaznych-wydarzen.html. Retrieved June 24, 2013. National Broadcasting Council, Regulation of 30 June 2011 concerning principles of advertising and teleshopping in radio and television programme services, Journal of Laws 2011, No. 150, item 895. National Broadcasting Council, Regulation of 21 April 2004 concerning the list of events considered by other European states as important events and the principles of executing exclusive | 297 rights to television transmissions of these events, Journal of Laws 2004, No. 82, item 765. National Broadcasting Council , Regulation of 27 April 2011 on the terms of submitting and the scope of financial and programme schedules, operations to pursue the public mission of public radio and television broadcasting, Journal of Laws 2011, No. 99, item 580. National Broadcasting Council, Regulatory Strategy for 2011-2013, http://www.krrit.gov.pl/Data/ Files/_public/pliki/publikacje/strategie/strategia_110420.pdf. Retrieved May 28, 2013. Press Law Act of 26 January 1984, Journal of Laws 1984, No. 5, item 24. Resolution of the Constitutional Tribunal of 2 March 1994, W 3/93, LEX. Retrieved June 24, 2013. Literature: Ferenc-Szydełko E., Press Law. Commentary, Oficyna Wolters Kluwer business, ed. 3, Warszawa 2010. Husak Z., Organisation of press activity, in W. Lis, P. Wiśniewski, Z. Husak, Press Law. Commentary, C.H. Beck, Warszawa 2012, p. 443. Kosmus B., Gotkowicz K., Ordinary advertisements and commercials, in B. Kosmus, G. Kuczyński (eds.), Press Law. Commentary, C.H. Beck, Warszawa 2013, pp. 423-434. Matlak A., Radio and television broadcasting, in J. Barta, R. Markiewicz, A. Matlak (eds.), Media Law, Lexis Nexis, Warszawa 2008, pp. 142 – 194. Nowińska E., Printed press, in: J. Barta, R. Markiewicz, A. Matlak (eds.), Media Law, Lexis Nexis, Warszawa 2008, pp. 101-110. Nowińska E., Advertising in radio and television, in J. Barta, R. Markiewicz, A. Matlak (eds.), Media Law, Lexis Nexis, Warszawa 2008, pp. 326-356. Paczoska K., Organisation of press activity, in B. Kosmus, G. Kuczyński (eds.), Press Law. Commentary, C.H. Beck, Warszawa 2013, p. 315. Rakoczy T., The Right of the Catholic Church to the Means of Social Communication in the 1983 Code of Canon Law and in Post-Vatican Council Concordats, Gniezno 2005. Sobczak J., Press Law Act. Commentary, Muza SA, Warszawa, 1999. Sobczak J., Radio and Television Broadcasting. Commentary to the Act, 2001, LEX. Retrieved June 24, 2013. 298 | Wojciech Szukalski Adam Mickiewicz University John Paul II’s conception of the right to religious freedom in the context of the unifying Europe Abstract In the unifying processes John Paul II perceived a chance for respecting the inviolability of every man that is in a special way guarded by the right to religious freedom, as its foundation is constituted by the dignity of the human person. He actively contributed to progress in the field of the culture of human rights that refers to the conception of the human person open to transcendence. He called for building “the Europe of spirit” on the foundation of Christian values that must imbue the letter of the Union’s positive law. Drawing attention to the state of the Union’s law in the field of religious freedom he formulated the following demands about the right to religious freedom: faithfulness to Christian values, the proper conception of man, granting the legal status to Churches and religious communities, and protection of the rights of the human person. Key words: the dignity of the human person, the right to religious freedom, the European Union, John Paul II. 1. Introduction Among many descriptions that are used when referring to John Paul II, the one „the Pope – advocate of human rights”1 deserves special attention, especially in the light of the issues addressed by the conference. Coming from Poland – the successor of Saint Peter – and having experienced two totalitarianisms in his life he did not confine himself to the concern for regaining and respecting the law in his home country, but he strove for the rights of all people, and especially for the fundamental right to religious freedom. Even as early as during his academic work in Lublin and his service as a bishop in Krakow Karol Wojtyła showed a special interest in reflection concerning the understanding of the dignity of the human person and freedom as seen in correlation to the truth that results from it. The research conducted by the ethicist and philosopher at the Catholic University of Lublin coincided with the subjects of the Vaticanum Secundum sessions, during which the Archbishop of Krakow especially actively participated in the works connected, among others, with the problem of religious freedom. As a Council Father who knew the wrong Marxist anthropology from his personal experience, he clearly demanded that every human person should be given a full right to freedom, and especially – because of its fundamental significance – to religious freedom. The Declaration on Religious Freedom, developed after many years of laborious work, was not only cocreated, but also intensively promoted by the Cardinal from Krakow. Along with his election to the Holy See not only did promotion of these theoretical issues begin, but so did a constant evangelical judgment of the situation in this field in every country and in every international community. The European continent, closest to John Paul II’s heart, also found itself in the centre of his attention, and so did the process of unification connected with the European Union, contemporary with the pontificate of the Polish Pope. The aim of the present article is first to show the conception of the right to religious freedom | 299 proposed by John Paul II, then to reflect on the EU regulations adopted in the field of the right to religious freedom; and finally to put forward suggestions directed at the Union’s legislation. The Holy Father emphasized that the Church performs her mission in the world, that is in the community that should enjoy complete freedom, and that is why she considers care for respecting the rights in all the continents as her inalienable task2, not only because of her own interests and because of the community she represents. The task the Pope carried out bore fruit in the form of frequent appeals issued to all citizens and governments, to become involved in the field of defense of freedom, especially on the plane of respecting the law3. Among other rights, beside the right to live, he ascribed the fundamental significance to ius ad libertatem in re religiosa. Such a hierarchy was conditioned by the perception of the human person created by God and designed to live a full life in freedom and truth. The right to religious freedom guards this vocation, which is at the same time a task. 2. The conception of the right to religious freedom The fundamental influence on the current conception of ius ad libertatem in re religiosa in the Catholic Church was exerted by the Second Vatican Council. In the already mentioned Declaration on Religious Freedom that had been arduously worked out, the definition of this right appeared as freedom that consists in the fact that “all men are to be immune from coercion on the part of individuals or of social groups and of any human power, in such wise that no one is to be forced to act in a manner contrary to his own beliefs, whether privately or publicly, whether alone or in association with others, within due limits4. It should be stressed that the Council’s greatest achievement in this field has been accepting such a philosophy of law that is compatible with the principles applying also in civil legislation. Until the Second Vatican Council it was the truth of religious convictions that was the basis of religious tolerance; it only allowed tolerating representatives of other denominations and religions, having in mind the fact that it would be even worse to completely eliminate them. Only when the Catholic Church officially admitted that it was the dignity of the human person that was the basis for religious freedom, every man – including nonbelievers, or any religious community – independent of the truth of their religious convictions – were recognized as subjects of the ius ad libertatem religiosam. Consistently to the above statement the Council Declaration on Religious Freedom starts with the words dignitatis humanae, – the dignity of the human person as the basis of the discussed right5. The Archbishop of Krakow – as a Council Father – was considered to be an ardent advocate of the Catholic Church working out and promoting a document devoted to religious freedom6. This attitude has its sources in the earlier interests displayed by the ethicist of Krakow, who especially in the research that he conducted, persistently worked on deepening the understanding and spreading the awareness of the dignity of the human person. It was exactly from there that the care came for promulgating and respecting law in every country, and then, in consequence, all over the world. The task he assigned to the whole Church, that is to educate particular persons and whole societies and make them more responsible, he persistently fulfilled himself7. Because of the bitter personal experiences of his childhood and adolescence Karol Wojtyła was in a way “made” to reflect on the meaning and aim of human life. Further, more penetrating and systematic research made him perceive the human person in terms of communion personalism that refers to the truth about creating man in the image of God who is One in the Holy Trinity, and – as a consequence – about his being designed to live in a community of persons. Man equipped with the gift of reason, needs the truth to realize his vocation, but he should search for it in the atmosphere of freedom, which John Paul II treats as a sine qua non condition of being 300 | a man. This reflection fully agrees with the Pope’s statement that Jesus Christ’s promise: “and you shall know the truth, and the truth shall make you free”8 is the most important sentence in the Bible. For the Holy Father finding and establishing a relation with God is the most important aim on the way to find the truth, as it is just religiousness that is the most sublime expression and the peak of the human person’s rational nature. In this context the inalienable right to religious freedom plays an exceptional role, because in a special way it performs service to the transcendent dimension of human life9. He treated his life as a priest, and especially his pontificate, as a service of thinking, and this is why he persistently searched for the truth about God and man. A certain crowning of this search was his encyclical with a telling title Veritatis splendor. It is exactly in the splendor of the truth that he tried to find the essence of freedom. The Gospel that he preached, even when he was no longer able to speak, pointed to Jesus Christ, and this is why in Him he found the Truth that becomes the Way leading to the fullness of Life10. A characteristic dimension of reflection was constituted by the search for the truth about man, who cannot be understood without Christ. It is only owing to Him that a revival of spiritual life may happen, which leads to “another step forward on the path of human development”11. In this context the dominating role of every man in the process of unifying Europe is clearly seen in the Pope’s teaching. It is exactly accepting the style of spiritual life proposed and realized by Jesus Christ that the future of every single man as well as of the whole continent depends on12, and the concern for the proper understanding of the dignity of the human person becomes a significant contribution to the European integration. The Pope demanded accepting the common heritage of the values constituted by the dignity of the human person and equal rights for all nations. He also stressed that the rights of particular nations have to involve the rights of every human person13. He was in favor of such an understanding of human rights that not only contain a catalogue of particular rights, but define the values underlying them as well. In fact this foundation is constituted by the proper conception of the human person and by defining its relation to the state14. John Paul II beginning his pontificate with Redemptor hominis trusted this love that most fully was revealed in Jesus Christ, and this is why he inspired hope, indicating also the progress that had been made in the field of legislation – as he had the courage to contribute to the culture of human rights and to promote it15. 3. The European Union’s regulations by law in the field of religious freedom The current state of law in Europe cannot be assessed without referring to the past of this continent that has Christian roots. It is here that classical culture, which is to be understood as a synthesis of Roman, German and Celtic culture, was transformed and enriched with the leaven of the Gospel. It was the cultural and religious reform carried out by Charlemagne that contributed to the origin of Europe that up to that time had not even been a geographical unity, and by these factors became a source of values for nearly all the world16. The Holy Father held the Roman legal culture in especially high esteem; this culture referred to the generally known principle Hominum causa omne ius constitutum est17. He also stressed that there is – irrespective of particular cultures and religions – a universal truth about the nature of the human person and there are universal human rights resulting from it “in which are reflected the objective requirements of a universal moral law”18. John Paul II with satisfaction and deep internal conviction repeated that it was exactly Christianity that had worked out the most complete concept of human dignity, and in this way it had given the deepest foundations for respecting the laws issuing from it19. In order to justify his thesis | 301 he referred to such an understanding of the human person that in its essence is open to transcendence. And it is exactly this fact that for the spiritual leader not only of the European continent, was the decisive factor with a universal character that contributes to the European integration20. He perceived priority of the spiritual order in the life of saints who contributed to the origin of humanism referring to values with a transcendental character. This kind of conception of man was a foundation for the civilization of law21. John Paul II, making a penetrating analysis of the past of the Old Continent, pointed to the key significance of respecting the dignity of the human person and the law that guards it. He recognized these values – forming religious, cultural and juridical life – as the heart of the heritage and the real genius of Europe, and this is why not only did he contribute to a better understanding and promotion of them, but he directly called for consolidating this awareness, also for the good of all people22. He was convinced that Christianity had an influence on forming some definite values, as it inspired “«the ideal of democracy and human rights» of modern Europe”23. The Pope was certain that the influence of Christianity has imbued people’s conscience to such a degree that such values as dignity, personal inviolability and freedom of conscience have been consolidated in them24. He calls these values, constituting the foundations of the proper conception of human rights as well as of respecting them, “«the common heritage» of ideals and principles” of the nations of Europe25. Europe formed on the foundation of the Christian vision of the human person did not avoid, however, the domination of totalitarianisms, especially in the 20th century, and the cause of this should be searched for in erasing the evangelical values26. The Pope was convinced that “violation of the rights of man goes hand in hand with violation of the rights of the nation”27. However, if the old continent has survived and overcome all threats, it is owing to men of conscience who have preserved the spirit of freedom, because they had been shaped by “the Heavenly Father’s two hands, that are, as Saint Irenaeus said, the Son and the Holy Spirit (cf. Adversus haereses, IV, 7, 4)”28. Karol Wojtyła started his pastoral work in a country that, according to the decisions of the Yalta Conference, could not fully exercise its political autonomy. As the Holy Father he remarked that overcoming totalitarianisms was possible owing to maintaining the European tradition that referred to the principle of inviolability of the human person. The fact that is very significant for the present article should be stressed, namely, that the Pope from Poland recognized the right to religious freedom as the most important argument in striving for independence29. As a sharp observer and an active participant in the processes going on the old continent he also stressed that despite the attempts to enslave man and to eliminate independent institutions by totalitarian systems, the changes taking place on our continent had their roots in the Church, and this is why their consequence was a revival of “the spirit of Europe”30. In any case, the essence of this continent cannot be understood without considering its fundamental dimension, that is “the spiritual reality that has the stamp of Christianity”31. The Pope had the courage to clearly appeal for genuine recognition of the old continent – as a “great European Community of Spirit”, whose foundation should be Jesus Christ32. It was from Him that the culture rooted in the Christian tradition of the two lungs of the old continent, that is of the Western and Eastern Churches, was born. Among the fundamental values deciding about the success of “the Europe of spirit” he counted first of all “the dignity of man and his inalienable rights, inviolability of human life, freedom leading to the formation of super-national solidarity, the truth bringing liberation and changing the face of the world”33. It is worth emphasizing that besides the dignity of the human person and the laws issuing from it, John Paul II indicated freedom that bears fruit in the form of super-national solidarity. It may be remarked that the processes of unification of Europe resulted exactly from the sense of mutual responsibility and care, and they were possible owing to freedom. As – to a considerable 302 | degree – an initiator of the 1990 transformations, especially in Central and Eastern Europe, he recognized them as a “historical turnabout” of the 20th century and compared them to “leaving the catacombs” by the first Christians34. With special attention he first promoted, and then kindly accompanied all the processes that aimed at liberating particular nations from the political domination of superpowers usurping the right to make decisions about the fate of the enslaved people. The involvement in Poland’s fight for regaining complete freedom is the most telling proof of the constant aspirations, first of the Bishop of Krakow, and then of the Holy Father. The aim of the present article is not to evaluate the contribution of the papal service in this field, however, it is doubtless that apart from the efforts made by numerous fighters for freedom, the role may not be ignored that was played by John Paul II for freedom of Europe. The Pope, being aware of the past, gave recognition to the organizations whose aim it is to protect respecting the law, and which are the fruit of the Christian inspiration for Europe35. This is because legislation rooted in Christian values is the heritage of West Europe36. Certainly, for the Pope the fundamental law resulting from the principle of the dignity of the human person was inviolability in the religious domain. This is why analysis of the Pope’s teaching that has been undertaken, first of all aims at assessing the respect for the right to religious freedom in the structures of still unifying Europe. In accordance with the conception of the ius ad libertatem in re religiosa that the Holy Father promoted, these decisions deserve recognition that first of all respect the dignity of every human person, of the family, of any association with a religious character, of any religious community and of the Church. In his teaching there is a direct reference to numerous legal documents that are significant for the social life in the European Union: Universal Declaration of Human Rights, European Convention on Human Rights, Helsinki Final Act37. 4. Suggestions for the Union’s legislation At the time of the unifying Europe John Paul II was not only a keen observer of the political scene, but in the name of pastoral concern and responsibility for the shape of the transformations going on he also often got into argument with the prepared and promulgated legal documents. He was deeply convinced that also believers have the right to co-decide about the legislation adopted on the European continent38. Having in mind the sad experiences of the past he postulated the need to codify the law also in the field of religious life, which will protect every man from potential threats coming from various directions39. Christian values First of all, as a servant Jesus Christ’s he demanded emphasizing Christian values in the unifying Europe40, not only because of his personal religious beliefs, but first of all because of his strong conviction that it was exactly in Christianity that such a conception of the human person had been worked out without which there is no possibility of constructing a legal system adequate to the aspirations of the Western civilization. John Paul II referred to God, in whom he looked for ultimate justification of all rights, including the right to religious freedom41. He stressed that values constituting common heritage of the nations of Europe precede the catalogue of particular rights42. Exactly such values he perceived in “religious, and especially in Christian heritage”43. He noted with great satisfaction that exactly respecting the dignity of the human person – “as a universal value of European culture rooted in Christianity – is widely approved of44. The proper conception of man As an expert on man he strove after securing decent conditions for the development of every human person. He demanded that legislation being introduced should first of all take into consideration the proper conception of man, and this is why in the Pope’s reflection on European | 303 Union’s legislation suggestions appeared concerning the necessity to refer to the axiology promoting the dignity of the human person45. Consistently with the assumptions of anthropological nature that he had made, he pointed to the dignity of the human person as the fundamental value of the unifying Europe46, and this is why he demanded that man should be respected in his relation to God, that is in the transcendental dimension. The Holy Father emphasized that it is exactly the lack of reference to God in the European Union’s legal acts that deprives man of the most profound foundations of the dignity of the human person that are an indispensable condition of proclaiming and respecting the law47. Without taking into consideration such values as the dignity of the human person as the source of laws, or respect for democratically recognized legal norms, “a lasting common home in the East or in the West, a home accessible to everybody and one that is open to the world, cannot be built”48. Granting legal status to Churches and religious communities John Paul II also systematically watched the new documents concerning the Union’s legislation that were promulgated. After he familiarized himself with the draft text of the Treaty establishing a Constitution for Europe (TCE) he demanded granting the legal status to Churches and religious communities, which also aimed at giving them – as subjects of rights – a possibility to conduct a structural dialogue with the European Union49, since it was the Pope’s constant concern to secure the spiritual dimension of human life that is closely connected with religion, also experienced in a community. Józef Krukowski – an expert on law – in his remarks to the draft of the European Constitution also expressed his view that the proposed document did not fully guarantee protection of religious freedom for Churches and religious communities50. The Holy Father was fully aware of the fact that from the essence of man the necessity issues of constant concern for his development. It is so because with respect to every vocation it is the rule that it should be treated as a gift and a task. A similar task – on the basis of the subsidiarity principle – rests on the European Union that may not stop being concerned with every human person or religious community. This mission may be accomplished also by the Union’s legislation that not only promulgates the right to religious freedom, but also actively strives for the right being respected51. For this reason John Paul II attached great significance to the integration built on the foundation of rights, and among them he paid exceptional attention to the rights “with special importance”, that is the rights to life and to religious freedom52. Protection of human rights John Paul II made a positive appraisal of one of the significant aims of Europe, that is protection of human rights; he also made an appeal to the Members of the Committee on Parliamentary and Public Relations of the Parliamentary Assembly of the Council of Europe to assume an unambiguous attitude in the field where above all the principle of inviolability is in force, an attitude that is similar in its determination to struggle in the battlefield53. The Pope was aware that along with the progress made by science and technology the need to protect the rights is not diminishing54. Besides referring to good will of the people responsible for the shape of social life also direct appeals appeared to secure inviolability of the human person on the legal plane, including administration of justice55. John Paul II, as a firm believer, was courageous enough to state, in accordance with his own conviction, that recognizing the sacred and inviolable character given by the Creator to every human person is the best defense of human rights.56 5. Conclusion John Paul II was a guardian of the Rechtsstaat (state of law), that is of such an organization of social life that first of all aims at the good of every human person. He emphasized frequently that the state only has an ancillary character with respect to its citizens; and he also demanded the 304 | same attitude towards the family from it. However, he was aware that the state, in the name of ill-understood and wrongly practiced law, may treat its citizens like objects, and this is why, having in mind the painful experiences of totalitarian systems, he demanded such organization of life in a state that would have a reference to organizations with a supra-national character. One of the positive, albeit limited possibilities is offered by the integration connected with the European Union. In accordance with the accepted philosophy of the law the Holy Father unambiguously was in favor of integration understood as respecting the subjectivity of every human person, every family, every association, and every country. He expressed his recognition for the long way that Europe had gone in the field of the law, and he meant the proper understanding of the hierarchy of laws, their mutual respect and recognition, as well as respect for every man. In a special way he worked on the proper conception of the dignity of the human person as the foundation of every kind of law. Undoubtedly among John Paul II’s greatest achievements we must mention the permanent promotion of the dignity of the human person, which was a characteristic feature of all his pastoral service. In the name of the transcendental dimension of human life he sought promotion of and respect for the right to religious freedom. With respect to the European Union’s regulations by law he pointed to the Christian roots of the old continent, where the dignity and inviolability of the human person in the dimension of freedom had been worked out. He made efforts to secure the status of subject of rights for Churches and religious communities. Referring to the European Union’s legal documents he formulated the following demands in the field of the right to religious freedom: respect for Christian values Europe had been founded on, using the proper conception of man when making laws; and also, he directly appealed for granting the legal status to Churches and religious communities. Because of the still existing phenomenon of breaking the law, there is a constant need to protect it. The dramatic past of the old continent, when the structures of the state law failed, created in the Pope a need to refer to a security system issuing from international structures. However, this postulate has not been yet fully satisfied. References: John Paul’s speeches (in chronological order): Encyclical letter Redemptor homini (March 4, 1979) (www.vatican.va (may 27, 2013). Christ is the source and foundation of the dignity of all people. Message for the anniversary of the European Court and Commission for Human Rights (December 27, 1979). Nauczanie papieskie (Papal teaching) vol. II, part 2 (1979), ed. E. Weron, A. Jarocki, Poznań 1992, pp. 740-742. From the work of Saints the European civilization was born. Inauguration of the Hungarian Chapel in the Vatican Grottoes (October 8, 1980). Nauczanie papieskie (Papal teaching) vol. IIII, part 2 (1980), ed. E. Weron, A. Jarocki, Poznań-Warszawa 1986, pp. 439-440. European defense of human rights. To jurists and judges of the European Court (November 10, 1980). Nauczanie papieskie (Papal teaching) vol. III, part 2, pp. 581-584. The birth of Jesus as a mystery of joy, love and peace. The world did not accept Him. Urbi et Orbi Message for Christmas 1981 (December 25, 1981). Nauczanie papieskie (Papal teaching), vol. IV, part 2 (1981), ed. E. Weron, A. Jarocki, Poznań 1989, pp. 550-552. The Church towards the greatest problems of the modern world. Address to the Diplomatic Corps Accredited to the Holy See (January 16, 1982), Nauczanie papieskie (Papal teaching), vol. V, part 1 (1982), ed. E. Weron, A. Jarocki, Poznań 1993, pp. 51-56. Human and Christian vocation of the nations of the European continent. European act read in Santiago de Compostella (November 9, 1982). Nauczanie papieskie (Papal teaching) vol. 5, part 2 (1982), ed. E. Weron, A. Jarocki, Poznań 1996, pp. 772-775. | 305 The right to religious freedom is the basis of all other rights. An address to the group of academics taking part in the 5th International Conference on Legal Studies (March 10, 1984). Nauczanie papieskie (Papal teaching), vol. VII, part 1 (1984), ed. E. Weron, A. Jarocki, Poznań 2001, pp. 301-303. United Christians for the united Europe. To participants in the International Convention of Studies on Martin Luther (March 24, 1984). Nauczanie papieskie (Papal teaching) vol. VII, part 1 (1984), ed. E. Weron, A. Jarocki, Poznań 2001, pp. 352-354. Any demographic policy must respect the human person. To Secretary General of the 1984 International Conference on Population (June 7, 1984). Nauczanie papieskie (Papal teaching), vol VII, part 1 (1984), ed. E. Weron, A. Jarocki, Poznań 2001, pp. 742-745. Peace exceeds human powers. To the Diplomatic Corps accredited to the Holy See (January 10, 1987). “L’Osservatore Romano”, Città del Vaticano (Polish edition), 1 (1987), pp. 7-8. (further abbreviated as ORP). The only way to a spiritually unified Europe. Eucharistic concelebration in the square before the Cathedral of Speyer (May 4, 1987). ORP 8 (1987), pp. 24-25. For the deepest identity of Europe. To the members of the Committee on Parliamentary and Public Relations of the Parliamentary Assembly of the Council of Europe (March 17, 1988). ORP 3-4 (1988), pp. 24, 32. Values preceding the positive law. To the Commission and to the European Court of Human Rights in Strasburg (October 8, 1988). ORP 10-11 (1988), pp. 6-7. Europe and the world at the threshold of the last decade of the 20th century. Speech to the members of the Diplomatic Corps accredited to the Holy See (January 13, 1990). ORP 1 (1990), pp. 5-6. What does the Holy Spirit tell the Church through the experiences of East and West Europe? To the participants in the Special Assembly for Europe of the General Secretariat of the Synod of Bishops (June 5, 1990). ORP 6 (1990), pp. 16-17. Evangelization of Cultures. A speech to European scholars participating in the pre-synodal Symposium on “Christianity and Culture in Europe” ( October 31, 1991). ORP 1 (1992), pp. 58-60. Farewell ceremony at the international airport of Tallinn (September 10, 1993). Insegnamenti di Giovanni Paolo II, t. XVI, cz. 2 (1993), Città del Vaticano 1995, p. 744-747. Let us build bridges between people and nations. An address to the diplomatic corps (January 15, 1994), ORP 4 (1994), pp. 16-19. Creating the common good of the Fatherland together. Speech to the Polish Parliament (Warsaw, June 11, 1999). ORP 8 (1999), pp. 52-55. To make sure that the common good is served. To Presidents of the Parliaments of the European Union (September 23, 2000). ORP 1 (2001), pp. 44-45. Religious and moral values as a common heritage. Address of the Holy Father John Paul II on the occasion of the commemoration of the fiftieth anniversary of the European Convention on Human Rights (November 3, 2000). ORP 1 (2001), p. 47. Europe and Christian values. Message of John Paul II to Cardinal Antonio Maria Javierre Ortas on the occasion of the 1.200th anniversary of the imperial coronation of Charlemagne by Leo III (December 14, 2000). ORP 3 (2001), pp. 6-7. Europe needs Jesus Christ. To the participants in the Third International Forum sponsored by the Foundation Alcide De Gasperi (February 23, 2002). ORP 5 (2002), pp. 52-53. Christian values as the spiritual foundation of Europe. Message to the participants in the European Scientific Congress on the subject “Towards the European constitution?” (June 20, 2002). ORP 10-11 (2002), pp. 32-34. Christian faith and the identity of Europeans. To the new ambassador of Germany accredited to the Holy See (November 13, 2002). ORP 12 (2002), pp. 28-29. 306 | Italy’s and Europe’s Christian vocation. An address to a joint session of the Italian parliament (November 14, 2002). ORP 2 (2003), p. 36-39. European integration on the basis of common values. To the new Ambassador of Belgium accredited to the Holy See (October 31, 2002). ORP 1 (2003), pp. 40-41. A letter to rectors of European universities participating in the congress in Lublin (April 24, 2003). ORP 6 (2004), p. 46. The mission of the pope is to defend human rights. On the occasion of honoring John Paul II with doctorate “Honoris Causa by the La Sapienza University (May 17, 2003). ORP 10 (2003), pp. 33-35. Apostolic exhortation Ecclesia in Europa (June 28, VI 2003) www.vatican.va (may 27, 2013). Concern for the identity of Europe (August 17, 2003). 11-12 ORP (2003), p. 38. Caring for a better future of the human family. To the diplomatic corps accredited to the Holy See (January 12, 2004). ORP 3 (2004), pp. 22-24. The Church seeks the integral good of each people. Address of John Paul II to H. E. Mr Jorge Dezcallar de Mazarredo, Ambassador of Spain to the Holy See. (June 18, 2004). ORP 11-12 (2004), pp. 19-20. Common defense of the rights of human person. Address of John Paul II to the participants in the International Conference for Penitentiary Directors of Europe (November 26, 2004). ORP 2 (2005), p. 49. Documents of the Church: Declaration on Religious Freedom, in: Vatican Council II. Constitutions, Decrees, Declarations. Poznań 2002, pp. 410-421. Studies Buttiglione R., Myśl Karola Wojtyły (The thought of Karol Wojtyła), translated by J. Merecki, Instytut Jana Pawła II. KUL, Lublin 2011. Krukowski J., Kościół a Unia Europejska. Uwagi do projektu Traktatu Konstytucyjnego Unii Europejskiej (The Church and the European Union. Remarks about the draft text of the Treaty establishing a Constitution for Europe), Biuletyn nr 16, Stowarzyszenie Kanonistów Polskich. Lublin 2003. Nagy S., Ty jesteś Piotr. Srebrny Jubileusz Pontyfikatu Jana Pawła II (You are Peter. The silver jubilee of John Paul II’s pontificate), Kraków 2003. Skorowski H., Problematyka praw człowieka (The issue of human rights), in: Zatroskany o człowieka i świat. Nauczanie etyczno-społeczne Jana Pawła II (Concerned about man and the world. John Paul II’s ethicalsocial teaching), ed. H. Skorowski, Warszawa 2005, p. 403-413. Szukalski W., Od tolerancji do wolności religijnej. Ewolucja poglądów o wolności religijnej w dokumentach II Soboru Watykańskiego (From tolerance to religious freedom. The evolution of views on religious freedom in the documents of the Second Vatican Council), Poznań 2003. Weigel G., Świadek nadziei. Bibliografia papieża Jana Pawła II (Witness to Hope: The Biography of Pope John Paul II), Kraków 2005. Życiński J., Wartości chrześcijańskie a państwo demokratyczne (Christian values and the democratic state), in: Kultura i prawo. Podstawy jedności europejskiej (Culture and law. The foundations of European unity), ed. J. Krukowski, O. Theisen vol. 1, Lublin 1999, pp. 250-275. (Endnotes) 1 This description results from the fact that, as an expert on this issue remarks, „there are few such documents and speeches, in which the Pope did not say anything about the subject”. H. Skorowski, Problematyka praw człowieka (The issue of human rights), in: Zatroskany o człowieka i świat. Nauczanie etyczno-społeczne Jana Pawła II (Concerned about man and the world. John Paul II’s ethical-social teaching), ed. H. Skorowski, Warszawa 2005, p. 403. 2 Kościół wobec największych problemów współczesnego świata (The Church towards the greatest prob- | 307 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 lems of the modern world). Address to the Diplomatic Corps Accredited to the Holy See (16 January 1982), Nauczanie papieskie (Papal teaching), vol. V, part 1 (1982), ed. E. Weron, A. Jarocki, Poznań 1993, p. 53. Narodzenie Jezusa tajemnicą radości, miłości i pokoju. Świat Go nie przyjął. (The birth of Jesus as a mystery of joy, love and peace. The world did not accept Him). Urbi et Orbi Message for Christmas 1981 (25.12.1981). Nauczanie papieskie (Papal teaching), vol. IV, part 2 (1981), ed. E. Weron, A. Jarocki, Poznań 1989, p. 551. Declaration on Religious Freedom, nr 2. More on the formation of the concept of religious freedom, especially at the stage of the Council’s works, see: W. Szukalski, Od tolerancji do wolności religijnej. Ewolucja poglądów o wolności religijnej w dokumentach II Soboru Watykańskiego (From tolerance to religious freedom. The evolution of views on religious freedom in the documents of the Second Vatican Council), Poznań 2003. S. Nagy defines John Paul II’s relation to the Second Vatican Council as „a pastoral fascination with the Council”. See more on the subject in: S. Nagy, Ty jesteś Piotr. Srebrny Jubileusz Pontyfikatu Jana Pawła II (You are Peter. The silver jubilee of John Paul II’s pontificate), Kraków 2003, pp. 15-30. See also: G. Weigel, Świadek nadziei. Bibliografia papieża Jana Pawła II (Witness to Hope: The Biography of Pope John Paul II), Kraków 2005. R. Buttiglione, Myśl Karola Wojtyły (The thought of Karol Wojtyła), translated by J. Merecki, Instytut Jana Pawła II. KUL, Lublin 2011. The right to religious freedom is the basis of all other rights. An address to the group of academics taking part in the 5th International Conference on Legal Studies (10 March 1984). Nauczanie papieskie (Papal teaching), vol. VII, part 1 (1984), ed. E. Weron, A. Jarocki, Poznań 2001, p. 301. John 8,32. Any demographic policy must respect the human person. To Secretary General of the 1984 International Conference on Population (7 June 1984). Nauczanie papieskie (Papal teaching), vol VII, part 1 (1984), ed. E. Weron, A. Jarocki, Poznań 2001, p. 743. „I am the way, and the truth, and the life”. John 14,6. To make sure that the common good is served. To Presidents of the Parliaments of the European Union (September 23, 2000). “L’Osservatore Romano”, Città del Vaticano (Polish edition), 1 (2001), p. 45 (further abbreviated as ORP). Evangelization of Cultures. A speech to European scholars participating in the pre-synodal Symposium on “Christianity and Culture in Europe” (the Vatican, October 31, 1991) ORP 1 (1992), p. 59. Let us build bridges between people and nations. An address to the diplomatic corps (January 15, 1994), ORP 4 (1994), p. 19. Values preceding the positive law. Address to the European Court and Commission of Human Rights, Strasbourg, 8 Oct. 1988. ORP 10-11 (1988), p. 6. Farewell ceremony at the international airport of Tallinn (September 10, 1993). Insegnamenti di Giovanni Paolo II, t. XVI, cz. 2 (1993), Città del Vaticano 1995, p. 744-747. Europe and Christian values. Message of John Paul II to Cardinal Antonio Maria Javierre Ortas on the occasion of the 1.200th anniversary of the imperial coronation of Charlemagne by Leo III (December 14, 2000). ORP 3 (2001), p. 7 The mission of the pope is to defend human rights. On the occasion of honoring John Paul II with doctorate “Honoris Causa by the La Sapienza University (May 17, 2003). ORP 10 (2003), p. 33. Italy’s and Europe’s Christian vocation. An address to a joint session of the Italian parliament (November 14, 2002). ORP 2 (2003), p. 37. Common defense of the rights of human person. Address of John Paul II to the participants in the International Conference for Penitentiary Directors of Europe (November 26, 2004). ORP 2 (2005), p. 49. The Church seeks the integral good of each people. Address of John Paul II to H. E. Mr Jorge Dezcallar de 308 | Mazarredo, Ambassador of Spain to the Holy See. (June 18, 2004). ORP 11-12 (2004), pp. 19-20. 21 From the work of Saints the European civilization was born. Inauguration of the Hungarian Chapel in the Vatican Grottoes (October 8, 1980). Nauczanie papieskie (Papal teaching) vol. IIII, part 2 (1980), ed. E. Weron, A. Jarocki, Poznań-Warszawa 1986, p. 439. 22 Religious and moral values as a common heritage. Address of the Holy Father John Paul II on the occasion of the commemoration of the fiftieth anniversary of the European Convention on Human Rights (November 3, 2000). ORP 1 (2001), p. 47. 23 Concern for the identity of Europe (August 17, 2003). ORP 11-12 (2003), p. 38. 24 Europe needs Jesus Christ. To the participants in the Third International Forum sponsored by the Foundation Alcide De Gasperi (February 23, 2002). ORP 5 (2002), p. 52. 25 Values preceding the positive law. To the Commission and to the European Court of Human Rights in Strasburg (October 8, 1988). ORP 10-11 (1988), p. 6. 26 Europe and Christian values. Europe and Christian values. Message of John Paul II to Cardinal Antonio Maria Javierre Ortas on the occasion of the 1.200th anniversary of the imperial coronation of Charlemagne by Leo III (December 14, 2000). ORP 3 (2001), p. 7. 27 Encyclical letter Redemptor hominis, nr 17. 28 Evangelization of Cultures. A speech to European scholars participating in the pre-synodal Symposium on “Christianity and Culture in Europe” (the Vatican, October 31, 1991) ORP 1 (1992), p. 59. 29 What does the Holy Spirit tell the Church through the experiences of East and West Europe? To the participants in the Special Assembly for Europe of the General Secretariat of the Synod of Bishops (June 5, 1990). ORP 6 (1990), pp. 16-17. 30 United Christians for the united Europe. To participants in the International Convention of Studies on Martin Luther (March 24, 1984). Nauczanie papieskie (Papal teaching) vol. VII, part 1 (1984), ed. E. Weron, A. Jarocki, Poznań 2001, pp. 352-354. 31 Evangelization of cultures. A speech to European scholars participating in the pre-synodal Symposium on “Christianity and Culture in Europe” (the Vatican, October 31, 1991) ORP 1 (1992), p. 59. 32 Creating the common good of the Fatherland together. Speech to the Polish Parliament (Warsaw, 11 June 1999). ORP 8 (1999), p. 54. 33 A letter to rectors of European universities participating in the congress in Lublin (April 24, 2004). ORP 6 (2004), p. 46. 34 What does the Holy Spirit tell the Church through the experiences of East and West Europe? To the participants in the Special Assembly for Europe of the General Secretariat of the Synod of Bishops (June 5, 1990). ORP 6 (1990), p. 16. 35 Christ is the source and foundation of the dignity of all people. Message for the anniversary of the European Court and Commission for Human Rights (December 29, 1979). Nauczanie papieskie (Papal teaching) vol. II, part 2 (1979), ed. E. Weron, A. Jarocki, Poznań 1992, p. 741. 36 Peace exceeds human powers. To the Diplomatic Corps accredited to the Holy See (Januay 10, 1987). ORP 1 (1987), p. 8. 37 Human and Christian vocation of the nations of the European continent. European act read in Santiago de Compostella (November 9, 1982). Nauczanie papieskie (Papal teaching) vol. 5, part 2 (1982), ed. E. Weron, A. Jarocki, Poznań 1996, p. 773. 38 Caring for a better future of the human family. To the diplomatic corps accredited to the Holy See (January 12, 2004). ORP 3 (2004), pp. 22-24. 39 Christian values as the spiritual foundation of Europe. Message to the participants in the European Scientific Congress on the subject “Towards the European constitution?” (20.VI. 2002). ORP 10-11 (2002), p. 33. 40 Europe needs Jesus Christ. To the participants in the Third International Forum sponsored by the Foun- | 309 41 42 43 44 45 46 47 48 49 50 51 52 53 54 55 56 dation Alcide De Gasperi (February 23, 2002). ORP 5 (2002), pp. 52-53. See also: Human and Christian vocation of the nations of the European continent. European act read in Santiago de Compostella (November 9, 1982). Nauczanie papieskie (Papal teaching) vol. V, part 2 (1982), ed. E. Weron, A. Jarocki, Poznań 1996, pp. 772-775. J. Życiński, Wartości chrześcijańskie a państwo demokratyczne (Christian values and the democratic state), in: Kultura i prawo. Podstawy jedności europejskiej (Culture and law. The foundations of European unity), ed. J. Krukowski, O. Theisen vol. 1, Lublin 1999, pp. 250-275. Human and Christian vocation of the nations of the European continent. European act read in Santiago de Compostella (November 9, 1982). Nauczanie papieskie (Papal teaching) vol. V, part 2 (1982), ed. E. Weron, A. Jarocki, Poznań 1996, p. 773. Values preceding the positive law. To the Commission and to the European Court of Human Rights in Strasburg (October 8, 1988). ORP 10-11 (1988), p. 6. Apostolic exhortation Ecclesia in Europa nr 114. Common defense of the rights of human person. Address of John Paul II to the participants in the International Conference for Penitentiary Directors of Europe (November 26, 2004). ORP 2 (2005), p. 49. Christian faith and the identity of Europeans. To the new ambassador of Germany accredited to the Holy See (November 13, 2002). ORP 12 (2002), pp. 28-29. See also: Apostolic exhortation Ecclesia in Europa, nr 114. Christ is the source and foundation of the dignity of all people. Message for the anniversary of the European Court and Commission for Human Rights (December 29, 1979). Nauczanie papieskie (Papal teaching) vol. II, part 2 (1979), ed. E. Weron, A. Jarocki, Poznań 1992, p. 741. Europe and the world at the threshold of the last decade of the 20th century. Speech to the members of the Diplomatic Corps accredited to the Holy See (January 13, 1990). ORP 1 (1990), p. 6. Ibid. Apostolic exhortation Ecclesia in Europa, nr 114. J. Krukowski, Kościół a Unia Europejska. Uwagi do projektu Traktatu Konstytucyjnego Unii Europejskiej (The Church and the European Union. Remarks about the draft text of the Treaty establishing a Constitution for Europe), Biuletyn nr 16, Stowarzyszenie Kanonistów Polskich. Lublin 2003, p. 38. The only way to a spiritually unified Europe. Eucharistic concelebration in the square before the Cathedral of Speyer (May 4, 1987). ORP 8 (1987), pp. 24-25. See also: Apostolic exhortation Ecclesia in Europa, nr 114. Christ is the source and foundation of the dignity of all people. Message for the anniversary of the European Court and Commission for Human Rights (December 29, 1979). Nauczanie papieskie (Papal teaching) vol. II, part 2 (1979), ed. E. Weron, A. Jarocki, Poznań 1992, p. 741. European defense of human rights. To jurists and judges of the European Court (November 10, 1980). Nauczanie papieskie (Papal teaching) vol. III, part 2 (1980). Ed. E. Weron, A. Jarocki, Poznań-Warszawa 1986, pp. 581-584. For the deepest identity of Europe. To the members of the Committee on Parliamentary and Public Relations of the Parliamentary Assembly of the Council of Europe (March 17, 1988). ORP 3-4 (1988), p. 24. See also: Values preceding the positive law. To the Commission and to the European Court of Human Rights in Strasburg (October 8, 1988). ORP 10-11 (1988), p. 6. European defense of human rights. To jurists and judges of the European Court (November 10, 1980). Nauczanie papieskie (Papal teaching) vol. III, part 2 (1980), p. 581. European integration on the basis of common values. To the new Ambassador of Belgium accredited to the Holy See (October 31, 2002). ORP 1 (2003), p. 41. 310 | Agnieszka Wedeł–Domaradzka Kazimierz Wielki University in Bydgoszcz [email protected] Religious issues in the decisions of the Strasbourg authorities in the context of matters relating to external borders of human life Abstract The aim of this paper is to show the extent to which religious issues arise in the case law of the European Commision of Human Rights and European Court of Human Rights. The Court is still operating within the European sphere can not ignore the religious context undertaken problems. They often despite emphasized repeatedly and in different contexts secularization of the state unless they have a crucial importance for the decision rendered. In particular, the impact of this can be seen in the cases with which we have to deal with in the limit moments of human life, which, together with its beginning in the context of its end. This paper will present the decision in which the Commission and the Court stressed the importance of religion. Based on the analysis of the case will be made an analysis of how and in what contexts the Strasbourg authorities decide to recall the religious aspects, and how – and whether sufficient – to highlight their importance in the lives of individuals and society. As far as possible also will be presented and resolve these situations in which the religious aspect of the appeal were lacked. Keywords: religion, the beginning of life, abortion, death, the practice of religion, the right to worship of the dead, the right to contact the priest 1. Introducion Due to the importance of religion, both in terms of its confession and it is not right to profess and practice in human life should be considered as important issues concerning the rights and freedoms associated with it. Its nature become very important especially when we look at the historical events in Europe, which is not the absence of persecution, or even religious wars. With the development of international regulations in the field of human rights, it is neccesary to began with consider the religious aspect. The foundations of it laid Article 18 of The Universal Declaration of Human Rights (UDHR), which provides for the right of every person to “freedom of thought, conscience and religion” and which has been taken over by the International Covenant on Civil and Political Rights (ICCPR). It is understood that freedom of thought, conscience and religion includes two aspects: positive and negative. The positive aspect of it would include the right to profess a religion, hold and manifest beliefs and practice, but in the negative will be the opposite, including the right not to profess any religion, the right not to disclose convictions and the right not to participate in any religious practices. Designation of border points of human life is still difficult. This difficulty stems from the fact that among others the lack of uniformity in the interpretation of domestic orders of individual countries. The issue of the initial human life is really a question of the legal status of the fetus. While in the case of a fertilized embryo, the Court issued a decision on so far in terms of fetal Convention provides no interpretation. In its judgment of 10.4.2007 on Evans v. the United Kingdom, (Evans v. The United Kingdom (2007), judgment, application no. 6339/05, § 56) the Court held that | 311 the fertilized embryo, which remained outside the womb, is not a subject “the right to life within the meaning of Article 2”. Similarly, acting on its basis Commission and the Court did not decide to make it clear from when and to what extent human fetal protection under the Convention should be available. Therefore this issue was moved to the area, which includes the so–called “margin of appreciation” of countries that have ratified the Convention. The legitimacy of the location of this issue in the national orders of the Court itself pointed out, stating that “the issue of when the right to life begins comes within the margin of appreciation which the Court generally considers that States should enjoy in this sphere, notwithstanding an evolutive interpretation of the Convention, a «living instrument which must be interpreted in the light of present–day conditions»” (Vo v. France (2004), judgment, application no. 53924/00, § 82 and Tyrer v. the United Kingdom (1978), Series A no. 26, pp. 15–16, § 31). At the same time as indicated in the commentary to the Convention, L. Garlicki, P. Hofmański and A. Wróbel “at the same time it is accepted that the public interest may justify regulations that protect unborn life, which means that abortion issues are dealt with primarily in the perspective of Article 8” (Garlicki L., Hofmanski P., Wróbel A., (2010) pp. 554). In any of these cases due to the fact that no the religious aspect were raising the Court did not address directly the beliefs or lack of beliefs of applicants. As for the question, which would refer to the issue of human’s life end until now it was not the subject of decisions of the Court. 2. Place of freedom of thought, conscience and religion in ECHR Under the Convention protected religious issues are primarily based on Article 9 of the European Convention for the Protection of Human Rights and Fundamental Freedoms (ECHR), which provides for freedom of thought, conscience and religion. The scope of this freedom treated as one of the fundamental in a democratic society. This means that it is treated as “ one of the most vital elements that go to make up the identity of believers and their conception of life, but it is also a precious asset for atheists, agnostics, sceptics and the unconcerned” (Kokkinakis v. Greece, (1993), judgment, application no. 14307/88, § 31). Simultaneously it must be held that the freedom expressed in Article. 9 does not come in clearly in their content of other provisions that make up the universal catalog of human rights. In § 1 of Article 9 found a state that everyone has the right to freedom of thought, conscience and religion. The scope of this right includes freedom to change his religion or belief and freedom, either alone or in community with others and in public or private, to manifest his religion or belief, in worship, teaching, practice and observance. According to the editorial in the first sequence are protected sphere of inner realization of this freedom (forum internum) precludes any interference by the public, and only then draws attention to the aspect of the manifest (forum externum), which is likely to have a sphere (and as shown by the case–law causes) possible interference of the state. The division is also supported by the wording of § 2 of Article 9, under which it is the freedom to manifest one’s religion or beliefs may be subject to restrictions (Renucci J–F., (2005) pp. 10). In a similar way as for other regulated rights the obligations imposed by the Convention were set for the public authorities. They have not only negative nature which is to refer to the prohibition of arbitrary interference from the authorities, but also includes taking positive actions to law and fact by the exercise of this freedom. The typicality of solutions in the interpretation and application of Article 9 shows the fact of leaving the national authorities ‘margin of appreciation’, which allows you to take into account the case law of social and cultural context of the case “ (Garlicki L., Hofmanski P., Wróbel A., (2010) pp. 562). This approach leads to correct – in my opinion – conclusion expressed by A. Wisniewski, by which the Court otherwise uses the concept of “margin of appreciation” in the cases referred to in the Article 9 than in any other undertaking moral issues (Wiśniewski A., (2008) pp. 187) 312 | It’s not possible at this point, so ignore the fact that the mean belief and religion are among the spheres not only important, but also very personal. It’s even more important to matters relating to this area have been treated in a very careful and taking into account the individuality of the individual. It must be held that the Court itself is quite well aware of that, because, according to Article 9 of the Convention, the Court points out various forms, which are a manifestation of one’s religion or belief. These include: worship, teaching, practice and observance. At the same time – as pointed out in the case law – will not be able to protect every act which would be considered only motivated or inspired by a religion or belief, and only those who have reached a certain level of seriousness, cohesion and importance (Jakóbski v. Poland, (2010). judgment application no. 18429/06). Referring to possible violations of Article 9, the Court will apply the same criteria as in Articles 8, 10 or 11, that is undergoing testing violation of legality, expediency and necessity in a democratic society. However legitimate concerns for the protection of expressed T. Jasudowicz indicating that despite the wide range of religious freedom can not be concluded that all the area is protected absolute (Gronowska B., Jasudowicz T., Balcerzak M., Lubiszewski M., Mizerski R., (2005) pp. 320). On the other hand, one can not forget that the drafters of the Convention did not put the rights of Article 9 in the catalog of non–derogated rights, but the place was awarded to freedom of thought, conscience and religion in the ICCPR. In accordance with the principle of non–contradiction interpretation of the Convention with “other international obligations” should be considered that the States Parties to the Covenant is not related to derogate from the obligations of their Article 9 (Wiśniewski L., (1991) pp.15–16). 3. Case – law analysis The European Commission of Human Rights (ECHR) and the European Court of Human Rights (ECHR) had a chance to take your questions on religious considerations, to a lesser extent than was done in relation to other rights and freedoms. It was made in the context of issues that directly relate to the violation of Article 9 (ECHR), but also other potential violations of the rights and freedoms guaranteed by the Convention. The case law in this area is, however, compared with the other liberties quite poor. The small range of case stated Gronowska B. (B. Gronowska, (2011) p 171), which states that as on 31.12.2010 only 35 of the ECHR issued judgments concerning violations of Article 9 of the ECHR. In examining the situation as at 31.12.2012 should be noted that this number has increased by only 13 judgments for a total amount of 48 legal decisions of the Court and the Commission. The surprising and even startling is the fact that such an important freedom relating to both aspects of the faith as well as its individual and congregational practice not included in the circle of intense discussion in the Strasbourg organs. Moreover, at an early stage, when things were examined by the Commission on Human Rights, in the case of handling the complaint for breach of Article 9 of the award–negative decisions were taken (B. Gronowska, (2011) pp. 171). According to L. Garlicki this state of affairs was mainly due to the fact that freedom of thought, conscience and religion is in relation to other rights protected under the Convention, in particular with respect for the right to private and family life (Garlicki L., Hofmanski P., Wróbel A., (2010) pp. 574). Boundary – the initial and final – points of human life should be regarded as those in which the are issues of religion is particularly important. This is justified by the fact that in many cases it is the religion giving answers to some of the most fundamental human’s life questions about where we come from and where we are going. It seems that, is so appropriate to analyze religious issues not only in the strict context of breach of Art. 9, but also focus on other human rights violations and on that, as far as the ECHR recognizes the need to take into account the religious aspect in its case. This applies to both: the context of the infringement, which the Court’s judgments and the Court’s justifications provided. | 313 From the point of view of the analysis of other outside Article 9 of judgments the specific importance will be those that focus on violations of the right to privacy or the right to respect for family life while taking into account the importance of religion is in the area of privacy and family life. The case Pichon and Sajous v. France (Pichon and Sajous v. France, (2001). decision, application no 49853/99) can be considered quite distantly related to the boundary points of life. In the case of acceptance a assumption of possibility to use conscientious objection case may be deemed to be boundary in terms of aimed, or rather the life that might occur. The applicant – pharmacists relied on his religious beliefs and refused to sell contraceptives. As a result, the court imposed a fine on the basis of consumer protection legislation. The Court in this case was two important issues. First, the Court had to determine whether the judgment indicated, there was a manifest religious beliefs. To answer this question, it has proved necessary to examine whether Article 9 of the ECHR protects the personal beliefs and religious beliefs, which can be described as the “individual freedoms of conscience” and that willingly are also acts of devotion, worship is closely associated with a conscience. Secondly, it was necessary to distinguish between two important spheres relating to manifest beliefs: the public sphere, which confronts the views of the views of other members of the community, and private, which has a range of only a unit and do not touch in any way other members of the community. In this case, the Court considers the freedom of Article 9 came into the public sphere, as sales of contraceptives as long as it is legal and is done only on prescription in pharmacies and can not be treated by the applicants, as a violation of their religious beliefs and the reasons for its refusal to sell such products. Court added that can manifest their religious beliefs concerning the protection of beliefs in many ways outside the professional sphere (Pichon and Sajous v. France, (2001)). It follows that the conviction of the applicants refuse to sell does not affect the exercise of the rights guaranteed by Article 9 of the Convention, and that the application is manifestly ill–founded within the meaning of Article 35 § 3 of the Convention. Very similar in terms of conscientious objection should be analyze the case Tysiąc against Poland. What is interesting in this case, despite the fact that the applicant actually intervening organizations – explicitly argued that it was the use of the mechanism by Gynecologist “conscience clause” ill–founded within the meaning of Article 35 § 3 of the Convention (Tysiąc v. Poland, (2007). judgment, application no. 5410/03, ICCPR Committee, p. 50, ASTRA Network on Reproductive Health and Rights in Central and Eastern Europe for the European Population Forum, p. 51 and The Forum of Polish Women, pp. 96) combined with the lack of legal mechanisms responsibility of the physician was the cause of the deterioration of her health. Court decision in the case went straight to the considerations on the basis of Article 8 on the other hand, as is emphasized in the literature (Nawrot O., (2012). pp. 12) there is no explicit reference to issues of freedom of conscience should be considered by the ECtHR confirmed the need for this mechanism. At the same time according to the Memorandum of women’s health care issues (Puppinck G., Wenberg K. J. (2010) pp.5–6) and matters discussed in the Bouessel Jean du Bourg v. France relationship between certain omissions (including the payment of taxes) on the basis of conscientious objection and the situation that caused the failure (including financial aspects of abortion case), can not be too far away (Sobczak J., Gołda–Sobczak M., (2012).p 34–35). Many more aspects of religion applies to the second border point namely death. Admittedly, as was mentioned at the beginning, the ECHR did not refer directly to determine the moment, it matters including issues relating to death, or even post–mortem issues appear slowly in the case law. It should also be noted that the same subjects taking the death very often associated with religion. It should be recognized that the compound has its justification in anthropology, because as shown by the researchers (Bowker, J., (1996). pp.14–15) is an end to the mystery of life and death are the inspiration for religious beliefs. Context of death appeared – although to a limited extent – in often commented Case Pretty 314 | v. the United Kingdom. Alleging a violation of the rights guaranteed by the ECHR, the plaintiff entered into them, a reference to Article 9, in its opinion, to ensure the right to manifest beliefs about assisted suicide. The Court, however, has taken on this point considering that „as found by the Commission, the term «practice» as employed in Article 9 § 1 does not cover each act which is motivated or influenced by a religion or belief (see Arrowsmith v. the United Kingdom, no. 7050/77, Commission’s report of 12.10.1978, DR 19, p. 19, § 71)” (Pretty v. The United Kingdom (2002), judgment, application no. 2346/02) and, consequently, found no grounds for violation of the rights guaranteed by this article. In the context of respect for freedom of thought conscience and religion is of great importance to the case X v. Germany (X. v. Germany, (1981). decision, application no. 8741/79). Considered by the dispute concerned a situation in which the applicant alleged a breach against him by the German administrative law by prohibiting the spill after the death of his ashes on private property. According to the applicant’s refusal to allow such action violated his right to freedom of thought, conscience and religion by that otherwise would be buried in the cemetery of Christian symbols. Analyzing the admissibility of the case, the Commission decided on broader grounds, including both the issue of scattering the ashes on private property and the issue of burial in the cemetery of religious symbols. With regard to the first issue, which is whether Article 9 protects the right to be buried on their own land, the Commission recalled that not every “practice,” not every act carried out under the influence of religion or belief can count on the protection of (Arrowsmith v. The United Kingdom (1977) decision, application no 7050/75). The Commission also did not see that desire such burial could be considered as a manifestation of faith within the meaning of Article 9 (Murdoch, J. (2012) pp.17). In order to meet the need to justify their position, the Commission also stated in Article 8 securing the right to privacy and concluded that the place and manner of burial despite the fact that they are carried out after the death of individuals, however, remain in the area is protected by privacy. In this particular case when it was still necessary to decide whether the decision of the German authorities is acceptable or unacceptable interference in the right to privacy. The Commission underline that, although the rules for cemeteries and burial of the dead, as a rule, give some freedom in choosing the method of burial, it is possible to make the burial or scattering of ashes outside the cemetery are limited to exceptional cases. Justifying the uniqueness of the Commission stressed that the aim of the German legislator was to ensure a peaceful rest and proper treatment delay and appropriate ceremony. The Commission also noted that not every regulation for burials is an interference with the right to respect for private life. In the context of the second issue, the Commission has come to two important conclusions. The first stated that the fact buried in a public cemetery can not be treated as a breach of Article 9, since the applicant has the right to freedom to decide on the manner in which his funeral will be held. It is also possible to decide on the appearance of the tombstone, and on whether the symbols are placed on it. It has been identified – as later on Lautsi case – that the acess to the symbols may occur in other places and it ‘s no possible to protect someone from this access. Secondly, the Commission considers that the possession and exercise of the rights guaranteed by Article 9, can not lead to prevent others from benefiting from public cemeteries decide decorate graves and symbols to be placed on them. Consequently, the complaint was inadmissible. Aspect of the place of burial has also been stressed in Case Johannische Kirche and Peters v. Germany (Johannische Kirche and Peters v. Germany (2001), decision, application no. 41754/98). The applicant Johannische Kirche a member of a religious state authorities alleged violation of Article 9 of the ECHR by issuing a ban on the construction of the chapel and cemetery. Authorities’ refusal was dictated by the cemetery located in the protected area, which were stored Wildlife Park. According to the applicants, the construction and maintenance of the cemetery was not only an expression of the freedom to practice their own religion, but were also the freedom of religion as such. The application inadmissible ECtHR held that the Convention does not protect | 315 every act motivated or inspired by a religion or belief. The importance of religion in the family for burial extent of the law provides grant him though indirect, but effective legal protection. The extent and source of this protection became the subject of the settlement of the ECtHR on Panullo and Forte, which concerned the delay in delivery of the corpses of their deceased daughter. The girl, who died after an unsuccessful surgery has been subjected to an autopsy and an additional medical examination. The aim was to determine whether and to what extent the operation carried out in France, could affect the death. They considered that the French authorities unduly delay would agree with their right to respect for their private and family life. Consequently reconciled Article 8 ECHR, which provides that: „Everyone has the right to respect for his private and family life, his home and his correspondence” (Convention for the Protection of Human Rights and Fundamental Freedom, Article 8). Although the Court held that the article was primarily intended to protect the individual against arbitrary interference by the public authorities. In this case, however, it can also include positive obligations associated “respect” for family life. It further considered that, given the circumstances of the case, and particularly dramatic for applicants nature of the loss of their child (daughter’s young age, strong emotional ties, the importance of religion in the life of the family), the French authorities have not preserved the proper balance between the applicants’ right to respect for their lives private and family life and the legitimate aim pursued and thus violated Article 8 of the ECHR that (Pannullo and Forte v. France,(2001), judgment, application no. 37794/97). Such a broad interpretation of this article is to guarantee respect for the rights of the family, not only when all its members live, but also ensures the protection of the deceased and connects them the right to be buried with the rules of the family on to claim a guarantee for the posthumous dignity and peace. It appears that the Court was able to lead discussion on the basis of Article 9, the violation of the child’s parents, although they did recognize, but in the context of a high ease of moving the base consideration of the Court could be applied. It is hoped that a more extensive discussion can be found in the application Kelimat Akhmatovna Sabanchiyeva and Others against Russia, which the Court has yet to be resolved. This case concerns fifty Russian citizens who live in the Republic of Kabardino–Balkaria. In the complaint, they allege that the refusal to return the bodies of their dead relatives of the deceased violated rights guaranteed by Article 3 of the Convention. The applicant also argued that the violation of Article 3 are also the conditions in which were stored the body in the morgue in the city of Nalchik. As individual applicants they raised – in the context of the above activities – an infringement of Article 8 and Article 9. In addition to its action, the applicant also drew attention to the fact that the government refused to produce copies of documents from the investigation file and other information about the dead and that the authorities have made secretly cremated the bodies. It is interesting that the applicant had referred in his argumentation from the judgment of the Inter–American Court of Human Rights dated 15.6.2005 in the case Moiwana Village v. Suriname. This case concerns settlement Moiwana, which was attacked and its 39 inhabitants – members of the tribe N’djuka – were killed. Those of members who survived mascara wanted to bury bodies in accordance with the corresponding beliefs and rituals. Unfortunately, it turned out that the procedure for recovery of bodies is difficult, and also found that some of the bodies were burned, which from the perspective of beliefs, of this group is not allowed. Referring to this issue, the applicants stated that: 86(7). The N’djuka have specific rituals that must be precisely followed upon the death of a community member. A series of religious ceremonies must be performed, which require between six months and one year to be completed; these rituals demand the participation of more community members and the use of more resources than any other ceremonial event of N’djuka society. 86(8). It is extremely important to have possession of the physical remains of the deceased, 316 | as the corpse must be treated in a specific manner during the N’djuka death rituals and must be placed in the burial ground of the appropriate descent group. Only those who have deemed evil do not receive an honourable burial. Furthermore, in all Maroon societies, the idea of cremation is considered very offensive. 86(9). If the various death rituals are not performed according to N’djuka tradition, it is considered a moral transgression, which will not only anger the spirit of the individual who died, but may also offend other ancestors of the community. This leads to a number of ‘spiritually–caused illnesses’ that become manifest as actual physical maladies and can potentially affect the entire natural lineage. The N’djuka understand that such illnesses are not cured on their own, but rather must be resolved through cultural and ceremonial means; if not, the conditions will persist through generations. The applicants compare their situation to relatives of the victims and the settlement of The Inter–American Court relating to the conclusion that “.. one of the greatest sources of suffering for the Moiwana community members is that they do not know what has happened to the remains of their loved ones” (Sabanchiyeva and Other v. Russia judgment, application no. 38450/05). Recall in such a wide range of arguments relating to the rituals and beliefs may make it necessary to resolve the case to a greater extent on the basis of Article 9 than, as was the case in previous cases, the move to the considerations on the basis of Article 8, in particular, that in support of the admissibility of the application of indicated Article 9 The issue of implementation of A Article. 9 is particularly important in the case of persons deprived of liberty, applies to situations in which we deal with a limited capacity to manifest one’s religion, and participate in the practices associated with it (Evans M. D., (1997). § 310). In 2008, the Court decided to resolution of the case Bogdan Krym (Krym v. Poland (2008) decision, application no. 26938/05). The applicant, who served a prison sentence was notified on 21.6.2006 about the death of his mother. On the same day reported on an application for permission to attend her funeral. Also on 21.6.2006 claim was examined by negatively. The reason for a negative assessment was that the previously collected documents relating to the applicant and his behavior showed that he is a violent person who directed the threats against their neighbors. The explanatory memorandum also stated that the offense for which the applicant is serving a sentence has been committed during the conditional relief, the same was the Appellant’s recidivist who lacks respect for the social order and the prevailing rules (Krym v. Poland (2008)). The judicial authorities operating in the domestic law recognized the validity of a negative appraisal of the request. It should be noted, however, that neither the prison authorities or the district court did not address in their deliberations to the actual reasons for which the request was directed or – what seems to be important – did not give any reflection to participate in a funeral attended by police escort. It must be stressed that the use of such escort regulations allow. Mr. Krym direct their complaint to the Court raised another aspect, namely stated that “the refusal was contrary to Article 9 of the ECHR because, as a practicing Catholic, he considered a funeral for “ritual”. Taking into considerations of the Court in the already aforementioned case – Panullo and Forte against the France refer to this issue would be an important contribution to the perception and define the scope of the right to freedom of belief and religion. However, due to the fact that the Polish government asked the Court a statement in which it acknowledged that: „the Government hereby wish to express – by way of unilateral declaration – their acknowledgement that the refusal to allow the applicant to attend the funeral of his mother was not compatible with his right to respect for his family life, guaranteed by Article 8 of the Convention”(Krym v. Poland (2008), part A). Voluntarily assumed the obligation to pay compensation in the amount of 6000 dollars. Therefore Court has not had a chance to extend the scope of his discussion of the right to attend the funeral in the context of Article 9. | 317 In a slightly different aspect, but also in the context of the external borders of human life are formed matured judgment in matters of Ukrainian. The analyzed case involved the issue of the legal situation of persons deprived of their liberty. Both Mikhail Sergeyevich Kuznetsov and Borislav Yevgenyevich Poltoratskiy Ukrainian courts were sentenced to death, which is fine provided contemporary Ukrainian Criminal Code. However, due to the force in Ukraine penalty moratorium has not been made, and turned it into life imprisonment. Both complainants alleged, however, that at a time when they were in prison, and their situation with respect to the feasibility or non–feasibility of the death penalty was not regulated by law they did not have the benefit of freedom of religion. In particular, it was here about the possibility of a visit from a priest. It was only after the change of regulations such contact was possible. The complainant in his argument very strongly emphasized the uncertainty of life situation, as well as a close relationship with the end of life aspect of religion. In both cases the Court, when examining the applicant’s complaints under Article 8 not under Article 9 of the Convention. The Court also observed that “the conditions of detention of persons sentenced to death were governed by the Instruction which, according to the extract produced by the Government, did not confer on persons sentenced to death the right to be visited by a priest. In addition, the Court has already concluded that the Instruction did not satisfy the requirements for a “law” within the meaning of Article 8 § 2 of the Convention”(Kuznetsov v. Ukraine, (2003). judgement, application no. 39042/97, Poltoratskiy v. Ukraine, (2003), judgment, application no. 38812/97) It must therefore be concluded that the Court operates more freely than the scope of Article 8 Article. 9 of which are raised and religious issues. Nevertheless, should be pointed out that the conclusions clearly highlighted the violation of Article 9, which may be a positive signal in terms of further references. 4. Summary As the analysis of the presented case law the complex considerations relating to religious issues covered by the guarantees arising out of Article 9 are not very common in the judicial practice of the Court. Considerations in cases in which Article 9 is applicable are often transferred to the the ground of Article 8. However, it seems that this trend should change over time. It is in this aspect can play a key role in matters relating not so much the initial (due to the controversial nature), but last stages of life. Examples of such claims could be those which, although to date the Court has not yet flowed complaints and allegations which have arisen concerning the protection of rights of the family of the deceased. In accordance with the regulations in the field of international human rights law, family law to decide about the fate of person’s body in connection with religious issues is protected from the point of view of the right to freedom of thought conscience and religion, including manifest this religion or belief (Convention for the Protection of Human Rights and Fundamental Freedoms, Rome 4.11.1950. International Covenant on Civil and Political Rights, adopted and opened for signature, ratification and accession by General Assembly resolution 2200A (XXI) of 16.12.1966). At the same time it should be held that this right may be restricted in order to protect public safety, order, health, morals, or the rights and freedoms of others. The interference must be considered reasonable to carry out necropsy in the case of a person whose death was a result of illness that could endanger others. Such action can take place even if there is opposition from the family. In the context of death, it seems particularly important to provide assistance to the above– mentioned members of the clergy. According to the universal and regional human rights standards, each person has the right to freedom of thought, conscience and religion and the right to 318 | manifest their religion through religious practices, the worship and rituals. It is in the context of worship and religious rituals presence may be necessary – as is the case with confession. In addition, as a Human Rights Committee, the right is “far–reaching nature and deep”, and its importance is reflected “in the fact that the provisions of this derogation can not be made public even during a state of emergency” (Jasudowicza T., red. (1998). pp. 375–276, General Comments of the Committee of Human Rights, 20.7.1993). It is the aspect of no exceptions should in my opinion be highlighted in the explanatory judgments against Ukraine. An opportunity to highlight the importance of Article 9 is also the matter of the death of Polish citizens in the Soviet Union. In the case Danuta Kraczkiewicz and Others against Russia (Danuta Kraczkiewicz and Others against Russia (2010) Decision as to admissibility) the applicants argued violation of Article 9, by the fact that “they had been unable to pay their respects to their relatives in accordance with their religion”. Unfortunately, as a result of the complaint as inadmissible the Court did not have the opportunity to settle the merits of this claim. In summary the previous considerations it can be concluded that religious issues more often and more clearly appear in the case law of the Court in situations where he has to decide issues relating to the end of human life. This may be due the fact that the presence of religious reflection is also more frequently and takes on particular importance and not so controversial matter. Secondly, it should be noted that it would be required of some broader and perhaps more courageous need of using the Article 9 as in complaints brought before the Court and in Court’s jurisprudence. Not without significance is the fact that, a separate regulation of freedom of thought, conscience and religion were made. Already in the travaux preparatoireis, which underlined that freedom is a „measures for the fulfilment of the declared aim of the Council of Europe, in accordance with Article 1 of the Statute, in regard to the safeguarding and further realisation of Human Rights and Fundamental Freedoms” (European Commission of Human Rights, Preparatory work on article 9 of the Convention of Human Rights). If a state party to the Convention would recognize no need of separate regulation probably the drafters of the Convention would not extract the Article 9 If, however, he appeared in the Convention should be used so as not to become, a dead letter of law. In this context, it seems that it is worth the Court spent a little more attention on the Article 9, especially the right to freedom of thought conscience and religion are treated as fundamental to Europe (Gomien, D., Harris, D. and Zwaak L. (1996). pp.263). Also taking into account the importance of religion in the lives of many people, it is important to guarantee the non–related were not illusory. References Arrowsmith v. The United Kingdom (1977) decision, application no 7050/75, http://hudoc.echr. coe.int/sites/eng/pages/search.aspx?i=001–74916, [Accessed 10 July 2013]. Bowker J., (1996). Sens śmierci, Warszawa, PIW. Convention for the Protection of Human Rights and Fundamental Freedoms, Rome 4 November 1950. Danuta Kraczkiewicz and Others against Russia (2010). decision as to admissibility, applications no. 15120/10, 17883/10 and 13626/11, http://hudoc.echr.coe.int/sites/eng/pages/search. aspx?i=001–105936, [Accessed 10 July 2013]. European Commision of Human Rights, Preparatory work on article 9 of the Convention of Human Rights, http://www.echr.coe.int/library/DIGDOC/Travaux/ECHRTravaux–ART9– DH%2856%2914–EN1338892.pdf, [Accessed 10 July 2013]. Evans M. D., (1997). Religious Liberty and International Law in Europe, Cambridge. Evans v. The United Kingdom (2007), judgment, application no. 6339/05, http://hudoc.echr.coe. | 319 int/sites/eng/pages/search.aspx?i=001–80046, [Accessed 10 July 2013]. Garlicki L., Hofmanski P., Wróbel A., (2010). Konwencja o Ochronie Praw Człowieka i Podstawowych Wolności. Tom I. Komentarz do artykułów 1–18, Warszawa, C. H. Beck. Gomien, D., Harris, D. and Zwaak L. (1996). Law and Practice of the European Convention on Human Rights and the European Social Charter, Strasbourg: Council of Europe Publishing. Gronowska B., (2011). Europejski Trybunał Praw Człowieka. W poszukiwaniu efektywnej ochrony praw jednostki,, Toruń, TNOiK. Gronowska B., Jasudowicz T., Balcerzak M., Lubiszewski M., Mizerski R., (2005), Prawa człowieka i ich ochrona, Toruń, TNOiK. International Covenant on Civil and Political Rights, adopted and opened for signature, ratification and accession by General Assembly resolution 2200A (XXI) of 16.12.1966. Jakóbski v. Poland, (2010). judgment application no. 18429/06, http://hudoc.echr.coe.int/sites/ eng/pages/search.aspx?i=001–102121, [Accessed 10 July 2013]. Jasudowicza T., red. (1998). Wspólny standard do osiągnięcia – stan urzeczywistnienia: w pięćdziesięciolecie Powszechnej Deklaracji Praw Człowieka z 10 grudnia 1948 roku, Toruń, TNOiK. Johannische Kirche and Peters v. Germany (2001), decision, application no. 41754/98 http://hudoc.echr.coe.int/sites/eng/pages/search.aspx?i=001–22589, [Accessed 10 July 2013]. Kokkinakis v. Greece, (1993), judgement, application no. 14307/88, http://hudoc.echr.coe.int/ sites/eng/pages/search.aspx?i=001–57827, [Accessed 10 July 2013]. Korff D., (2006). The right to life. A guide to the implementation of Article 2 of the European Convention on Human Rights, Human rights handbooks, No. 8. Krym v. Poland (2008) decision, application no. 26938/05, http://hudoc.echr.coe.int/sites/eng/ pages/search.aspx?i=001–89178, [Accessed 10 July 2013]. Kuznetsov v. Ukraine, (2003). judgement, application no. 39042/97, http://hudoc.echr.coe.int/ sites/eng/pages/search.aspx?i=001–61060, [Accessed 10 July 2013]. Murdoch J. (2012). Protecting the right to freedom of thought, conscience and religion under the European Convention on Human Rights,Council of Europe human rights handbooks,Strasbourg. Nawrot O., (2012). Klauzula sumienia w zawodach medycznych w świetle standardów Rady Europy, Zeszyty Prawnicze Biura Analiz Sejmowych i Kancelarii Sejmu, 3(35) pp.11–22. Pannullo and Forte v. France,(2001), judgement, application no. 37794/97, http://hudoc.echr.coe. int/sites/eng/pages/search.aspx?i=001–59868, [Accessed 10 July 2013]. Pichon and Sajous v. France, (2001). decision, application no 49853/99, http://hudoc.echr.coe.int/ sites/eng/pages/search.aspx?i=001–22644, [Accessed 10 July 2013]. Poltoratskiy v. Ukraine, (2003), judgment, application no. 38812/97, http://hudoc.echr.coe.int/ sites/eng/pages/search.aspx?i=001–61059, [Accessed 10 July 2013]. Pretty v. The United Kingdom (2002), judgement, application no. 2346/02, http://hudoc.echr.coe. int/sites/eng/pages/search.aspx?i=001–60448, [Accessed 10 July 2013]. Puppinck G., Wenberg K. J. (2010) ECLJ memorandum on the PACE report on Women’s access to lawful medical care: the problem of unregulated use of conscientious objection, http:// eclj.org/pdf/ECLJ_MEMO_COUNCIL_OF_EUROPE_CONSCIENTIOUS_OBJECTION_McCafferty_EN_Puppinck.pdf, [Accessed 10 July 2013]. Renucci J–F., (2005), Article 9 of the European Convention on Human Rights, Freedom of thought, conscience and religion, Strasbourg. Sabanchiyeva and Other v. Russia judgment, application no. 38450/05 http://hudoc.echr.coe.int/ sites/eng/pages/search.aspx?i=001–120070, [Accessed 10 July 2013]. 320 | Sobczak J., Gołda–Sobczak M., (2012). Wolność sumienia i wyznania jako prawo człowieka, Uniwersutatis Mariae Curie–Skłodowska, Lublin, vol. XIX pp. 27–65. The Universal Declaration of Human Rights (UDHR), proclaimed by the United Nations General Assembly in Paris on 10.12.1948. Tyrer v. the United Kingdom (1978), Series A no. 26, pp. 15–16. Tysiąc v. Poland, (2007). judgement, application no. 5410/03, http://hudoc.echr.coe.int/sites/ eng/pages/search.aspx?i=001–79812, [Accessed 10 July 2013]. Vo v. France (2004), judgment, application no. 53924/00, http://hudoc.echr.coe.int/sites/eng/ pages/search.aspx?i=001–61887, [Accessed 10 July 2013]. Wiśniewski A., (2008). Koncepcja marginesu oceny w orzecznictwie Europejskiego Trybunału Praw Człowieka, Gdańsk. Wiśniewski L., (1991). Wolność sumienia i wyznania w europejskiej konwencji praw człowieka i w prawie polskim, „Państwo i Prawo”, No. 8, s. 15–26. X. v. Germany, (1981). decision, application no. 8741/79, http://hudoc.echr.coe.int/sites/eng/ pages/search.aspx?i=001–73753, [Accessed 10 July 2013]. | 321 322 | Magdalena Kun-Buczko [email protected] Stanislaw Staszic College of Public Administration in Bialystok The right to humanitarian assistance- challenge of the present world Abstract Present world experience a big number of natural catastrophes like floods, earthquakes, tornados etc. The most frequent reaction of the international community on that is humanitarian assistance. What is the status of this institution? Is it possible to say that in the name of basic human rights like the right to life or the right to health people have a right to be assisted? Is it possible to confirm that within various systems of human rights protection the right to humanitarian assistance exist? The other question arise according the concept of third generation of human rights. What is their legal status especially the right to humanitarian assistance. Keywords: humanitarian assistance, human rights, natural disasters, generation of human rights, soft law 1. Introduction Present world and international community face many situations that imply necessity to assist people in need. Those situations include natural disaster such as floods, earthquakes, tornados, volcanoes eruptions and armed conflicts. In those situations various human rights and dignity is put on the test of the effectiveness. People affected by these tragedies are usually deprived of the achievements of their whole life, they loose their houses and also the members of their families. Their living conditions worsen, the diseases spread they have no job, schools are closed, they suffer the luck of the basic lifehoods. In such situations the connections with human rights seems to be obvious. Between several question arising while analyzing this subject one of them seems to be very important: can we confirm the existence of the right to humanitarian assistance? Whether analyzing various systems of human rights protection can we point to the existence of the right to humanitarian assistance? Does the absence of a specific rule confirming the existence of a right to humanitarian aid can be justified by the other rights already recognized? Is it possible to conclude that the right to humanitarian assistance is implemented in an indirect way while performing other rights like right to life, right to health or education? And finally can we confirm that the humanitarian assistance impact to some extent on the protection of existing human rights? Those and other questions outlined the scope and the main objectives of the research. Beside defining the terms of human rights and humanitarian assistance the author’s aim is to put the attention on the possible existence of the right to humanitarian assistance within the existing systems of human rights protection. Next issue that will be examined is the concept of the third generation of human rights through the lens of the right to humanitarian assistance. It is important to stress that author will not examine the regulations of International Humanitarian Law, which define humanitarian assistance and regulate the conditions of providing the actions. The main attention will be put on the phenomenon of the humanitarian assistance provided as a response for natural disaster. Besides the author will try to answer the question if there is a existing right to humanitarian assistance while talking about human rights- systems of protection, generations etc. | 323 2. Humanitarian assistance and human rights Within various ideas and views for these matters for the purposes of this research it is necessary to define the institution of humanitarian assistance and human rights. Humanitarian assistance is the most frequent reaction of the international community for the natural disasters and the armed conflict. We usually fell responsible for those who are affected by floods, earthquakes or war. The term humanitarian assistance seems to be used very often, broadly and intuitively. Hearing the news about any population affected by natural disasters people’s reaction is provision of goods essential for the preservation of life such as food, medical supplies, shelters, water, sanitations etc. Despite the fact that humanitarian assistance is provided very often in present international relations there is no one acceptable definition of that term. Taking into consideration majority of the doctrine there are some common elements which can be used to accomplish the definition of humanitarian assistance- non armed action provided by impartial subject, that acts in the name of humanity to the victims of armed conflicts and natural disasters by providing the food, medicaments or shelter. The action can be provided after the permission of the state authorities.1 B. Jakovljevič indicates that the main aim of humanitarian assistance is to guarantee the respect of basic human rights like right to live or right to health. The main factor determining the decision of provision the aid is the big number of affected people who suffer in the consequence of particular situation. The state authorities became vulnerable to fulfill all the need of affected persons, so they call the international community to be assisted.2 Humanitarian assistance is today understood as the most prominent activity within the broader concept of “Humanitarian action”. 3 It is very important to underline here, that the distinction between humanitarian assistance and humanitarian intervention must be done. Despite both of those terms include world “humanitarian”, they differ in the most important matter- use of force and the consent of the state concerned.4 Such statement is also followed by P. Macalister- Smith5 and A. Truyol and Y. Serra.6 In one of the ICJ judgments we can find the definition of humanitarian assistance as “delivering food, clothes, medicaments and other stuff besides the weapon”. 7 The controversies in establishing one definition are inevitable. For the purpose of this article humanitarian assistance will mean operations aimed at people who are in emergency situations caused by natural disasters in order to meet their main necessities of life such as food, water, medicaments and shelter. Trying to answer the question posed in the introduction there is also the necessity of defining the term of human rights. The concept of human rights, although used very often in the literature, is marked by the ambiguity of concepts and reasoning. Quite significant differences in the definition of human rights results in a multiplicity of proposals and the lack of a uniform definition of human rights. Analyzing the definitions presented by various representatives of the doctrine we may encountered the three groups of positions. One concerns ideas, according to which human rights are certain regulations that are confirmed by legal norms.8 The second group is represented by the authors for whose human dignity is essential for the confirmation of human rights.9 And the third group combines the features of the first two fixing human rights in the human dignity and legal norms.10 Analyzing the literature in that matter it is easy to observe that human rights are the subject of interests of many disciplines such as law, philosophy, or sociology. For each of these groups there are different elements which are essential and crucial. While for lawyers legal norm became the most important, the human dignity comes first for the philosophers. For the purpose of this article the term of human rights will represent assumptions of the third group- legal norms (treaty 324 | or customary) indication the scope of rights dedicated to the individuals and the subject that is responsible to meet the obligations. Human rights refer to the supposed basic rights and freedoms to which all humans are entitled and derive from human dignity. 3. Humanitarian assistance and systems of human rights protection According to the above mentioned definitions the link between the humanitarian assistance and human rights seems to be obvious. But is it enough to confirm the existence of the right to humanitarian assistance? Global achievements in the human rights protection seems to be impressive. We can talk about the existence of several distinct and independent human rights protection systems- universal and regional (eg. Council of Europe, European Union, African, Arabic). Do analyzing the particular systems of human rights is it possible to assure the existence of the right to humanitarian assistance? Does the absence of a specific legal norm confirming the existence of a right to humanitarian aid can be justified by other existing right? Is it possible to conclude that the right to humanitarian assistance is implemented in an indirect way while performing other rights such as the right to life, health, or education? And finally, is it possible to confirm that humanitarian assistant support to some extent the implementation of existing human rights? The extent of this article is limited so the author will present partly the results of the research. United Nation human rights system does not have a legal norm, which directly points to the existence of a right to humanitarian assistance. However, in the doctrine is common to see the statement that the “right to humanitarian assistance” can be derived from certain existing regulations, or that constitutes a part of the content of other rights, or the measures to be taken by various subjects to implement that law. There are certain laws, such as the right to life, which in case of natural disaster are an infringement. In such situations humanitarian aid could be a kind of “support” for the effective implementation of these laws. Supplies of food, medicine, shelter, and assistance for reconstruction of the affected areas may be the implementation of humanitarian aid and also the assurance of basic human rights. Among the international treaties, in the context of humanitarian aid the special attention should be put on UN Charter11. According to the article 1.3 the purpose of the UN is: “to achieve international co-operation in solving international problems of an economic, social, cultural, or humanitarian character, and in promoting and encouraging respect for human rights and for fundamental freedoms for all without distinction as to race, sex, language, or religion”. Art 2.5 says: “all Members shall give the United Nations every assistance in any action it takes in accordance with the present Charter.” It follows that the obligation to cooperate with other members of the international community is incumbent upon all members of the United Nations. The above statement “any action taken by the United Nations” clearly implies the humanitarian assistance. From the point of view of the analyzed issues it is important to highlight the content of art. 6 of the International Covenant on Civil and Political Rights.12 It confirms one of the most important existing human right- the right to life- “every human being has the inherent right to life. This right shall be protected by law. No one shall be arbitrarily deprived of his life”. The content of this article confirms that there should be created the conditions so the right to life under any circumstances must not be restricted. This is a joint effort to create such an international order that will protect this right. The common denominator in this argument is the fact that both the lack of peace, lack of access to food or medical care, living in a polluted environment is nothing but a threat to the right to life. From the point of view of humanitarian aspect the serious problem seems to be idle state when, due to starvation, epidemics, lack of safe water, medicaments, or shortage of health professionals are exposed to thousands of human beings. As a conclusion it can be said that the | 325 State is responsible for its own citizens, and that failure in need of humanitarian assistance is a violation of the right to life. The Human Rights Committee expressed the opinion that the right to life contained in the International Covenant on Civil and Political Rights requires states to take positive steps to protect the right to life.13 It may be assumpted that in case of natural disaster state authorities being inefficient to fulfill the obligations arising from art. 6 of the Covenant, should ask the international community to be assisted and let other entities to provide humanitarian operations. Such a statement seems to be not surprising, because in many UN documents we can find the opinion, that the luck of humanitarian assistance and abandoned the people affected in case of natural disaster constitutes the violation of the right to life and human dignity. 14 Analyzing the provisions of the Covenant on Economic, Social and Cultural Rights in the context of humanitarian assistance it is important to stress the provisions contained in art. 11 recognizing „the right of everyone to an adequate standard of living for himself and his family, including adequate food, clothing and housing, and to the continuous improvement of living conditions.”15 To achieve this goal states need to cooperate, including the provision of humanitarian assistance. The examples of the regulations presented in this section confirm the luck of legal norm confirming the existence of the right to humanitarian assistance. Looking at it from the point of view of the specific circumstances, the right to life, health, education, work etc. may be violated in case of natural disaster Therefore, people affected should receive humanitarian assistance in order to protect other rights, in particular the right to life and health. Concluding the humanitarian assistance may influence, sometimes even facilitate the realization of human right confirmed in other legal norms. In addition to the universal system of human rights protection there have been also created other systems so called “regional”. These include the system of human rights protection created by the Council of Europe, the Organization for Security and Cooperation in Europe, the European Union and African, Arabic and Interamerican. What is the role of humanitarian assistance in regional systems? Can we confirm existence of the right to humanitarian assistance in these norms? The scope of this article and the limits given by the editors do not enable to present all of the result of the research. That is why the short implications will be made just to the human rights system created within the Council of Europe, the African system of human rights protection. A special place in the legislative activity of Council of Europe falls on European Convention of Human Rights. 16 The content of art. 2 of the Convention which states that: „Everyone’s right to life shall be protected by law”, or art. 8 „everyone has the right to respect for his private and family life, his home” implies that provision of humanitarian assistance may have crucial influence on effectiveness of this right. Further human rights, which effectiveness may be seen through the perspective of humanitarian assistance May be the right to work (art. 1), the right to health protection (art. 11), Or the right to social and medical aid (art. 13) of European Social Charter.17 Conclusion raises the same as in the case of the UN system. Despite the lack of legal norms confirming the existence of a right to humanitarian assistance its role seems to be huge. It may influence and facilitate the realization of the rights that are already confirmed. In the event of a natural disaster or other major disaster, effective relief operation may be very important for the survival of the affected population. Currently, protection of human rights on the African continent is based on the African Charter on Human and Peoples’ Rights adopted on 17 June 1981. 18 The provisions of the Charter are reflected by the African tradition and the history of colonialism stigma. The essential characteristic of this document is to highlight not only the rights but also the obligations which every person has due to the family, society and the state. In terms of humanitarian assistance the regu- 326 | lation set forth in Art. Paragraph 20. 3 seems to be very important. It confirms („all peoples shall have the right to the assistance (…) in their liberation struggle”. Referring to the rights contained in the Charter, with regard to the matter of humanitarian assistance, the importance of art. 4, which guarantees the right to respect the life should be highlighted:” Every human being shall be entitled to respect for his life(…)”.We should also mention about the content of art. 15 guarantying the right to work: “every individual shall have the right to work (…”),or art. 16 confirming the right to health “every individual shall have the right to enjoy the best attainable state of physical and mental health”. Art 17 confirms the existence the right to education: “every individual shall have the right to education”. All of these rights may be violated while natural disaster occurs. From the perspective of the above mentioned document it is clear break at the disposal of individual rights and responsibilities it has the community in which exists. As an example there is art 29, which should be underline, which creates the scope of responsibilities which individual should fulfill to fully exercise the rights guaranteed. The most important duty in the context of humanitarian aid is to maintain and strengthen social and national solidarity, particularly in situations when it is threatened. This regulation fits perfectly with humanitarian assistant, because when people are suffering lack of basic of lifehoods no matter for what reason, a joint effort of the reduction is a very important issue. And assisting people in need may facilitate the realization of basing human rights. As it was mentioned above the scope of the research was much broader than described here. Summing up all of the research it is necessary to stress there is no rule of treaty law that would directly confirm the existence of a right to humanitarian assistance. It also can not be confirmed that the right to humanitarian assistance can be implemented in an indirect manner while performing other rights. However it was proofed that humanitarian assistance may influence and sometimes facilitate the realization of basic human rights like right to life, to work or to health. Therefore, despite the fact that none of the presented system of human rights protection has no legal norm confirming the right to humanitarian assistance, it can be concluded that the population affected by a specific disaster should receive humanitarian assistance in order to protect other rights, in particular the right to life and health. 4. Third generation of human rights In the context of human rights and humanitarian assistance there is a necessity to put some attention on the concept of third generation of human rights, a concept that was born as the maturity of the international community, and above all the need of the modern world. What does the division for generations of human rights mean? Is it possible to specify the right to humanitarian assistance among them? The first drafts of the idea of ​​the third generation of human rights can be found in French lawyer’s Karel Vasak idea of ​​isolating new field of international law-international human rights law.19 During the Conference in Campobello in 1978 K. Vasak mentioned the new catalog of rights belonging to the third generation: the right to life, the right to peace, the right to development, the right environment, the right to respect for common heritage of mankind, and the right to humanitarian assistance in the event of a natural disaster or other major disaster. In his innovative speech K. Vasak presented the latest trends in contemporary international relations and a new concept of life and the functioning of the international community, which was born on the background of the problems of humanity. A.C. Wellman stress that the third generation of human rights is the result of a development - from the declaration, by making the content of individual rights, and to establish mechanisms for their implementation. Just like civil rights, economic, social and cultural rights were first the subject of blank forms, so the idea of ​​the third generation also passes similar stages of development.20 Very important is the fact that a new approach to human rights is not | 327 only a desire to expand the existing catalog of human rights by another rights but is a new concept integral to the previous rights, the qualitative features of the new generation. Concept of third generation is the logical continuation and complement the already existing laws, it emerges on the basis of values ​​and rights previously recognized by the international community.21 Concept of the third generation is a certain transformation from the classical approach, where the addressee is a individual, to the modern, which shows the community-group authorized to use a specific privileges for. After World War II, in the face of global disaster of mankind, the risk of another outbreak of the war, neo-colonialism, the vast differences in the level of economics of the rich north and the poor south gave birth to a new concept of human rights, which has been called the rights of third generation. Thus, for example, in response to the threat of another war would be right to peace, and the answer to economic disproportions-the right to development.22 What matters are regulated by the first two generations? The first generation includes civil liberties and political rights. The rights included in the first generation of human rights are often referred to individual attributes of humans (droits- attributs, droits de la liberte). A common feature of the first generation of human rights is that they are negative, which requires the state refrains from certain actions, or otherwise passive behavior. The basic rights of first generation include the right to life, prohibition of torture and inhuman and degrading treatment, the prohibition of slavery and servitude, freedom of conscience and religion, freedom of thought etc. The second generation of human rights includes the economic, social and cultural rights called very often the rights of equality (droits de l’egalite),which unlike the first generation rights assume a proactive stance of state in relations to its citizens. Through the second generation of human rights can be identified in particular the right to property, the right to work, the right to freedom of association etc. Construction of second generation rights is based on the recognition that the State have obligations according to its citizens. The state should ensure minimum living conditions, protection of health and access to education. State to its citizens serves as caring. Ongoing dispute over the legal status of solidarity consistently creates lack of uniformity in terms of both the subject and object- matter scope. The concept of subject is shaped at numerous levels taking into account the individual, the entire community, or both categories combined. Making the assumption that the subject is kind of the community is it possible to say that the subject oh human rights is a group instead of individual? The most frequent subjects that are invoked in the doctrine are: individuals, family, nation, state and community. It is easy to observe, that the third generation of human rights does not have a uniform concept of subject scope. So what could be the subject of the right to humanitarian assistance as a right of the third generation? It is not easy to give one and precise answer to that question, because in literature when there are information about the third generation of human rights, information about the right to humanitarian assistance concerns just putting this right on the list with no explanations. Doing, however, some assumptions, taking into account the nature of rights of third generation the subject would be the population of the state, the social group affected by a particular disaster. Taking into account the practical dimension of the analyzed problems, assuming that humanitarian aid is directed to people affected by natural disaster or other sudden disaster, the most common situation is to provide collective assistance. Following the practice the assistance is sent to a specific region of the affected countries, and not to individuals. Object –matter scope of third generation of human rights include values ​​that are possible to achieve only through the cooperation of the entire international community, inspired by a deep sense of solidarity. The statement of A. Michalska according to which at the base of collective rights lies the inability of individual satisfying them seems to be very accurate.23 In addition, the implementation of these rights is not possible at the level of either regional or national. Making 328 | some assumptions in the context of the right to humanitarian assistance, it can be stated that the object-matter scope of this law from the point of view of the victims affected by natural disaster or other major disaster to ask for help and receive it. Moreover, this right may include access to qualified entities in order to present their case and the right to participate in the distribution of assistance. From the point of view of the state authorities the scope may include the obligation of assuring the assistance to its own citizens both its funds and resources from the outside. Moreover, it may include an obligation of the State remaining in the need to allow every facility for the implementation of external assistance. And finally, from the point of view of providers of humanitarian aid the scope will cover the right to offer assistance, which will not be seen as interference in the internal affairs of the state. Moreover, it can be also included the right to provide the action after the permission of the state concerned, the right to coordinate and control the action according to the rules of neutrality and impartiality. The right to humanitarian assistance as a third generation of human right has not been confirmed in any treaty norms. It is possible to point to the regulations, which set a record on the right to humanitarian assistance, but, importantly, without reference to the generation of human rights. As an example it can be stressed that UE Council Regulation concerning humanitarian assistance in which preamble we can read: “Whereas people in distress, victims of natural disasters, wars and outbreaks of fighting, or other comparable exceptional circumstances have a right to international humanitarian assistance where their own authorities prove unable to provide effective relief”24 Concluding the reflections there is the question of the legal status of the third generation of human rights arises. If a new qualitatively collection, which is no doubt a result of evolution, the result of historical transformations can ever be considered as law? Any political, ethnic or cultural request should not necessarily receive legal confirmation.25 Referring to the considerations concerning the concept of human rights the answer should be formulated based on the definition, which was adopted by leading. Similarly, so all the rights that were confirmed by the law of treaties will be considered as rights, and those which reflection can only look at the level of soft law, for the law in the traditional sense can not be recognized. As it was mentioned above, international community pays the attention on the third generation of human rights discussing these issues on many international conferences and meetings. The proposals of codifying the right to humanitarian assistance have been submitted several times. As an example it can be used the statement of B. Jokovljevic, who underlined that the failure of the rejection of the Convention on the effective delivering of humanitarian assistance in 1994 is not the result of no need of such regulations, but it is the result of the reluctance of the states.26 This need was also expressed several times by the subject involved into provision of humanitarian assistance operations. States, however, are reluctant to attempt codification of simple, as it seems reason. Barrier is the fear of losing sovereignty, because as it was mentioned above, every operation of humanitarian assistance needs first the consent of the state concerned. Reflecting on the issue of codification of humanitarian assistance, we should think if the international community really needs the consciousness of existing legal norm on humanitarian assistance. The basis of the action seem to be not legal norm, but the solidarity and the will of assisting people in need. To proof that it is enough to take a look into the number of actions being provided, number of organizations engaged in to the operational matters and the amount of money spent on that. Nobody assists people in need because of the existing legal norms, but just because of feeling responsible for those, who are in need. Summarizing, granting the normative status for the right to humanitarian assistance is controversial. Without the confirmation in the legal norms, it would be incorrect calling “right” phenomenon, which does not fulfill its constituent elements. The right to humanitarian assistance have | 329 not obtained such confirmation yet. 5. Conclusions As it was mentioned above it is not possible to confirm the existence of the right to humanitarian assistance in the human rights systems. It is not also possible to confirm such right within the third generation of human rights. It is also not possible to confirm that the right to humanitarian law can be implemented in an indirect manner while performing other rights.But it can be said that people in need “should” be assisted in the name of humanity and morality. International community has a conscience that does not allow to stay aside while other are in need. Humanitarian assistance can play an important role and be seen as a kind of “guardian” of human rights such as right to life or right to work or education. Neither international agreement will provide the quality of implementation of humanitarian aid, nor assurance that action will be carried out. It is difficult to imagine a situation in which the states agree to adopt the treaty, which will conclude unconditional provision of carrying out the relief on their territory. The international community puts lots of attention on the development of the humanitarian assistance institution. The diversity of the legal norms for providing the humanitarian operations and the number of actions are the evidence on that. Facing different proceedings standards, reluctance of States to be bound by an international agreement, it is very difficult to imagine the consensus in this matter. References J. Patrynogič (2000), New issues for International Humanitarian Law Regarding Humanitarian Assistance, San Remo. B. Jakovlijevič (1987), Le droit a l’assistance humanitaire- aspects juridiques “La Revue International de la Croix Rouge”No. 260, Septembre- Octobre H.J.Heintze, A. Zwitter (2010), International Law and humanitarian assistance. A crosscut through legal issues pertaining the humanitarianism, Springer- Verlag, Berlin, Heidelberg, M. Torelli (1992), From humanitarian assistance to intervention on humanitarian grounds, “Internetional Review of the Red Cross” , No 228, May- June 1992, P. Macalister-Smith (1985), International Humanitarian Assistance, Disaster Relief action in International Law and Organizations, Dordrecht, Geneva, 1985, A. Truyyol Y. Serra (1994-1995) following: L.E. Fielding, Taking the next step in the development of new human rights: the emerging right of humanitarian assistance to restore democracy, “Duke Journal of Comparative & International Law”, Vol. 5, ICJ Military and Paramilitary Activities in and against Nicaragua, Nikaragua vs USA, ICJ Reports 27.06.1986, H. Waśkiewicz (1978), Prawa człowieka, pojęcie, historia, „Chrześcijanin w świecie”, nr 63-64, A. Bator (ed.) (1999), Problematyka prawa podmiotowego na tle Konstytucji RP, Konstytucja , Wrocław, K. Wojtyczek (1999), Granice ingerencji ustawodawczej w sferę praw człowieka, Kraków 1999, M. Jabłoński, S. Jarosz-Żukowska (2004), Prawa Człowieka i systemy ich ochrony, Zarys wykładu, Wrocław, Encyklopedia of Public International Law (1985) vol.8, Human Rights and the Individual In International Law. International Economic Relations, Amsterdam- New York-Oxford 1985 330 | A. Khol, (1968) Der Menschenrechtskatalog der Vőlkergemeinschaft, Wiedeń L. Hennin (1990), The Age of Rights, New York, C. Feinberg (1972), Social Philosophy, New Jersey, H. Cranston (1973), What are human rights?, London, A. Łopatka (2002), Międzynarodowe prawo praw człowieka, Zarys, Warszawa O. Höffe (1982), Menschenrechte in der Kirche [in:] Handbuch der christlichen Ethik, Bd. 3: Wege etchiser Praxis, Freiburg. United Nation Charter of 26 June 1945, Dz. U. 1947, nr 23, poz. 90 ze zm. UN.Doc. A/2200A (XXI) of 16 December 1966 International Covenant on Civil and Political Rights. D. McGoldrick, (1991) The Human Rights Committee, Oxford OAU Doc. CAB/LEG/67/3 rev. 5; 1520 UNTS 217; 21 ILM 58 (1982), http://www.hrcr.org/docs/ Banjul/afrhr.html UN.Doc. A/43/131. of 8 December 1988, Humanitarian assistance to victims of natural disasters and similar emergency situations, UN.Doc. A/43/131. 8 December 1988. UN.Doc. A/2200A (XXI) of 16 December 1966International Covenant on Economic, Social and Cultural Rights K. Vasak (1972), Le dront international des droits de l’homme. Revue des Droits de l’ Homme ”Human Rights Journal” , t. V, nr 1, C. Wellman (2000), Solidarity, the Individual and Human Rights, “Human Rights Quarterly” K. Drzewicki (1983), Trzecia generacja praw człowieka, „Sprawy Międzynarodowe” nr 10, A. Michalska (1989), Uniwersalizm praw człowieka [in:] Państwo. Prawo, Obywatel. Zbiór studiów ku czci prof. A. Łopatki, Wrocław Council Regulation (EC) No 1257/96 of 20 June 1996 concerning humanitarian aid. S. Gutwirth (1998), Le droeit a’l autodetermination entre le sutej individuel et le sutej collectif reflexions sur le cas particulier des peuples indigenes, “Reveue de droit international et de droit compar“ 75, nr 2, pp. 23. B. Jakovljevič (1997), XXnd Round Table on Current problems of Humanitarian Law, “Impact of the Humanitarian Assistance and of the mass media on the evolution of conflict situations”, San Remo, Italy 3-6 September, Information Paper. European Convention of Human Rights and fundamental freedoms signed in Rome, 4 November 1950 r. , Dz. U. 1993, nr 61, poz. 285 European Social Charter signed in Turin, 18 October 1961, Dz. U. 1999, Nr 8, poz . 67. (Endnotes) 1 J. Patrynogič, 2000, pp.5-7. 2 B. Jakovlijevič, 1987, pp. 491-494. 3 H.J.Heintze, A. Zwitter 2010, pp. 7. 4 M. Torelli, 1992, pp. 230. 5 P. Macalister-Smith, 1985 , pp.244. 6 A. Truyyol Y. Serra, 1994-1995, pp. 340. 7 ICJ Military and Paramilitary Activities in and against Nicaragua, Nikaragua vs USA, ICJ Reports 27.06.1986, pp. 57, 125. 8 See more: H. Waśkiewicz,1978, pp. 22., A. Bator (ed.), 1999, pp. 182, K. Wojtyczek, 1999, pp. | 331 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 24-29, M. Jabłoński, S. Jarosz-Żukowska, 2004, pp. 48, Encyklopedia of Public International Law, 1985, pp. 268. See more: W. Osiatyński, 1998, pp. s. 16-17, A. Khol, 1968, pp. 13, 1990, pp. 3-5, C. Feinberg, 1972, pp. 18, H. Cranston, 1973, pp. 6, A. Łopatka, 2002, pp. 9, O. Höffe, 1982, pp. 236-239. See more: J. Hołda , Z. Hołda, 2004, pp. 11, K. Hilpert, 1991, pp. 70, L. Kűhnhardt, 1987, pp. 42, F. J. Mazurek, 2001, pp. 195. United Nation Charter of 26 June 1945, Dz. U. 1947, nr 23, poz. 90 ze zm. UN.Doc. A/2200A (XXI) of 16 December 1966 International Covenant on Civil and Political Rights. D. McGoldrick, 1991, pp. 229-230. UN.Doc. A/43/131. of 8 December 1988, Humanitarian assistance to victims of natural disasters and similar emergency situations, UN.Doc. A/43/131. 8 December 1988. UN.Doc. A/2200A (XXI) of 16 December 1966 International Covenant on Economic, Social and Cultural Rights European Convention of Human Rights and fundamental freedoms signed in Rome, 4 November 1950 r. , Dz. U. 1993, nr 61, poz. 285 European Social Charter signed in Turin, 18 October 1961, Dz. U. 1999, Nr 8, poz . 67. OAU Doc. CAB/LEG/67/3 rev. 5; 1520 UNTS 217; 21 ILM 58 (1982), http://www.hrcr.org/docs/ Banjul/afrhr.html K. Vasak, 1972, pp. 43-45. C. Wellman, 2000, pp. 640. K. Drzewicki, 1983, pp. 81-83. C. Welman 2000, pp. 640. A. Michalska, 1989, pp. 595. Council Regulation (EC) No 1257/96 of 20 June 1996 concerning humanitarian aid. S. Gutwirth, 1998, pp. 23. B. Jakovljevič, (1997). 332 | Gabriele Reale University of Euroregional Economy in Józefów Università di Genova, Royal Training [email protected] Multiculturalism and the development of intercultural pedagogy Abstract The modern society is now facing powerful and insidious challenges that concern the free movement of peoples, ideas and thoughts. All the study materials and scientific communities are called into question so that they can provide answers and methodological forms of inclusion, acceptance and integration. The same pedagogical disciplines receive impulses to review and broaden their fields of study and objects of search for solutions are found ethical, operational and in step with today’s times. Keywords: multiculturalism, education, training, pedagogia, pedagogy intercultural. 1. Introduction The research aims to examine how current and sudden changes of modern society have been a challenge for both peoples and nations both the disciplines of humanities study involved examining migration, racism, fundamentalism. A key role is played by the pedagogy that transforms and evolves becoming a multicultural pedagogy. The article examines the meanings, evolution, current state of this transformation proposing future lines of development that the discipline itself could go. 2. The “others” and personal development An intense experience unites all human beings, regardless of their cultural, religious affiliation and geographic origin: from the earliest moments of life, every day a person is slowly added to a gradual process of constructing one’s own identity, a process that begins with the stage of differentiation understood as the acquisition of self-awareness. Awareness of being an entity separate and distinct from his mother, entity “other” than the other, the bearer of physical and emotional characteristics and their own and only able to occupy a certain position in space. From birth onwards, thanks to the interactions and relationships, the child learns to see himself as a psychological being, with its own distinct and unique self. If hypothetically there were no others the child might not identify or not to develop, they do not belong to the category “human being”. Therefore, if the person grows is to be congratulated others that provide a stimulus, a dialogue, a comparison through which the individual becomes “human” and is distinguished by interacting and relating with people in everyday life, people, family, colleagues, friends. The contribution of this relationship between individuals (from the conversation between friends to the conflict between enemies) allows you to build your life journey. The person is thus indebted to the other, meet others it means improvement and it happens not only in childhood. To reach adulthood you deal with a route through several stages of development many of which are closely linked to the individuals around us: physical and motor development, perceptual development of learning and memory, cognitive development, language and communication, social and personal- | 333 ity development, emotional development and emotional and moral development. Until the sixth month an infant, in the presence of another child, shows interest in the other but his acts towards him are very similar to what he would perform in front of an inanimate object: look, touch, smiles, leads to the mouth. After the first year of life, children are confronted with others and act nurturing expectations: hold out an object and expect the person caught it, or that smile that speaks a few words. From the second year of life children will imitate, play and have fun together and, according to some authors such as Vandell and Mueller [1980], it seems that children are already able to express likes and preferences. Each child ““fin dalla nascita, è in grado di contribuire alle interazioni sociali, soprattutto con gli adulti che si prendono cura di lui grazie ad una serie di abilità di cui è dotato….capacità quali segnalare il proprio sconforto con il pianto…orientarsi verso l’adulto e più tardi sorridergli”1.Through these interactions the child grows and develops the qualities that will make that child a unique being, the bearer of unique characteristics, just as his fingerprints are unique. 2.1. Multietnie, Multiculture, pluralism of cultures. Getting along with others and among others is the situation that is repeated by the centuries of the centuries and which today we see some effects: the Arabic numerals we use for mathematical calculations, the legal system it comes from the Roman Empire that we respect, the savor Mediterranean cuisine. These are the obvious signs of multiculturalism, understood as a process that never ends and the scope of which underestimate. Below is a description of one slice of daily life of an American citizen by Ralph Linton: “Il cittadino americano medio si sveglia in un letto costruito secondo un modello che ebbe origine nel vicino Oriente ma che venne poi modificato nel Nord Europa prima di essere importato in America. Egli scosta le lenzuola e le coperte che possono essere di cotone, pianta originaria del vicino Oriente; o di lana di pecora, animale originariamente addomesticato nel vicino Oriente; o di seta, il cui uso fu scoperto in Cina. Tutti questi materiali sono stati filati e tessuti secondo procedimenti inventati nel vicino Oriente. Si infila i mocassini, inventati dagli indiani delle contrade boscose dell’Est, e va nel bagno, i cui accessori sono un misto di invenzioni europee ed americane, entrambe di data recente. Si leva il pigiama, indumento inventato in India, e si lava con il sapone, inventato dalle antiche popolazioni galliche. Poi si fa la barba, rito masochistico che sembra sia derivato dai sumeri o dagli antichi egiziani..... Andando a fare colazione si ferma a comprare un giornale, pagando con delle monete che sono una antica invenzione della Lidia. Al ristorante viene a contatto con tutta una nuova serie di elementi presi da altre culture: il suo piatto è fatto di un tipo di terraglia inventato in Cina; il suo coltello è d’acciaio, lega fatta per la prima volta nell’India del Sud, la sua forchetta ha origini medievali italiane, il cucchiaio è un derivato dell’originale romano....... Quando il nostro amico ha finito di mangiare si appoggia alla spalliera della sedia e fuma, secondo un’abitudine degli indiani d’America...... Mentre fuma legge le notizie del giorno, stampate in un carattere inventato dagli antichi semiti, su di un materiale inventato in Cina e secondo un procedimento inventato in Germania. Mentre legge i resoconti dei problemi che s’agitano all’estero, se è un buon cittadino conservatore, con un linguaggio indo-europeo, ringrazierà una divinità ebraica, di averlo fatto al cento per cento americano”2. The sarcastic conclusion invites reflection allowing a simple conclusion: change along with the change in our society is unstoppable. It takes them to places of globalization, the crisis of the nation state, the enlargement of the boundaries, opening of the frontiers, the unification of markets. Multiculturalism is an important index reveals a profound change is still in progress and that prompts us to reflect on a proper multicultural policy that promotes peace and security, ethnic, 334 | racial, social, and ghettoizing avoiding as much as possible phenomena such as hate, of racism and violence. But what are the multi-ethnic societies? The multi-ethnic societies are those where people and groups belonging to different ethnic groups live together peacefully now, now conflictive now truce. And then if the look and reflections are addressed to the ancestors, we realize that multiculturalism is ancient event, to the extent that lead up to the Babylon and the Tower of Babel, the historical moment that biblically explains the origin of language differences among men. Human beings are dynamic, they move creating multi-ethnic presence geographically limited: it is the result of immigration, massive displacements of people, colonialism, the “human transfers” for religious reasons, economic, natural phenomenon for economic catastrophes that occur periodically. Migration is one of the universal challenges, European and transnational and is responsible for more profound changes in historical, economic, cultural and social circumstances of each era constitutes one of the essential mechanisms of change within companies demonstrating direct correlation between migration and change. They are a cause and effect social change at the local level as continental. “Migrazioni internazionali contaminano mutamenti globali”3 oxygenating the phenomenon known as globalization and ethnicities and different backgrounds coexist where you create the multicultural society. From multicultural society it is necessary to shift the focus to the concept of society “plural” which transfers the idea of acceptance, openness, tolerance of “other” cultures. A plural society promotes the exchange between cultures, the integration between them, which enhances the multi-ethnicity becomes an element of growth, development and expansion primarily cultural. These communities are based on the awareness of the presence of other ethnic realities, recognize its value, which highlight the differences that establish the elements that most are able to activate the curiosity of which mankind is a carrier. This means setting aside the extremist and instead accept and provide the right space to ethnic, regional or national diversity for recognition of universal values: freedom, peace, tolerance, values ​​upon which our primary human rights . The development of a multicultural society is the subject of all disciplines, including pedagogy and philosophy, anthropology, psychology, sociology, or of all the sciences of education today should take intercultural education models. The local, territorial, national ministerial or even more widely models become tight when referring to a mono-culture or simply referential against a dominant culture. The educational disciplines require a broader approach. 3. The Intercultural Pedagogy The pedagogy becomes Intercultural therefore, has its own pedagogical model that provides space for the meeting that is first and foremost a mental and physical place marked from being together, from the dialogue to meet, collaborate, learn to live in a mutual understanding between individuals ethnic groups and nations. In the past Intercultural Pedagogy was born as a response to the phenomena of immigration and is developing today in response to the internationalization process set in motion by the wider globalization of markets, the process of European unification, which has intensified the international exchange of people, information and economic relations. The mobility of humans has increased, temporarily or permanently, and groups of people share together the same historical and geographical place but not cultural. This area involves the Intercultural Pedagogy which has the ultimate goal of developing “una capacità di tutti gli uomini di muoversi attivamente e pacificamente con e in diversi contesti culturali, ampliando e ridefinendo così i propri confini e destinatari.”4. Compared to a now-antiquated pedagogy for foreigners, which placed her goal in the assimilation, the Intercultural Pedagogy aspires the encounter between cultures represented by persons of equal dignity in a multicultural context related to | 335 resolving conflicts peacefully coexisting in the same physical geographical territory. In this way the foreigner does not have to change but it can change, itself and the culture that welcomes him. Historically, the Intercultural Pedagogy finds its foundations in the problems related to the educational problems of countries such as Africa, Asia born with colonization before and after de-colonization. In these contexts, the actions were focused on broad measures of literacy and training programs which aim to help and support aimed at people “different”, often considered inferior, to the point of being called “Third World.” A further development of the pedagogy had been during the great migrations such as the one that affected Germany, the United States of America, Canada, where the focus of discussion is the educational problem created by the massive presence of foreign emigrants. Creation of the Education for foreigners who aims to provide ethical and political equality. The Pedagogy “matures” understanding that the problem intercultural education is not just a matter of geographical space or geographical location. The educational challenge goes beyond Asia, Canada or any other continent, and over time the Intercultural Pedagogy is emerging as an effective tool to respond educationally to a multicultural society, promoting a civil attitude of acceptance and respect. Pedagogy is a space built mentally and physically inhabited and is marked by conflicts, tensions because the encounter with otherness always creates uncertainty and crisis of identity and creates in each case a space for construction. Construction of what? The construction of a space for the meeting that encourages a civil and democratic coexistence among individuals belonging to different cultures. In this process of building, the pedagogy plays a decisive role, fundamental and effective for the construction of a multicultural society where human rights are recognized. Here are some thoughts that intercultural pedagogy needs to be addressed in that path that leads to a multicultural society based on respect for human rights. 1) “Use mind”: the task of Intercultural Pedagogy. The boundless curiosity of the child documents that man is born with an original structure which can be defined as “inesausta apertura della ragione di fronte all’inesausto richiamo del reale”5.He comes to light within the historical context of a people, that has its own culture and its own key to the interpretation of reality. Everyone is introduced into this world by parents and family he has raised. “The heart is the first book of the mothers of the children,” said poetically Musa Bin Jaafar Hassan, president of the recent UNESCO conference. From this “motherhood” man it comes from, it is conditioned, but this is the starting point, this is the introduction to a world and, as in a wellwritten book, after the introduction, there are other chapters that the subject himself have to write. This above is a common experience, common to all human beings and know that millions of other people share the same matrix of experience allows us to a meeting, a cordiality and friendship between people also strongly marked by its own traditions of belonging. Furthermore, the human being becomes so only after meeting with others because “solo nell’ambito di un popolo l’individuo può vivere come un uomo fra gli uomini”6. Every human being shares with his fellow man the same elementary experience, “un complesso di evidenze ed esigenze originali, interne, viscerali e questo indipendentemente dalla latitudine da cui proveniamo” 7. In the Judeo-Christian religious culture, this deep level of self is expressed with the biblical term “heart” where the truth, love, justice, happiness, peace, lie together. Heart is “l’essenza della ragione, cioè della coscienza che l’uomo ha della realtà secondo la totalità dei suoi fattori”8. Think of what happens when, due to circumstances of life, two people from different cultures become friends? May belong to culturally distant worlds: an Italian Catholic, a Japanese monk, an Egyptian Muslim, a Spanish Jehovah’s Witness but the differences can’t prevent the birth of a friendship between them and each is forced to try to enter the cultural world of his friend, in his 336 | way of perceiving things and relate to reality. Mind and heart interact positively and constructively breaking down boundaries and differences, but building something of invaluable, an human relationship. “Educate to use mind” means to be open to experience avoiding the damage which rejection and hostility towards members of a group other than their own. Racism, such as prejudice and any xenophobic idea, comes from the fear that their spaces are invaded, touched in some way injured but education allows the mind to set aside these concerns by encouraging the development of critical thinking skills, an ability listening, dialogue and an awareness of otherness. Use the mind helps to prevent this deadly and poisonous culture and prejudice. 2) The Intercultural Education goes inside the schools and renews the educational systems. Article 3 of the Resolution adopted by the General Assembly of the United Nations Declaration on Education and Training Human Rights reads: „The education and human rights education is a continuous process that affects all age groups. The education and training of human rights affecting all parts of society, at all levels, including higher education, secondary, primary and pre-school, taking into account the eventual freedom of teaching, and all forms of education, training and learning, whether in a public or private, formal, informal or non-formal”. Intercultural education in Italy has made an appearance since 1990 when the term enters school’s vocabulary through Educational Ministerial Circular N. 205 of 26 July 1990 introducing themes of foreign students in the school and of “intercultural education”. From that moment on intercultural education space is growing at the Ministry of Public Education writes the document n° 73 of 02.03.1994: „Intercultural dialogue and democratic coexistence: the design effort of the school” that provides precise frameworks, methodological guidance, insights and reflections to deal with an issue more and more present in schools, classes, among the pupils. But when the issue is welcomed by the institutions very often the problem has already penetrated and questions heavily force to substantial organization and re-organizationa reflections that highlight the need for a school “renewed” in time, in space, in relationships, duties, compentence of teachers. Emerges the need for a open school, with a welcoming atmosphere that leaves room for books, movies, meetings allowing an opening to other worlds and virtual life. Here it becomes even more necessary to modernize the structures so that they are equipped with multimedia classrooms, , multicultural libraries, internet, e-learning portals. The school has to travel, the pupils have to travel, the teachers have to travel visiting other schools, other cultures using European programs and projects such as Leonardo, Erasmus, Grundtvig that allow you to break down cultural and geographical barriers and instead raise altars to multiculturalism. The European Union has always been very attentive to the issue of social cohesion, indicating that the ability of a society to ensure the welfare of all its members, by reducing the differences to a minimum and avoiding polarization. A cohesive society is a mutually supportive community that integrates free individuals pursuing these common goals by democratic means. To achieve this goal in 2008 was proclaimed the Year of Intercultural Dialogue with the following purposes: • promote intercultural dialogue; • highlight the opportunities that intercultural dialogue offers a diverse society; • Raise awareness of the value of active citizenship; • emphasize the contribution of diversity to the heritage of the countries of the European Union. 3) The instrument: the Intercultural dialogue: Intercultural dialogue indicates a process of open and respectful exchange of views between individuals and groups of different origins and traditions of ethnic, cultural, religious and linguistic backgrounds, in a spirit of understanding and mutual respect. The freedom and ability to express themselves, the will and the ability to listen to what others are bearers are essential and it is thanks to | 337 intercultural dialogue that can achieve political integration, social, cultural and economic equality, human dignity and the feeling of sharing common goals. Intercultural dialogue is aimed at: to better understand the different views and practices of the world, to strengthen cooperation and participation, to enable people to develop and transform, to promote tolerance and respect for human rights, to develop democracy and the rule of law, to provide an answer to the concerns of social fragmentation and insecurity, to promote integration and social cohesion, to contribute to the development of democratic stability and the fight against prejudice and stereotypes, to facilitate the development of alliances between cultural and religious communities, to prevent or mitigate conflicts. But intercultural dialogue is just theory? No. Intercultural dialogue is practical and it’s foundation are: open-mindedness, willingness to engage in dialogue and to leave to others the opportunity to express their point of view, the ability to resolve conflicts by peaceful means and ability to recognize the merits of the arguments of others. Intercultural dialogue has its limitations, including the difficulty of dialogue with those who reject to dialogue, but dialogue with those who are clearly ready for dialogue but does not share, in whole or in part, “our” values, may be the starting point of a process of interaction to follow the understanding of the importance and practical implementation of the values ​​of human rights, democracy and the rule of law. Intercultural dialogue is therefore important in managing multiple culture in a multicultural context. It ‘a tool that allows you to always find a new identity balance, responding to new openings and experiences and adding new dimensions to identity, without straying from its roots. 4. Conclusion The Council of Europe has declared the universal values ​​which form is a prerequisite for intercultural dialogue is a warrant of a dialogue free from any force prevaricating. Democracy goes on because it helps people to identify themself with the society they live in, ensuring that the power and decision-making are exercised in a legitimate way. The principles which should be followed, at the institutional, local, international: - Equality and parity: humanity has the same moral criteria. Without progress on the road towards equality, it is possible that social tensions manifest themselves in the cultural field, although the factors that caused them have their origin in other contexts. In this case, the cultural identities can be exploited to stigmatize. The gender equality is an integral part of human rights, and gender discrimination is an obstacle to the enjoyment of those rights and freedoms. - Participation in social and democratic: citizenship means a right and a responsibility to participate in the social and economic life and in public affairs of the community. It is an essential element for intercultural dialogue, because it invites to think of others not in a stereotypical. Facilitate access to citizenship requires the adoption of regulatory measures, legislative and educational. Citizenship develop civic participation and thus contributes to the enhancement of the contribution of newcomers, who in turn consolidate social cohesion. The active participation of all residents in the life of the local community contributes to the enrichment of the community and supports their integration; - Cultural skills and active citizenship: education for democratic citizenship is essential both for the functioning of a free, tolerant, fair, open and inclusive, both for social cohesion, mutual understanding, solidarity, intercultural and religious dialogue , equality between women and men. It includes all the activities of formal education, non-formal or informal educational agencies, family and the community of reference, which allow people to act as active and responsible citizens respectful of others. Education for democratic citizenship includes, among other things, civics, history, politics and human rights, as well as attention to the global context of society and the cultural heritage. It encourages multidisciplinary approaches and combines the acquisition of knowledge, skills and behaviors, in particular the ability and disposition to self-criticism necessary 338 | to live in a context of multicultural communities. - Training and education for intercultural skills. The skills needed for intercultural dialogue are not automatic but can be acquired in a continuous process called “longlifelearning.” Subjects such as language learning, history help to prevent cultural gaps, repetition or denial of the Holocaust, genocides and other crimes against humanity. Teaching history in a democratic Europe should have a vital place in the formation of a responsible citizen and active in the development of the respect of all kinds of diversity, respect based on an understanding of national identity and on principles of tolerance. Teaching history should include the elimination of prejudices and stereotypes, highlighting in history syllabuses of positive mutual influences between different countries, religions and schools of thought within the historical development of European, as well as the critical study of history resulting from denial of historical facts, falsification, omission, ignorance or ideological recovery. Interculturality, here is the new perspective that stands in front of the pedagogy. It is a building that makes educational communicative cultures and constitutes a “mindset” particularly complex, which undermines prejudice, involves listening, not afraid of “miscegenation” and feeds anti-dogmatism, openness, pluralism. To create intercultural two devices are essential: the encounter and dialogue, ranging legitimized, disseminated and recognized, and every member of society is responsible for its spread. Bombi A.S. in Camaioni L., Manuale di psicologia dello sviluppo, Il Mulino, Bologna, 1999, [“from birth, is able to contribute to social interactions, especially with adults who take care of him through a series of skills: that has capacity signal its discomfort with crying, move towards the adult and later smile”]. 2 Linton R., Lo studio dell’uomo, Il Mulino, Bologna, 1973, pp.359-360, [“The average American citizen awakens in a bed built on a pattern which originated in the Near East but which was later modified in Northern Europe before being imported into America. He pulled back the sheets and blankets that can be made of cotton, a plant native the Near East, or wool from sheep, animal originally domesticated in the Near East, or silk, the use of which was discovered in China. All of these materials have been spun and woven by processes invented in the Near East. He slips into his moccasins, invented by the Indians of the Eastern woodlands, and goes into the bathroom, whose fixtures are a mixture of European and American inventions, both of recent date. takes off his pajamas, a garment invented in India, and washes with soap invented by the ancient Gauls. then shaves, a masochistic rite which seems to have derived from the ancient Sumerians and Egyptians ..... Going to breakfast he stops to buy a newspaper, paying with coins which are an ancient Lydian invention. The restaurant is in contact with a whole new set of elements from other cultures: his plate is made of a type of pottery invented in China, and his knife is made of steel, an alloy made for the first time in South India , his fork Italian has medieval origins, the spoon is a derivative of a Roman original ....... When our friend has finished eating leans back in his chair and smokes, according to a habit of the American Indian ...... While smoking reads the news of the day, imprinted in characters invented by the ancient Semites upon a material invented in China by a process invented in Germany. While reading the accounts of the problems that toss themselves abroad, whether it is a good conservative citizen, an Indo-European language, thank a Hebrew deity, having done one hundred percent American”] 3 Pollini G., Scidà G., Sociologia delle migrazioni, Franco Angeli, Milano, 1998, [“International Migration contaminate global changes”]. 4 G.Wallnofer, Pedagogia Interculturale, Bruno Mondadori, Milano, 2000, [“capacity of all people to move actively and peacefully with and in different cultural contexts, expanding and redefining their boundaries and receivers”]. 5 Giussani L, Il senso religioso, Rizzoli, Milano, 1997, [“inexhaustible opening right in front of | 339 all’inesausto call the real”]. 6 Arendt H., Il futuro alle spalle, Il Mulino, Bologna, 1995, [“just by leaving with men a person can become a man with the men”]. 7 Caprioglio S., Fubini E. (a cura di), Lettere dal carcere di Antonio Gramsci, Einaudi, Torino, 1965, [“a complex of evidence and the original needs, internal, visceral, and this regardless of the latitude from which we come”]. 8 Carron J., “Educare alla ragione”, intervento presso l’università degli studi di Firenze, Aula Magna, 18 dicembre 2006, [“the essence of reason, that is, the consciousness that man has of reality according to the totality of its factors”]. References AA.VV., Dalla tolleranza alla solidarietà, Angeli, Milano, 1990. AA.VV., L’educazione all’interculturalità. Premesse e sperimentazioni, Gruppo Abele, Torino, 1995. Abdallah-Pretceille M., L’éducation interculturelle, Puf, Paris, 1999. Aluffi Pentini A., Lorenz W (a c. di), Per una pedagogia antirazzista. Teorie e strumenti in prospettiva europea, Edizione Junior, Bergamo 1995. Amatucci L., Educare alla cittadinanza nella società multiculturale, Anicia, 2011. Andolfi M., La mediazione culturale. Tra l’estraneo e il familiare, Milano, Angeli, 2003. Arendt H., Il futuro alle spalle, Il Mulino, Bologna, 1995 Baldi Alessandro, Le ragioni dell’altro. Percorsi formativi nell’intercultura. Roma, Carocci Faber, 2006; Baraldi C., Comunicazione interculturale e diversità, Roma, Carocci, 2008; Bauman G., L’enigma multiculturale. Stati, etnie, religioni, Bologna, Il Mulino, 2003; Bernardi U., Cultura e integrazione. Uniti dalle diversità, Milano, Franco Angeli, 2004; Besozzi E. (a cura di), I progetti di educazione interculturale in Lombardia. Dal monitoraggio alle buone pratiche. Osservatorio Regionale per le Integrazioni e la Multietnicità, Milano, 2005; Bettini M. (a cura di), Lo straniero ovvero l’identità culturale a confronto, Bari, Laterza, 2005; Bocchi G., Cerruti M., Solidarietà e barbarie. L’Europa delle diversità contro la pulizia etnica, Cortina, Milano, 1994. Bonazzi T., Dunne, M. (a cura di), Cittadinanza e diritti nelle società multiculturali, Il Mulino, Bologna, 1994. Cambi F., La sfida della differenza, CLUEB, Bologna, 1987. Cambi F., Orefice P. (a cura di), Fondamenti teorici del processo formativo. Contributi per un’interpretazione, Liguori, Napoli, 1996. Caprioglio S., Fubini E. (a cura di), Lettere dal carcere di Antonio Gramsci, Einaudi, Torino, 1965. Colombo E., Le società multiculturali, Roma, Carocci, 2002. D’andretta P., Fare intercultura in laboratorio, Bologna, Editrice Missionaria Italiana, 2006. D’Ignazi P., Educazione e comunicazione interculturale, Roma, Carocci, 2005. Damiano E., Homo Migrans. Discipline e concetti per un curricolo di educazione interculturale a prova di scuola, Milano, Franco Angeli, 2002. De Vita R., Berti F., Nasi L., Identità multiculturale e multireligiosa. La costruzione di una cittadinanza pluralistica, Milano, Franco Angeli, 2004. 340 | De Vita R., Berti F., Nasi L., Ugualmente diversi. Culture, religioni, diritti, Milano, Franco Angeli, 2007. Demetrio D., Agenda interculturale, Meltemi, Roma, 1997. Demetrio D., Micropedagogia, La Nuova Italia, Firenze 1992. Demetrio D. (a cura di), Nel tempo, della pluralità: educazione interculturale in discussione e ricerca, La Nuova Italia, Firenze, 1997. Durino Allegra A., Verso una scuola interculturale, La Nuova Italia, Firenze, 1993. Favaro G., Colombo T., I bambini della nostalgia, Mondadori, Milano, 1993 Favaro G. (a cura di), Il mondo in classe. Dall’accoglienza all’integrazione. I bambini stranieri a scuola, Nicola Milano editore, Milano, 1992. Favaro G., Parole a più voci, Milano, Angeli, 2001. Fucecchi A., Nanni A., L’altro milione – Marco Polo e IBN battura sulle rotte della Cina, EMI, 2000. Gambino A., Gli altri e noi: la sfida del multiculturalismo, Il Mulino, Bologna, 1996. Gabrielli G. (a cura di), La diversità come dono e sfida educativa, Franco Angeli, Milano, 2013 Gallelli G., Educare alle differenze. Il gioco e il giocare in una didattica inclusiva, Franco Angeli, Milano, 2012. Geertz C., Antropologia interpretativa, Il Mulino, Bologna, 1988. Geertz C., Interpretazione di culture, Il Mulino, Bologna, 1987. Giacalone F., Lucio P., Un quartiere multiculturale. Generazioni, lingue, luoghi, identità, Milano, Franco Angeli, 2005. Gobbo F. (a cura di), Multiculturalismo e intercultura, Padova, Imprimatur, 2003. Gobbo F., Pedagogia interculturale. Il progetto educativo nelle società complesse, Roma, Carocci, 2000. Lévi-Strauss C., Lo sguardo da lontano, Einaudi, Torino, 1984. Macioti M.I. (a cura di), Immigrazione, multicultura, intercultura: tematiche dei nostri tempi, Napoli, Liguori, 2000. Malizia P., Da “Mono” a “Multi”. Dieci temi sulla società multiculturale, Milano, Franco Angeli, 2007. Mantovani G., Intercultura. E’ possibile evitare le guerre culturali, Bologna, Il Mulino, 2004. Marchetti M.C., Il processo di integrazione europea. Comunicazione interculturale e ruolo dei media, Roma, Edizioni Studium, 2006. Marengo M., Geografie dell’intercultura, Ospedaletto (Pisa), Pacini editore, 2007. Martello M., Intelligenza emotiva e mediazione. Una proposta formativa. Milano, Giuffrè, 2005. Martiniello M., Le società multietiniche, Bologna, Il Mulino, 2000. Mascia M. (a cura di), Dialogo interculturale, diritti umani e cittadinanza plurale, Milano, Feltrinelli, 2008. Massey D., Jess P., Luoghi, culture e globalizzazioni, Torino, Utet, 2001. Mazzara B.M., Appartenenza e pregiudizio. Psicologia sociale delle relazioni interetniche, La Nuova Italia Scientifica, Roma, 1996 Mazzetti M., Strappare le radici, L’Harmattan Italia, Torino, 1996. Memmi A., Il razzismo, Costa e Nolan, Genova, 1989. Moro M. R., Bambini in cerca di aiuto . I consultori di psicoterapia transculturale , (trad.it.) UTET, | 341 Torino, 2001. Moscato M.T., Il viaggio come metafora pedagogia. Introduzione alla pedagogia interculturale, La Scuola, Brescia 1994. Nanni C., Educazione e pedagogia in una cultura che cambia, LAS, Roma, 1992. Panarello P., L’educazione all’intercultura e alla sostenibilità. Le politiche dell’Unione Europea e dell’Unesco, Carocci, Editore, 2012. Palmeri P., I rapporti interculturali in Italia, una prospettiva antropologica, Padova, CLEUP Università di Padova, 2005. Panikkar R., Pace e interculturalità, Milano, Jaka Book, 2002. Passatelli M., Identità, cultura, Europa. Le Città europee della cultura, Milano, Franco Angeli, 2005. Piccone S.S., Esperienze multiculturali, Roma, Carocci, 2004. Pinto Minerva F., L’intercultura, Bari, Laterza, 2002. Portera A., Tesori sommersi . Emigrazione , identità, bisogni educativi interculturali , Angeli , Milano, 1997. Rigallo D., Sulis S., Dall’integrazione all’intercultura. L’Harmattan Italia, 2003. Santerini M., Intercultura, Brescia, La Scuola, 2001. Sartori G., Pluralismo, multiculturalismo e estranei, Milano, Rizzoli, 2000. Semprini A., La sfida della diversità nella società contemporanee, Milano, Franco Angeli, 2004. Silvia C., Fattizzo A. (a cura di), I luoghi dell’intercultura. Attori e scenari della relazione Educativa, Tirrenia, Edizioni del Cerro, 2006. Simeoni M., La cittadinanza interculturale, Roma, Armando, 2005. Spagnuolo G., Il magico mosaico dell’intercultura. Teorie mondi esperienze, Milano, Franco Angeli, 2007. Tosolini A., Giusti S., Papponi Morelli G., A scuola di intercultura. Cittadinanza, partecipazione, interazione: le risorse della società multiculturale, Gardolo, Centro Studi Erickson, 2007. Touraine A., Libertà, uguaglianza, diversità. Si può vivere insieme?, Milano, Il Saggiatore, 2002. Vandel D.L., Mueller E.C., Peer play and friendship during the first two years, New York, 1980. 342 | Ilona Biedrzycka University of Warmia and Mazury in Olsztyn [email protected] Humanitarian missions- peaceful missions Abstract The aim of my paper is institution of humanitarian mission. I try to analyze assets and drawbacks of this action. This is legal intervention, that is took by states authorized to act. The reason of this are mass and serious infringements human rights. However, in this paper we have question whether in practice a cause for this situation is humanitarian interest? Examples help us to answer to this question. Moreover, I try to present what procedure and presumptions do we distinguish for humanitarian intervention. In view of the theme of peaceful mission crystallized persistent debate about the conflict between the need protection the rights and freedoms of the individual and the problem of the legality of humanitarian intervention. The author of paper is looking for answers to the following questions: What are the conditions of admissibility of the intervention? Does in the reality of today we have the right to choose the appropriate and effective means to minimize the violations? If so, there is another doubtful questions-whether peacekeeping mission actually is used for peaceful purposes? I employ critical method in my paper. Keywords: mass infringement of human rights, principle of sovereignty, principle, of non- intervention, prohibition of the use of force, responsibility for protection “If there is a collision of law and ethics, so there must be something wrong either with the law or ethics1”. M.Bothe 1. Introducion Today, international relations are based on state - centric ideology, which means that a struggle for human rights is often only a curtain for the real national interests. Implementation fair and equitable activities in defence of human rights in international politics is not easy for the state, because the main task of government is protection their own legal and social interest. More and more often peacekeeping missions differ from only goal that is protection fundamental human rights against mass infringement. Humanitarian intervention is addressed to country and infringes its legal order. Peacekeeping missions damage rudiment of international order. This order is based on the principles of sovereignty, non-intervention and balance between influential countries. Interference in national order will be breach stable international system. So, we can take this into consideration, that protection of human rights is not main interest to act, because we must have more important reasons of military missions. The problem of peacekeeping missions includes first question if indeed protection of human rights is only aim of intervention and second question: what conditions and procedures are accepted to prevent breaching international rules and increasing an imminent danger. In my work I would like to confront an issue of humanitarian missions in the theoretical aspects with their real purpose and practice in international relationship. | 343 Problematic issue A problem of intervention is considered from different points of view. However, a subject of discussion is more often a realistic approach to this issue, because too often an aim of intervenient is its own business. Realists believe that altruism is harmful to an interest of a state, because it involves with giving part of potency on a protection of human rights at the cost of weakening national capacities. Action for peaceful purposes can only play a role of an alibi for real intervention’ s reasons. Pluralists also agree with the realists, however emphasize opposition to encroach in an integrity of a country, because it violates a principle of observance of contracts in mentioned international order. A rationale for this view is that the principles lead to prevent anarchy, and peaceful interventions can smash a base of international steadiness to smithereens, because it interferes system based on the principles of sovereignty and non- intervention. In pluralism, they are sacred values, so this intervention ca not occurs. In solidarity there is unity of values on „summit of ice mountain”, and in among them there is the highest individual. As a result, a global community becomes responsible for abuses of human rights in the country. In the light of ideology, intervention is justified and socially desirable. The solidarity assumes the most sensible solution of humanitarian intervention, because they do not give up peaceful activities providing their legitimacy and control activities. Representatives of this view of the problem confirms a need of formulating specific conditions to minimize the risk of fraud. Definition The definition of a humanitarian mission was proposed by S. D. Murphy, stating that “[they] are a threat or use of force by the state, group of states or international organization against another country mainly in order to protect its citizens from mass violations of internationally recognized human rights.” Another definition was presented by Danish Institute of International Affairs - “Intervention is defined as a compulsory use of armed force in another Member State without a consent of its government, with an authorization of the UN Security Council or without authorization, in order to prevent or inhibit large and massive violations of human rights or international humanitarian law”2”.Such actions are justified by one of the objectives of the Charter of the United Nations, which rely on maintaining international peace and security. The measure mentioned in art. 1 subsection, which head to attain this goal is a collective measure to prevention threats of a peace and disposal them, suppression of acts of aggression and other breaches of the peace. In addition, its aim is mitigate through peaceful way, according to the principles of justice and international law, disputes or situations which might lead to a breach of the peace. However, international law does not contain a clear and indisputable basis for humanitarian intervention3. Charter directly does not define these humanitarian missions, but it presents a means to preserve peace and security. There are two concepts- security and peace. They can be interpreted in conflict with each other. Safety means national sovereignty, asserted in international instruments. It is realized through the principle of non-interference in the integrity of the country. A peace is maintained by the respecting human rights. Breach of the peace leads to initiate member’ s reaction to this action that is eligible for collective measures, including humanitarian mission. Both rules seem to be in conflict with each other, because there is a conflict between the principle of sovereignty and security, and the principle of cooperation in the field of human rights that means peace. 2. Essence of peaceful missions In art. 2 subsection 4 Charter is that all members must refrain in their international relations from the threat or use of force against a territorial integrity or political independence of any state. However, lex specialis for these rules excluding general principle of non-intervention and nonuse of force, which authorizes to intervention in a foreign country is indicated in art. 2 subsection 7- “Any decision of this Charter authorize The United Nations to intervene in matters which are 344 | domestic jurisdiction of state(…) This rule does not refer opportunity of use coercive measures under VII”. Indicated above rule is proof, that sovereignty has not absolute character, because this is limited by other principles. Among these principles are human rights, which are respected by international law in a first order. They are a primacy over the principle of respecting integrity of the country. One of General Secretaries of the United Nations Perez de Cuellar said about an obligation of respecting human rights despite integrity borders of international law’ s persons“principle non- intervention in domestic matters of jurisdiction states should not be regarded as protective barrier, behind which would take place without punishment mass or systematic breach of human rights”. Moreover, how this was underlined by Kofi Annan, definition of sovereignty acquires a new meaning in connection with globalization and cooperation between nations4. Sovereignty is not only a right states to undertaken decisions regarding external and internal terms, but also duty of respecting citizen’ s rights. States, which contravene mentioned duty, lost legitimacy to rule and empower an international community to intervene5. State, which does not fill international obligation, has not full comfortableness citing on prohibition of intervention in his legal order. Admissibility of humanitarian intervention is a consequence responsibility state for his violations. It is measure, which realize international regulations. Division of the humanitarian missions In this moment, we would point out, what situations will be authorize to initiate peaceful mission. The first may result from violation of basic human rights during military conflict. Infringement may refer right to life, prohibition of tortures, displacements, abducting hostage, rapes, humiliating or inhuman treatment. A second type of situation may result from an lack of implementation of human rights in the country or be effect of a humanitarian crisis. Crisis may be the result of a wave of hunger, natural disasters, difficulties in providing assistance. In this case, the intervention rely on delivery of humanitarian aid consisting of food, medicines or medical assistance. In both situations intervenient, in order to prevention further infringements of rights, apply necessary measures for steadiness of situation. So, he parked institutions responsible for control of observation law or deploy armed force on different areas. Another division of the mission is distinguished by possessing authorization The Security Council. There are interventions without a mandate and other, which are permitted by The UN organ. Without ethical legitimacy, intervention is seen as carried out exclusively selfish interest. However, this does not mean that it is in every case. C. Tomuschat points out that “in the case of humanitarian intervention we have to deal with the conflict of law and morality, that morality is not some external to the legal norms. On the contrary, these are rather ethical norms, which exist in system of modern international law”6 Reasons for intervetion What is important to emphasize- humanitarian mission are distinguished by an alternative character, because the rights of citizens are carried out by a states, and international law is applicable when the sovereignty of the state ceases to play its positive role. The above conclusions give ascertainment, that main problem is the legality and legitimacy of Mission, that do not have the authorization of the Security Council. They are acceptable coercion measure after fulfillment of certain conditions. Filling certain requirements is necessary to prevent the free management of selfinterest. N. J. Wheeler pointed out four conditions for the admissibility of such interference7. The first of these is a good reason, which relates to massive and grave violations of human rights, especially the right to life. Humanitarian intervention is applied to extreme cases, because it is exception to the principle of non- intervention. In the 80s of the twentieth century, R. J. Vincent as a representative study of international relations wrote in following way about intervention, that it is “reserved for extraordinary, unusual oppression”. Intervention refers to the relevant value, so | 345 its protection justifies interference in the internal affairs of a foreign state8. Problems associated with qualifying these situations to these, which allow intervention in foreign state, are associated with the concept of mass production. The concept of mass situations regard to genocide, crime against humanity or war crime. However, not every infringement human rights lead to attribute characteristic of catastrophic dimensions. The second condition turns out to be the finality of used activity and use before all peaceful measures in order to achieve peace. There is question if finality of mission is suitable solution for protection human rights, if the peaceful measures used previously increase negative effects of the humanitarian crisis. The result is that in some situation certain measures should be omitted if the peaceful agreements do not change the situation. The third condition for allowing the use of military measures is its proportionality. In order to prevent further violations of human rights, the intervention must be limited to planned activities. During its continuance, it is important to keep this principle in all steps. Applying this principle, we must keep in mind that, a purpose of the mission is protection human life, rather than fight against with infringer, which might reduce unnecessary tool of war and affect the appropriateness of the action. An example clearly illustrating the lack of this evidence was the intervention in Kosovo, during which largely number civilians were injured and natural environment and economy was devastated completely. Intervention should also take place in a fairly short period of time in order to prevent permanent occupation and in long period to bring intervention to an end. In addition, intervenient has limited discretion in the application measures against the infringer, because his motto is protection human rights, rather than armed struggle9. We can also enumerate in mentioned catalogue terms a likelihood of a successful outcome. It rely on conduct humanitarian mission in s such way that does not lead to more rights violations than before the interventions. A. J. Coady introduces yet another condition, namely a determination of a person authorized to carry out humanitarian interventions10. Erga omnes character of the obligation of respect human rights justify the action of any state. Condition is, that the state was not also accused of serious violations of international law. No other requirements may lead to “suppression” humanitarian interest to the background. The risk is related to the granting upper competencies individual states, which may have full freedom to choose their own interests as qualifying for interference. The effects of such a policy could lead to the disqualification of humanitarian aid actually needy communities. Abuse could be reduced if the intervention could carry out group of countries. The essential condition for carrying out humanitarian intervention is that, the situation pose the threat to international peace and security. The result of this situation is that the action should be motivated only by humanitarian reasons. However, this assumption is difficult to achieve, because this is desirable that interventions are undertaken by countries in the same geographical region in which there is located infringer. In practice these countries have a specific interest in violation of the integrity of a foreign state. The only reasonable solution in modern relationship is place a humanitarian interest in the first place with simultaneous accompanied other peripheral state’ s interest, which are subservient for this first matter. Procedure for permission to use force Consciousness necessity humanitarian operations is widespread, but it requires polish the details related to entity authorized to take emergency action, a circumstances and the manner of their implementation. The problem come down to get consent of The Security Council and legitimacy of made intervention. The Security Council gives a mandate to carry out military action if the situation threatens international peace and security. In case of lack of United Nations agreement, Member States would take action alone. Then, means for prevent fraud would be control 346 | of the intervention. An important criterion for accessing whether a humanitarian mission actually was planned for the protection of human rights can be a report International Commission on Intervention and State Sovereignty. There has been developed the concept of a just cause, which consists of the deprivation of life on a massive scale or ethnic cleansing. If one of these conditions is deemed to be achieved, humanitarian mission gets a lawfulness. Another controversial issue is a use of force for humanitarian purposes. Basically, the use of force is considered to be contrary to humanity. However, this military means is not equivalent to the brutal interference. Coercive measures may also be used for humanitarian purposes, if is rely on among other things: a removal of military structures which violate human rights, separation parties of conflict or introduction sea and air blockade11. Problems related to lack of legality of peaceful action Problems related to the legality of peacekeeping are result of a chaos in order of the rules of international law. No exhaustive list of these rules under correct priorities causes an ambiguity in the evaluation of the intervention. In case of contact principles of sovereignty, prohibition the use of force and peaceful settlement of disputes with principle of respect human rights there are no rules, which have upper supremacy. Therefore, a proper assessment is made only on the basis of specific circumstances. These principles need to be a contradiction, but can complement each other. This is due to the recognition that sovereignty is not only the state’ s right to make decisions, but also to bear the burden defending its citizens against violation of their rights and freedoms. As has already been mentioned in the work, the lack of fulfillment obligation entails responsibility for these violations and authorize other members of the international system to react. Military intervention is contrary with the concept of peace, which causes controversy on its admissibility. This is due to the concept of intervention, which, in principle, affect the stability of the state. However, to ensure peace is meaningless human rights situation. Therefore, intervention in the foreign law is a legitimate and authorized action to restore the system to comply with these laws and also the lost peace. Indeed, to secure peace is not possible without respect for the elementary principles of the protection of human rights. The problem is also related to the entity authorized to intervene. It seems that the countries in the same geographical area as the state infringer should take action. They have the best knowledge of local relations and conditions. On the other hand, these countries would show the greatest willingness to pursue their own interests. Also noteworthy is the idea responsibility to protect elaborated in the report of International Commision on Intervention and State Sovereignty in 2001. It replaces the notion of a right to humanitarian intervention by responsibility for human rights violations. Most of all it provides responsibility of each state to protect human rights. Only in the absence of adherence by the state of an international agreement, which is respect the rights of its citizens, the responsibility lies with the other countries. So controversial topic of intervention moved into the area of objective finding of liability for any resulting infringement, which certainly would improve the procedure for granting legitimacy to carry out the mission. The responsibility to protect is not only the use of coercive measures, including military intervention, but also the prevention of threats and restore to the state before the intervention. Decision RB is the only legal ground for intervention under Chapter VII of the Charter. Most risks are relates with free decision to adopt any peacekeeping missions, as it is in direct threat to the individual interests of intervening. However, the risk may also arise in connection with the intervention, which was granted consent of Security Council. An example to support this statement was a mandate to carry out military operations by the permanent members: France in Rwanda, Russia in Gruzja and the United States in Haiti. The support provided each Member State ex- | 347 pressed gratitude mutual voice12. On the other hand, the lack of such legitimacy expressed reluctance of the countries concerned in the organization of peacekeeping missions may expose citizens of one state to the loss of the right to a dignified life. These examples demonstrate that the procedure guaranteed by the United Nations Organization is not perfect, and this raises the question whether humanitarian missions only in principle are becoming a reality? The solution for reducing fraud would be accurate to develop rules for intervention without a Security Council mandate to improve and introduce changes in the granting of permission. Another problem is related to the eligibility of the situation, enabling them to intervene. The condition is a situation constitutes a threat to international peace and security. The problem lies in determining when that moment occurs. Is it also possible to take emergency action before a situation occurs in which massive violations occur? This is acceptable if the situation constitutes a threat to international peace and security. It is essential to the management of the resolutions of the Security Council, which resolved the individual cases. Moreover, experience shows that exclusively targeted the just aims is almost impossible. Therefore, adequate for the demand of modern international relations is guided by humanitarian missions mainly in the protection of human rights with simultaneous, peripheral preservation own interest. Problems related with legitimacy of mission Intervening must take into account that the intervention did not pose more a threat than the reason for which it was taken. Intervening must bear in mind that its actions do not lead to greater instability and threats to international order and security. Therefore, it is important that previously the intervention plan action and predict their impact on the situation. Illegal is the effect of interference in the state system. Humanitarian mission should aim for only the cessation of massive violations of human rights. Completion should be preceded by a stabilization of the situation in the country that had been infringed. This can be ensured by the deployment of military forces in different parts of the region and the establishment of institutions responsible for monitoring respect for human rights. Examples of legitimate humanitarian mission was the mission in Kosovo, which was carried out without the consent of the United Nations. Legitimacy is manifested in the rejection of an application for recognition of Russia’s intervention for the condemned. The proposal was voted by only three countries, while the opposition was expressed by almost all the members of NATO. The opposition to the condemnation of the mission is an example of acceptance of the operations carried out in dramatic situations13. Humanitarian mission in practice Humanitarian intervention should be considered from an ethical, political and legal point of view. Without moral grounds, interference would only be a wrongful act of war. However, most of the conditions which govern the intervener concerns unfortunately political interests. This is evident when granting consent to some interventions that are beneficial from the point of view of the state concerned, which results in the absence of such a mandate for intervention in Chechnya or Tibet. Humanitarian institution is so dangerous area actions that need to rotate in very carefully way. Between the legal border and its crossing is a narrow line. Therefore, the decision to take action is not easy. Each stage is associated with the risk of balancing on the edge of legality: the decision to intervene, its duration, termination and responsibility to the international community. Moreover, the problem of intervention is associated with possible negative effects. It has a military character, so you should be aware of the risk of damage to the country. Therefore, only exceptional circumstances could justify such a risky operation14. Hence, there is a need to formulate the legal conditions of the intervention on individual cases in order to prevent further violations of human rights. Among the humanitarian intervention in an armed capacity include activities in Iraq, Rwanda, 348 | Haiti, Darfur, Sudan, Yugoslavia, Bosnia and Herzegovina, Somalia and Kosovo. Extremely controversial measure is the first of these actions. This is not a humanitarian intervention, but hides behind the “humanitarianism” war in Afghanistan and Iraq. These actions raise the idea of humanitarian intervention end, a break with the ethical idealism and the beginning of military realism. A practical problem may be due to a lack of consent to action or prolonged procedure that “hung in the air” in a situation of serious and massive violations of human rights. The difficult decision is the international community that may arise from the action in order to protect the violated rights and assume full responsibility for the illegal intervention. Examples of non-intervention in a situation of real danger may be the genocide perpetrated in Rwanda in the eyes of governments of many countries that have not made a decision to intervene in the absence of reaction on the part of the UN. The cause of the conflict in Rwanda were disputes between Tutsi and Hutu. At the request of Rwanda and Uganda, RB has established a monitoring mission, whose aim was to observe the border of Rwanda and Uganda. After a temporary cessation of fighting, the situation deteriorated again. Previously established sub UN mission conveyed reports on the safety of civilians15. The civil war finally ended, but at the cost of the death of huge masses of civilians. The intervention did not take place as in the case of Darfur, where thousands of people lost their lives in the camps. Despite the endless number of dying, UN bodies was limited to an inquiry whether there were acts of genocide. Another action was unsuccessful mission in Sudan, which took place in a very efficient manner. Made a number of activities, in particular sent observers, appointed a committee of inquiry, and finally sent troops to the African Union. But it turned out that the peacekeeping mission was not very effective due to the small number of branches, small funds and the lack of actual authority to protect civilians. Entities authorized to take emergency actions have purpose in delaying the process of humanitarian aid. Russia guided by its own economic objective. However, the United States appreciated in Sudan friend in the fight against terrorism. From the above examples show that countries have no interest in making the intervention, if they do not see an advantage for the development of their national potential. One of the principles of peacekeeping missions is not to lead to higher risks than the one that took place before the action started. An example showing the opposite situation was NATO intervention in Yugoslavia, which led not only to the short-term to prevent massive violations, but it was also the cause of death of many citizens of Yugoslavia and the damage to the economy16. This means that in some cases can only humanitarian temporarily improve the situation in the region. Sometimes, unfortunately, also entail profound and adverse changes in economic and social relations, and the cost of rebuilding the destroyed country are greater than the losses due to the cause of intervention. The situation in Bosnia and Herzegovina is an example of the intervening subsequent missteps resulting from a lack of political commitment and effort to get to, although the idea of intervening were clean humanitarian intentions. Interference did not produce significant results, because the state has not given any tangible benefits beyond the purely idealistic. Also intervention in Somalia in 1991 testified about such a high degree of selflessness. She was also like conflict in Bosnia and Herzegovina example of just cause, which has been the conviction of the Security Council and the international community about the need for intervention. Means have been taken to Somalia because of mass starvation and poverty prevailing in the country. First steps have been taken involving peaceful negotiations towards a ceasefire and an agreement on the supply of humanitarian aid. In 1992 he was appointed peacekeeping force to monitor the ceasefire and humanitarian aid. UN repeatedly called for a cease fire and to cooperate in the distribution of humanitarian aid. Finally, as a result of the deteriorating situation UNOSOM forces were appointed authorized to use all necessary means to protect the delivery of humanitarian aid. Recast of the UNITAF was to speed up the process of reconciliation, but as a result of attacks | 349 on soldiers intervening and lack of strong commitment to the intervention did not bring the expected results17. Interveners evinced passivity and reluctance to undergo the actual responsibility, because they had no interest in fighting for the rights of others, engaging in such a high state effort. Thus, the potential contribute to the insignificant activities satisfying human rights advocates only platitudes. However, the optimistic theme in the shadow of human history was the sort of intervention in Kosovo, which is evidence of the existence of humanitarian intentions and goals. The cause of the interference were fought battle between the Kosovo Liberation Army fighters and Serbian forces. Battles manifested by severe human rights violations, mass shooting and ethnic cleansing. In the absence of agreement, NATO forces began in 1999. intervention in the absence of agreement on behalf of the RB and the defense of the suffering of the population of Kosovo. This is the kind of lessons forcing the state to make the actual implementation of the responsibility to protect, not content with ideological guidance. The European Union and the United Nations Intervention should be seen on the rivalry between the United States and the European Union. The involvement of the EU’s intervention in Iraq and the Congo became a big surprise to the international community. A positive aspect of the Union’s participation in the improvement of human rights is the pursuit of his own vision of international relations and to build their own mechanism to combat humanitarian crises. This is certainly a new look in comparison with the reality constructed by the United Nations system, but it has many shortcomings in experience and potential.18 3. Summary In response to the question posed in the topic, we can quote that “humanitarian intervention lies as if some internal semantic contradiction, because if intervention, it is not humanitarian, but armed and forced, on the other hand, if humanitarian, it is not intervention, only help19.” The combination of humanitarian and military intervention brings a lot of complications. The desire to defend the population against the international violation of their rights is not always parallel with the interests of individual states. So armed intervention may be only a curtain for the real interests of the country. This has reference to a subjective procedure for the award of the mandate to carry out the intervention, and no definite evidence of such interference without the consent of the Security Council. Issues of legality and legitimacy of the action taken depends largely on the selfish interests of competing states. Thus, the remedy for the moral condition of society appears to be an international verification system. The problem is subjected to a transformation of interventions to support it on new foundations. This transformation was started by International Commision on Intervention and State Sovereignty. As already mentioned, developed as a result of the committee’s work the concept of responsibility to protect is building a more responsible society. This indicates not only the legitimate interests of intervention, but also need to rebuild in international cooperation. References Domagała, A. (2008). Interwencja humanitarna w stosunkach międzynarodowych. BydgoszczWrocław. Freeman M. (2007). Prawa człowieka. Warszawa. Mężykowska A. (2008). Interwencja humanitarna w świetle praw człowieka. Warszawa. Szpak A. (2005). Interwencja humanitarna- aspekt prawny. Toruń. 350 | Zajadło J. (2005). Dylematy humanitarnej interwencji. Gdańsk. (Endnotes) 1 Zajadło J. (2005). Dylematy humanitarnej interwencji. Gdańsk. 2 Zajadło J. (2005). Dylematy humanitarnej interwencji. Gdańsk. 3 Mężykowska A. (2008). Interwencja humanitarna w świetle prawa człowieka. Warszawa. 4 Zajadło J. (2005). Dylematy humanitarnej interwencji. Gdańsk. 5 Mężykowska A. (2008). Interwencja humanitarna w świetle prawa człowieka. Warszawa. 6 Zajadło J. (2005). Dylematy humanitarnej interwencji. Gdańsk. 7 Zajadło J. (2005). Dylematy humanitarnej interwencji. Gdańsk. 8 Domagała A. (2008). Interwencja humanitarna w stosunkach międzynarodowych. BydgoszczWrocław. 9 Mężykowska A. (2008). Interwencja humanitarna w świetle prawa człowieka. Warszawa. 10 Zajadło J. (2005). Dylematy humanitarnej interwencji. Gdańsk. 11 Domagała A. (2008). Interwencja humanitarna w stosunkach międzynarodowych. BydgoszczWrocław. 12 Mężykowska A. (2008). Interwencja humanitarna w świetle prawa człowieka. Warszawa. 13 Zajadło J. (2005). Dylematy humanitarnej interwencji. Gdańsk. 14 Zajadło J. (2005). Dylematy humanitarnej interwencji. Gdańsk. 15 Szpak A. (2005). Interwencja humanitarna- aspekt prawny. Toruń. 16 Freeman M. (2007). Prawa człowieka. Warszawa. 17 Szpak A. (2005). Interwencja humanitarna- aspekt prawny. Toruń. 18 Domagała A. (2008). Interwencja humanitarna w stosunkach międzynarodowych. BydgoszczWrocław. 19 Zajadło J. (2005). Dylematy humanitarnej interwencji. Gdańsk. | 351 352 | IV. Human rights in the national legal systems | 353 354 | Nina Planojević, University of Kragujevac [email protected] Right to Free Consent to Participation in Clinical Researches in Serbian Law1 Abstract Problem statement: Right of a man to self-determination in regard to his own body is guaranteed by numerous international conventions, as well by constitutions of almost all states. Among other things, it means that medical experiments cannot be conducted in someone without his consent. Numerous research scandals, starting from the II WW and Nazi camps till today, showed, however, that formal guarantee of the right to consent is not sufficient protection of a man against possible misuses. Therefore, this requires precise terms at national levels, fulfillment of which provides consent which is both formally and essentially free. For this reason we have selected to have as topic of the paper analysis of the way in which the Republic of Serbia made right of a man to free consent more concrete by new regulations in this field. Our objective is to identify is protection provided by these regulations to participants in clinical researches appropriate. Results: Serbian laws contain provisions guaranteeing that consent of a person to participate in clinical researches will be free; including also ban of participation for subjects who can be influenced to give their consent by force or by other method. Methods: normative, axiological. Conclusion: Although having some shortcomings, Serbian regulations in this field can be evaluated as adequate. Keywords: human rights, medical law, medical experiment, Declaration of Helsinki, Guideline for Good Clinical Practice. 1. Introduction Clinical researches of new medications in human beings are preceding and unavoidable stage of their future safe application – so, without it there is no progress of medicine or existence of mankind. Regardless of their indisputable importance, clinical researches in human beings cannot be conducted without their consent, because right to autonomy and self-determination regarding body is one of the fundamental rights guaranteed to a human being today, both by international and national regulations. Therefore, consent to participation in research represents a border line between a human being as subject and a human being as object of the research, as animals for example. Although it may seem that just underlining this fact is sufficient, we should not forget IIWW and Nazi’s camps (Shuster, 1997), where cruelest medical experiments were performed in human beings without their consent. For this reason, right to consent represents fundaments of human beings’ protection from possible misuses in clinical researches. Analysis of numerous research scandals (Rothman & Rothman, 2005; Živojinović, 2012), which continued to multiply all over the world showed, yet, that neither formally existing consent is sometimes not sufficient warranty that participation in a research is expression of true human being’s will. For this reason, newer regulations in this area foresee certain qualities of the consent in order to consider it valid and acceptable. It means that existing consent does not always have to be equal to the valid one. On the basis of these regulations, as well different attitudes in legal theory, we would like to distinguish at least three qualities to guarantee validity of the consent. 1 This work was supported by Ministry of Science and Technological Development of the Republic of Serbia, through the Contact No. 179012. | 355 Firstly, it has to originate from a person capable of giving legally relevant statement of will, i.e. to be legally competent, capable of reasoning and adult (of legal age); or to originate from a legally authorized representative of a person who does not hold mentioned features. Secondly, consent is acceptable only if given by a person previously informed about research details to participate in and provided by information it understood. Such consent is named «informed consent». Finally, consent has to be given freely and voluntarily. It is simplest to verify existence of the first of three mentioned consent qualities, and regulations on legal competency are detailed and precise in each state: each research participant provides data about its age and health condition, and researcher also interviews а participant – so, conclusion: is participant of legal age, capable of reasoning and legally competent is not problematic. Similarly, informing future participant is not problematic, because most of regulations foresees not only an obligation for a researcher to do so, but also contain list of information which have to be presented, and, as the rule, written track-records are kept about this. The most difficult is, however, to identify did concrete person give consent to participation in a research freely or under certain influences causing lack of this quality of the consent. Reason for this is, among others, also the fact that largest number of international and national regulations guarantees to a human being right to free decision regarding participation in a research; but, in small number they elaborate in details what exactly that means and which influences, beside of coercion as the most prominent one, can lead to a consent which is not freely given. For that reason, it is hard also to protect a human being form possible misuses. Noticing this problem, author has selected as the topic of this paper analysis of regulations related to the right to free consent in one legal system belonging to a group of „younger“ national regulations not only guaranteeing but to the certain extent also elaborating content of this right and foreseeing protection of its holder from misuses. These are regulations of the Republic of Serbia where legislator stipulates mentioned issues in one part differently than it is regulated by certain international documents covering this matter. With the overview of good and bad sides of the Serbian legislation, as well its comparison with international solutions it differs from, author will try to identify how it should be amended or extended in order to provide the largest possible scope of respect and protection of a right of a human being to free consent. At the same time, this will be author’s vision of the best regulation model for this issue. Right to Free Consent in Serbian Law 2. Legislation Right of a human being to free decision on participation in clinical researches is guaranteed by the Constitution of Serbia stipulating that „no one can be … subjected to medical or scientific experiments without his freely given consent“ (art. 25). The fact that only one of three above indicated qualities of a consent got constitutional guarantees implicates its importance. Recently adopted Law on Medicines and Medical Products (hereinafter: the Law) contains detailed regulation of terms under which clinical researches in human beings can be conducted, as well when consent is considered freely given. Conducting of other medical experiments is regulated by special regulations. The Law in its article 59 refers to implementation of Good Clinical Practice Guidelines and those are today an integral part of the legal system of Serbia, therefore, author will also present and comment solutions of both documents in this chapter of the paper regarding elaborated issues. 356 | 3. Right to Free Consent According to the Law on Medicines and Medical Products The Law regulates two issues creating by that concrete formulation of the right of a human being to free consent to participation in a clinical research, guaranteed by the Constitution. The first one is: when consent can be considered freely given. Besides, legislator defines that quality in a negative manner: not determining under which terms consent is considered freely given, but defining when it is not. Right to a free consent certainly means also the right to free withdrawal of the given consent and abandonment of participation in researches – as the Law explicitly allows to a research participant (art. 61, par. 1, p. 3). Second regulated issue is form of protection of a human being whose consent was not freely given – with the aim to prevent his misuse and prevent participation in research with no real will for that. Author will elaborate both regulated questions. 3.1. Situations When Consent is not Free Already in its first provisions, the Law foresees that consent does not mean only statement of participation in certain research that is voluntarily given (art. 2, par. 1, p. 23). The consent will not, however, be considered freely given if it originates from „persons who can be influenced by coercion or other method of acting to give assent and free consent for participation in clinical research“ (art. 63, par. 1, p. 5). The Law, however, does not determine what is meant by coercion in this context, or what are other methods of influence on potential research subject due to which his consent will not have feature of a free one. While an answer to the question when consent is given under coercion can be found on the basis of solutions in other laws and opinions of legal theory, it is significantly more difficult to identify what is meant by other methods of acting. Hereinafter, author will try to give answers to these questions. 3.1.1. Consent under Coercion 1. Since the Law does not determine what can be considered coercion in the context of free consent to participation in clinical research, author will try to give answer to this question using solutions of Serbian Criminal Code (hereinafter: CC) and Obligations Law (hereinafter: OL), as well legal theory position. These solutions, however, can be just a starting point, since context in which they define coercion obviously differ than the one author analyzes. Criminal Code defines coercion as one of criminal offences against freedom and right of a man and citizen; by that, coercion means use of force or threat against other person in order to make it do something, not do something or suffer (art. 135). Obligations Law just mentions coercion when stipulating issue of voidable contract, indicating it as a reason to make contract void (art. 117); however, it does not define coercion, unlike for example fraud or threat. In the theory of civil law, coercion is defined as giving of statement of will, induced by force (Vodinelić, 2012); or as use of force in the moment of legal deal formulation (Stojanović & Antić, 2004). It stems from presented that coercion, both in criminal and civil law, means use of force; criminal law sees it even wider including threat, too. Coercion, in the context of clinical researches should be also understood as use of physical force and threat aimed at consent getting; but, in our opinion, it should be understood even wider – and treat as coercion some other acts resulting in consent which is not an expression of free human will, and this is going to be elaborated further. 2. Basic form of coercion is certainly use of physical force against someone, in order to make that person sign consent to participate in a research. Physical force can be used in different manners. Arm of a potential participant can be by force dragged to sign consent form (vis absoluta); or, participant will sign the form personally but under the impact of beating or any other form of physical abuse, injuries or torture it suffered. Each method of physical pain infringement needs to be considered as coercion. The important thing in all these situations is that there is a connec- | 357 tion between suffered physical abuse and consent giving that is the relation of cause and consequence. Although sounds odd, but it is also possible, that research subject is not even aware that he is under coercion, but he is latter, for example, informed that its physical discomforts are consequence of poisoning to which it was exposed without its will and knowledge, in order to give consent. At the same time, author believes that the most suitable term to be used for the notion of coercion in the context it elaborates would be „physical misuse (molesting)“ instead of the term „force“ having narrower meaning. Namely, term force means active, positive physical act, acting against person to be forced to give consent. Coercion, however, in our opinion can exist also when person is deprived of something, due to what he suffers physical discomfort – here this refers to passive relation between person exercising force and subject; it is about non-acting. That is misuse, but it is not essentially use of physical force. Someone can be forced to consent by deprivation of drink, food, sleep, medicines, medical aid, even drugs and alcohol, if subject is addicted to these substances, etc. The term physical misuse embraces all these situations. We also believe that coercion can exist also with no direct physical contact between person exercising force and the victim. Sometimes is possible to induce it also by loud sounds (hearing damage), light (sight damage) and in other ways, even when person exercising forcer is not in victim’s vicinity. Although forcing almost always means inducement of physical pain, it is occasionally possible without it. Let’s imagine the situation where someone is exposed to radiation against his will, and this can equally jeopardize his health and life. Coercion, in our opinion, exist also when a person is intentionally infected by certain disease (ex. HIV), in order to agree to participate in clinical trial of a new medicine for the subject illness. Many other situations could be indicated, and already happened in the past meaning physical misuse, i.e. coercion. Essence of coercion in the context of right to free consent is that bodily integrity, life and health of a person are endangered by certain physical acts or non-acts, temporarily or permanently, by pain inducement or not, in order to give consent to participate clinical researches. In some opinions, acts and doings against subject insulting human dignity should be categorized there, too, not only as acts against life and health, having in mind also that CC puts these acts, too, under a criminal offence of misuse and torture (art. 137, par. 1). It is true that such acts also can lead to unwanted consent to researches, but it seems they more represent psychical than physical coercion and misuse – this will be elaborated further. 3. We believe that situations where physical force and abuse are not applied against potential subject but against other, his close or beloved person (relative, friend, spouse, partner, etc.) should also be understood as coercion – consequently, subject gives its consent in order to prevent their misuse. Although, here it is actually about psychological acting against subject, the fact is that with some people use of physical force against close people is more likely to give wanted results than use of force against them. For this reason, it is our opinion that these situations should be understood as forcing, too. Use of force against person close to the subject in order to make him give consent should be differentiated from threat, where force is still not applied against anyone, but just „in prospect“. 4. CC, as said, beside force includes also threat under coercion – so, there is no reason not to understand coercion the same way in the context of clinical trials. CC, however, does not define threat; yet, that is done by the OL which does not treat threat as „integral part“ of coercion, as CC does, but as one of the defects of statement of will when contract is concluded, differently than coercion which represents separate reason for its annulment. Definition of threat in OL with smaller corrections is considered acceptable in the context of clinical researches, because consent represents statement of will, too, just different in content than the one being an integral part of a contract. Consent is a statement of will by which personal right of an individual to bodily integ- 358 | rity, life and health is accomplished. According to the OL (art. 60), prohibited threat means causing justified fear of someone, because environment makes it obvious that his life, body and other important assets are endangered by serious danger; or these assets of third persons. In the context of clinical researches this would mean that consent will not be considered freely given, but forced one if potential subject gives it to avoid bad times for him or persons closely related to him, and this can refer to life and body, but also some other assets. In author’s opinion, the other asset can be material or non-material – personal assets (ex. one employee threatens other by mobbing); but, objectively observed, this has to be important for the subject person. Threat of endangering insignificant asset is insufficient; and assessment of relevance is a factual question solved in accordance to circumstances of a concrete case. Life situations and economic power of different persons are different (some are poor, ill, have certain occupations, etc. – others are not); so, what is particularly important for someone does not have to be for someone else. Threat creates fear, and by that no physical, but psychical impact and coercion is made due to which subject consents to research in order to avoid evil he has been threatened with. Threat mentioned by provisions of the OL has to be illegitimate (ex. subject is being threatened by car arson); but, we believe that, in the context of clinical researches, consent is inacceptable even when threat is not illegitimate (ex. one person is threatened to be reported for criminal offence it committed if he does not consent to participation in clinical research). Namely, emphasis in clinical researches has to be on results – consent must be free; emphasis is not on a responsibility of threatening person. 5. Since it is author’s opinion that notion of coercion in the context of clinical researches needs to be understood widest possible – in order to provide consent to be really freely given – it is believed that blackmail should also be taken as coercion, beside force and threat, although both criminal and obligation law do not treat it as form of coercion. Blackmail is similar to threat by use of psychical abuse and influence (not physical) to force someone to give consent. Criminal Code defines blackmail within the group of criminal offences against property, determining it exactly as threat by which one person is forced to act or not act within the action mentioned by the law. In our case it would refer to giving of unwanted consent. Blackmail is, thus, specific threat differing from the threat defined within the OL by precise content as given in the CC: a man is not threatened by endangerment of life, body or some other asset in general, but that something is going to be revealed about him or someone close that could harm his honor or reputation (art. 215). Therefore, it is threatened by endangerment of exact personal asset creating a feeling of fear or discomfort that results in unwanted consent in order to protect honor or reputation. Perhaps, this „demarcation“ between blackmail and threat is not that relevant in the context of clinical researches, because, as obvious, blackmail can be taken as already presented notion of threat, i.e. that would be threat to endanger some other human asset, beside life and body. 6. Reason why author believes that coercion should be understood in widest possible sense within the context we discuss is because in clinical researches and right to free consent accent is on the fact that consent is not an expression of free will of potential subject and he does not want to participate in researches (as prescribed by the Constitution and legal norms as necessary); the accent is not on the method of acting (forcing) having unwanted consent as a consequence. Each method to get consent which is not wanted makes participation in clinical researches inacceptable and research subject has the right to protection. At the same time, in this context it needs to be particularly stressed that it is irrelevant do coercion, threat or blackmail have all elements in order to be considered one of the same or similar criminal offences foreseen by the Criminal Code. Are terms fulfilled for certain form of responsibility (criminal, civil or misdemeanor) of a person using these methods against a subject is issue that is also irrelevant for assessment of validity of the consent. Acts in question often have character | 359 of criminal or civil-law offence, and person using it against a subject will be responsible for that, as a rule. Objective of elaborations in the paper is, however, to establish when subject’s consent cannot be taken as free and acceptable; not to elaborate are acts by which that is done offences. Form of protection for a forced subject, beside the one foreseen in other branches of law, is prescribed also by the Law on Medicines and Medical Products – and, this will also be elaborated. 3.1.2. Consent under Impact of Other Methods of Acting While provisions of the CC and OL facilitated answer to the question what should be taken as coercion in the context of clinical researches, answer to the question what should be taken as other methods of acting for which consent cannot be considered free is not easy to give. Because the Law does not define acts in question and we cannot rely on solutions in other laws. In order to verify what belongs to other methods of acting, we will start from the objective of the subject legal norm. Its objective is to provide consent in line with the real will of a person giving it, i.e. to have voluntary and wanted participation in clinical researches. Therefore, our starting point for verification what should be understood under other methods of acting will be each cause (beside coercion) leading to dissent between real and expressed will of a subject (consent), i.e. infringement of his right to free consent. 1. From this viewpoint, situations when no force or direct threat is applied against a potential subject should also be considered as other methods of acting; but these situations are characterized by a special personal relation between research subject and person obtaining the consent which is further characterized by some sort of subject’s dependency. Due to this, he gives unwanted consent, because feels fear and indirect threat which although unsaid „floats in the air“, and it is the consequence of their relation. What kind of threat „in the air“, relation of dependency and fear it is about? In the first place, it is about hierarchic relation of business nature where subject is subordinate and researcher is superior. Namely, researcher can be subject’s boss at his office (hospital or other medical institution); it can be his school teacher or faculty professor; it can be his mentor in postgraduate studies, etc. Besides, researcher can directly and explicitly threat to the subordinated subject: that he will dismiss him, block his promotion, degrade him to a worst working position, not let him pass the exam, exercise mobbing against the subject, etc. If subject does not agree to research – then, as we explained, we have coercion in its wider sense. But, if a person in charge of obtaining consent is not explicitly threatening to a subordinated subject, but he is giving it believing, grounded or not, that mentioned bad consequences will come anyway if he does not obey – it is, then, about what we may consider other method of acting against a potential subject to give consent which actually is not voluntary. It is formally, but not essentially; because, it was not given due to a wish of subject to participate in the research, but for the fear of negative consequences to come and even worst position he will get in if does not give it. Briefly, a man fears revenge of his superior, regardless there was no direct threat by this, because superior is in the position to do so. Dependency of potential subject on researcher must not always be based on hierarchical relation at job. Dependency can be of economic and existential nature: researcher financially supports or sponsors subject’s work, or assists him materially or in some other way. Dependency can be of medical nature: researcher is subject’s physician, dentist, etc. – so, subject feels fear that his treatments or medical care will be worst if he rejects participation in the research. Subject can be kin or in some other similar relation with the researcher: subject is parent or even older researcher’s ancestor researcher is taking care of, and subject gives its consent fearing that care will be worst; or gives it wishing to assist its descendent; or to prevent potential confrontation with him – although subject actually does not want to participate in the research. Prisoners and persons staying in institutions of social or health care could be certainly added to this list, because they are also in 360 | such position, in wider sense; but, these are persons who are already categorized by Serbian law as special category of subjects enjoying protection in the context of clinical researches (art. 63, par. 1. p. 3 and 4 of the Law). Some authors (Živojinović, 2013) consider both inducement and persuasion of someone to participate in research other method of acting resulting in infringement of the right to free consent. 2. According to some opinions (Živojinović, 2013), consent giving for (justified or unjustified) expectation of benefit from a person against who subject is in depending position (ex. promotion in the office or other form of protection, money, etc.), also needs to be put under other methods of acting resulting in consent which is not free. In author’s opinion, this situation should not be placed in this group, because it significantly differs from previously mentioned cases. Namely, subject is not feeling forced in any way when gives consent for expected benefit or „award“ from a researcher. He feels no fear either, or discomfort, or suffers any physical or psychical pain – and, that is common for the rest of the cases – but, consent is given voluntarily with acceptable motive: for expected material or other benefit. The subject makes some kind of calculation and trade: if agrees to research he may get in return affection and protection of a superior for something he wants, not deserves. Under normal circumstances, motive for participation in clinical researches depends on the fact is it therapeutic or non-therapeutic one. In the first case, motive is expectation that application of tested medicine will contribute to healing of subject’s illness; and, in the other case, motive is person’s humanity and wish to contribute to the progress of medicine, since subject is not ill it cannot expect benefit for its personal health. Material benefit should not be motive for participation in the research, and for this reason most of international (and national) regulations bans its offer to a subject in order to give his consent; and, by the rule, subjects do not get any award for their participation, but just costs reimbursement. The same should be valid also for consent to participation for other expected benefits. Therefore, author of this article believes that participation in the research in such situation is inacceptable, but not for consent which was not given freely, but for being given for immoral motives, and that makes it at the same time illegitimate. Therefore, the author did not categorize expectation of benefit as other methods of acting resulting in consent which was not freely given. 3. Most disputable question is: should fraud be also categorized as other method of acting in this context, i.e. provision of consent by misleading or keeping someone misled about the research related facts. Fraudulent act, i.e. act of misleading or keeping someone misled is defined by the CC (art. 208) as false presentation and hiding of certain facts, which can originate from a person getting consent or someone third. Important is that subject gave its consent exactly under the impact of fraud. The same dilemma worth for the question should consent be considered freely given if it is a result of wrong research related beliefs someone created individually not due to a fraud, i.e. act of other person. In this case it is about personal mistake, not fraud, i.e. misleading or keeping someone misled. In this situation consent is not expression of someone’s real will, too; although it is subject’s fault, not someone else’s. Dilemma in question is worth also for a misunderstanding (dissent), when subject, for example, thinks he gave its consent to one, but another research will be conducted in it – independently was a person getting consent aware of that or not. In author’s opinion, strictly observed, dissent between real and expressed will of the subject due to fraud, mistake and misunderstanding exist, but it is more result of inadequate subject’s informing, rather than infringement of his right to free consent. Author believes that in mentioned situations, here informed consent of the subject lacks of three features consent has to have in order to consider it valid (as elaborated in the Introduction), but not the quality of it being free. Consent can be considered as informed one if subject has been provided by all information on the | 361 research, necessary to enable him to decide is he going to participate in it or not; and if person getting consent verified that subject understood these correctly (art. 61, par. 1, p. 5 of the Law). In the case of fraud, subject makes decision on the basis of intentionally given wrong information related to the research or their intentional hiding. In the case of mistake, subject decides on the basis of wrongly understood research related facts and this happen with no impact of other persons; but, it was an omission of the researcher to check did subject understood information correctly. As obvious, right to informed consent was infringed in both cases – not right to free consent giving, although the consequence is the same: consent is invalid and inacceptable. Literature, however, often does not demarks reasons for infringement of right to informed and right to free consent; and these two rights, i.e. qualities of a valid consent are not often precisely distinguished. 4. It is impossible to make in advance and finally conclude list of reasons due to which certain person can feel obliged to give consent to research, although it is not an expression of its real wishes, and also not a consequence of direct threat or coercion. Yet, for practical reason it may be easier if the legislator would at least list situations and actions which need to be categorized as „other methods of acting“ for which consent will not have quality of freely given one. Author of the paper is of the opinion that this should be direction to guide amendment of this provision of the Law. The only advantage of current solution is perhaps that list of situations fitting under the category is not finally defined and „closed“, but can be extended with new cases in accordance to concrete circumstances and assessment of competent authorities. 3.1.3. Subjects whose Forcing Results in Infringement of Rights of Research Participants to Free Consent 1. Although at the first glance it is logical that person against who coercion or other method (hereinafter: coercion) is used and person whose right to free consent is being infringed has to be treated equal – it is not always necessarily the case. This rule is worthy certainly for person who is legally competent and can independently give consent to participation in clinical research. Forcing such person leads to infringement of his right to free consent. It is possible, however, that use of coercion against one person not willing to participate in a research can lead to infringement of right to free consent of another person in who research should be done. The most important situation of that type is when subject to participate research is minor; or adult but not legally competent and instead (or together) with him consent has to be given also by his legally authorized representative (parent or guardian). It is clear that forcing of a representative to give consent in such situation means infringement of the right of research participant to a free consent irrespective coercion was not directly applied against the subject. Serbian Law had in mind both of indicated categories of persons, and in the context of right to free consent treats them equally foreseeing protection for subject when by „coercion or in other method of acting consent or free assent to participate in clinical research can be influenced“. Since words „consent “ and „assent“ do not have identical meaning in Serbian legal terminology (the first is used for a statement on acceptance given on personal behalf; and second is used for acceptance on other’s behalf) – that means that subject’s right to free consent is infringed according to the Law irrespective was that done by coercion against him, his legal representatives or both persons, with the aim to get consent or assent. 2. We would, however, say that right of one person to free consent can be infringed even when action was taken in a described manner not against the subject or its legal representative but against third person, and this was elaborated in the part of the paper on coercion, threat and blackmail. Such third person is, as rule, close to potential subject, but in our opinion it does not have to necessarily be the case. There are situations in life when man accepts things he wouldn’t otherwise in order to save important personal or material assets of another person irrespective 362 | other person is not even close or known to the subject. Such sensitive person can agree to participate in the research in order to save also third person from misuse or serious threat – taking his unwanted consent as lesser evil. In such situations, use of coercion against one person results in infringement of right to free consent of another person, although it is not subject’s representative. This situation, however, is not covered by the Law and it should be amended in that spirit. 3. Human right to free consent is infringed when certain forms of coercion or similar actions was applied or is being applied against subject or persons already mentioned. But, legislator does not tell anything about acts of forcing as something done and belonging to past; or something ongoing, i.e. presently happening. The legislator speaks about consent getting under coercion and similar actions as about an action that could happen: it is about persons who „...can be influenced by coercion or by other method to give assent or free consent...“. That means that the Law has in mind persons who were not involved in researches against their will, but (due to their position) there is a possibility that their consent will not have quality of free and voluntary one. Here, in a way, it is about preventive action of the legislator aimed at prevention of such situation, and above quoted formulation is considered as an adequate one. 3.1.4. Subjects Whose Actions Result in Infringement of Right to Free Consent Right of a man to free consent is most frequently being infringed by subjects in charge of consent getting. Since consent is usually got by a researcher to conduct clinical research, he is, as a rule, person who also infringes this right by coercion and similar acts. But, researcher can entrust other person with the task to get consent: most often to a physician who will not participate research and who can also get forced consent. Coercion and similar acts against research subject in order to give (unwanted) consent can be applied also by a third person who is not in charge of consent getting: on its own initiative or by the order of the researcher. The question is raised: is the right to free consent infringed also then? Although the Law does not contain provisions regarding these issues, in our opinion it is irrelevant who is the person to influence the person to agree to participate in a research against his will. Important is that it happened, and that means that accent is on a unwanted result – and that is consent against will due to actions discussed. Besides, it is irrelevant was the researcher an „active side“, person he deployed to conduct the procedure of consent getting or third person out of this process. The author even considers irrelevant did the third person act by the order or with the knowledge of the researcher, or he was not aware of that at all. Тhese facts are relevant to establish possible responsibility of these persons if their action had a character of legally prohibited. In the context of right to free consent what matters is that all mentioned actions of these persons influenced (or could influence) to have consent of a subject which is not free. 3.2. Protection of Right to Free Consent Subject, whose right to free consent was infringed, is protected primarily by a criminal and/or civil law – depending on the act by which right was infringed and does it have character of criminal offence (coercion (art. 135 CC) or illicit medical experiments and medicines testing conducting (art. 252 CC); or it represents civil-law offence. Beside mentioned, the Law envisages one more form of protection of this right and a person entitled to it and author considers this particularly important. This form of protection is proportionate to the importance infringed right has. Since right to free consent belongs to a group of fundamental and most important human rights – and protection of the subject to whom this right belongs is greatest possible protection one person can have in the context of clinical researches. Namely, the Law prescribes ban of participation in the research for all „persons who can be influenced by coercion or other methods of acting to give assent and free consent for participation in clinical research“. | 363 This exactly means that this form of protection annuls consent already given under above mentioned influences, disabling research conducting in a person giving consent against its will. In this way their misuses is prevented. Protection is immediate, efficient and subject person does not have to address to the court – as it is necessary in the case of criminal or civil-law protection. However, on the basis of the formulation from the art. 63, par. 1 which is actually subject of analysis in the paper, author would say that protection in question has even wider reach, i.e. ban of participation has also preventive effect. Namely, text of this article of the Law prescribing ban of participation for „...persons who can be influenced by coercion or other methods of acting to give assent and free consent...“ actually makes unsuccessful even an attempt to get their consent and involve them in the research. If it is assessed that certain persons are in such social position or relation with a researcher or person getting consent which indicate that their consent will not be a reflection of their real and free will – for such persons, the Law actually in advance bans participation in researches irrespective they gave their consent or not. An assessment that they can be influenced by coercion or similar method to give their unwanted consent is sufficient regardless this really happened or not. For this reason, we believe indicated solution of the Serbian Law is very good, because in the biggest possible extent it provides fulfillment of a right to free consent and prevents its infringement. Namely, in a small state, as Serbia is, it is not easy to find volunteers (particularly not health volunteers) who will agree to have new medicines tested against them, and for this reason researchers can be tempted to get consent not only by coercion, but more often by other, more subtle methods of acting ending with the same results – to have someone’s consent which is not free. Speaking of the issue who makes an assessment should certain subject be excluded from the research since it can be taken that its consent will be (or was) given under the influence of coercion or similar methods of acting – it is primarily the Ethical Board, which by the Law makes the decision related to research conducting (art. 73, etc.). It is the author’s opinion that this can also be done latter by other subjects, too, responsibility of which is to take care of research conducting in accordance to the law, such as Medicines Agency (art. 3, 88, etc.) or competent Ministry (art. 90, 208, etc.). 4. Right to Free Consent in Good Clinical Practice Guidelines Grounds of the regulation of the right to a free consent of the Good Clinical Practice Guidelines (hereinafter: Guidelines) are points 1.28. and 2.9. which prescribe that consent of a participant in a clinical research has to have the quality of a voluntary one. Point 4.8.3. further on, in a similar way as the Law, defines when a consent can be considered as freely given, as well who are subject which must not allow this by their acts: “Neither the researcher, nor the research staff, should coerce or unduly influence a subject to participate or to continue to participate in a trial”. Difference between indicated point of the Guidelines and corresponding provision of the Law is, as obvious, in terminology: beside coercion, by the Law, consent will not be treated as free also when it is given under the influence of «other methods of acting» against research participant; Guidelines define this as consequence of «undue influences». Although an expression used by the Guidelines seems to be more adequate one since it carries also (negative) assessment of subject influence’s value, the fact is that both the Law or guidelines do not define what is meant by given expressions and what meaning they have; therefore, their content is undefined and requires more precision. Both of indicated norms, therefore, belong to a category of legal standards (“general clauses”). Guidelines, however, went one step further than the Law, and in its point 1.61. where reasons making certain subjects vulnerable are indicted, some of undue influences mentioned in the point 364 | 4.8.3 can be recognized. As vulnerable subject, and particularly sensitive subjects Guidelines recognize, among others, individuals «whose decision to enter clinical research can be overwhelmingly influenced by expectations, justified or not, or benefits from participation in research or threat by consequences from superiors if they (potential subjects) reject participation“. While consent giving due to expected benefits and fear of negative consequences coming from superiors can be considered undue influences, it is an opinion of ours that sole consent in some other situation due to fear of negative consequences actually mean infringement of right to free consent. As we have already explained in the proper part of the paper, we believe that consent giving for expectations (or offering) of benefit does not mean infringement of right to free consent; here it is about freely given consent but for immoral or illegitimate motives. Therefore, content of the expression „undue influences“ in our opinion is wider than what can be considered infringement of the right to free consent and it does not have to be the case that each improper influence leads to its infringement. Guidelines are, then for example, listing persons belonging to this vulnerable category: members of groups with hierarchical structures, such as students of medicine, pharmacy, dentistry and medicine college, hospital staff and laboratories personnel, employees of the pharmacy industry, members of military and police forces and prisoners. These are mostly all those persons who, in our opinion, could be put also under the expression «other methods of acting» from the article 63 of the Law. Guidelines understand as free consent also the right to free withdrawal and abandonment of participation in researches (point 4.8.3.). Unlike the Law which protects the right to free consent by a ban to conduct researches in persons in question – Guidelines foresee for them no protection, except in the point 3.1.1. prescribing an obligation of the Ethical Board to protect rights, safety and welfare of all subjects, particularly of sensitive (vulnerable) groups of patients – not being precise what exactly that means. Institutional Monitoring Board (point 1.31.) has the same obligation. With this, protection foreseen by the Law is actually the only one subjects in Serbia enjoy in the context of clinical researches. One of the shortcomings of the Guidelines is, also, that provisions referring to the right to free consent are not gathered on the one whole, but “scattered” as obvious in the whole text of Guidelines. Comparison of Provisions Related to the Right to Free Consent in International and Serbian Regulations Right to free consent to participation in clinical testing of medicines and other medical experiments is guaranteed by almost all international acts regulating the field of clinical researches and human rights, starting with the Nurnberg Code till today. Yet, only some of them contain more detailed regulations of that. 1. Among first is the Declaration of Helsinki (hereinafter: DH) regulating the right to free consent is several points of its last version from 2008. It primarily guarantees this right foreseeing in its chapter B, point 22 that participation in clinical research can be only voluntary. Subjects who can give their consent to participation in the research only under coercion or other undue influence, are categorized by the DH into vulnerable, particularly sensitive subjects (part А, point 9), who need to enjoy special protection. Since earlier versions of the DH categorized in this category of vulnerable subjects only those who can give their consent under coercion, we may conclude that DH version form 2008 expands number of acts and influences which can infringe right to free consent contributing by this to their complete protection. The DH, however, exactly as the Serbian law and Guidelines, does not precise what needs to be meant under these influences – so, international and Serbian regulations regarding this issue almost do not differ at all. The only „sign“ how other influences in question should be understood is given perhaps in the chapter B, point 26 of the DH, by which consent of a potential subject must not be the consequence of its depending position in relation with the researches or coercion researches applies against the subject. | 365 Big difference between solutions of the DH and Serbian regulations, however, is in the respect of form of protection guaranteed to persons whose right to a free consent is infringed (or can be infringed) by use of coercion or other influences, such as depending position of a subject against researcher. While the Law foresees for such persons ban of participation in clinical researches, the DH foresees as protection measure exclusion of the researcher from the process of consent getting and its tasking to a qualified and well informed person who is totally independent of relation existing between the subject and researcher (part B, point 26 of the DH 2008 version). 2. If we compare forms of protection provide for a right to free consent by the DH and Serbian law, we have to conclude that both forms are effective in the situation where subject is coerced (or can be coerced) by a researcher to give consent – by force, threat or other methods of physical or psychical maltreatment. Right to a free consent will be sufficiently protected either by ban for a subject person to participate the research, or by exclusion of the researcher from the procedure of consent getting. But, if mentioned influences do not originate from a researcher but other persons with the aim to get subjects consent to the research; or, these influences are directed to a third person close to the potential subject – measure foreseen by the DH is ineffective. It particularly refers to situations where researcher is not a person giving orders to conduct subject actions (it can be sponsor of the research or some other person). Protection foreseen by the Serbian Law will, however, be efficient also in these situations. If potential participant in the research is eliminated from the list of potential participants – all mentioned actions against any of mentioned persons become senseless. Even when reason to suspect voluntarity of someone’s consent is exactly its depending position against the researcher or other similar influences (except coercion) – protection measure foreseen by the DH is not complete guarantee that consent will be free. Namely, exclusion of the researcher from the procedure of consent giving and entrusting this task to the other person eliminates depending relation of the subject against researcher. Regardless consent is to be got by another, „neutral“ person, clinical research is conducted by the researcher – and, he cannot know did the subject already agreed to participate it or not. This is clear also to the subject who will maybe, at the end of the day, give unwanted consent due to the influence of fear form researcher’s revenge or negative consequences for rejection to participate the research – irrespective consent getting was tasked to a neutral person. Human right to a free consent will not be jeopardized, and this protection measure will be effective only if subject is absolutely unaware that research is going to be conducted by the researcher against whom he is in the depending position; and if it is clear to the researcher that his identity is unknown to the subject. Since it is not sure that these conditions are always possible to provide, it is an opinion of the author that right to a free consent under indicated circumstances is not, yet, fully protected by the measure foreseen by the DH. Therefore, the author believes that form of the protection guaranteed by the Serbian Law is incomparably more efficient, complete and effective, because ban of participation in researches for persons who happen to be in any of mentioned situations absolutely excludes possibility of the infringement of their right to a free consent. Besides, the most important role in this concept of protection belongs to the Ethical Board and correctness of its evaluation is it possible to influence certain persons by coercion or other methods of influence to give unwanted consent. After the Serbian Law got into the force, there were also informally expressed positions according to which exclusion of the researcher from the process of consent getting is more acceptable measure than ban of participation in researches for persons in question – because ban decreases number of potential participants which is anyway modest in Serbia. The author believes that presented method of thinking is inacceptable calculation with such important human right as right to autonomy and self-determination against personal body is; and, the right to free consent to participation originates from it. 366 | 5. Summary Although almost all national and international regulations from the area of clinical researches and human rights guarantee right of a man to free consent to participation in clinical researches – lesser number of these deals also with more detailed regulation of these issues. Therefore, solutions of the Serbia Law on Medicines and Medical Products are object of analysis in this paper, as one of the newer national regulations elaborating right to free consent guaranteed by the Constitution. Right to free consent is regulated by the Law through elaboration of two issues: when this right can be considered infringed and how to protect it. In relation to the first issue, it is author’s opinion that solutions of the Law by which right to free consent is considered infringed if consent can be consequence of coercion or other methods of acting against potential subject needs to be supplemented: by adding threat and blackmail; defining of coercion in the widest sense of that word; and, precision what is meant under other forms of acting. Author explains by arguments why fraud, subjects misleading and taking or expectation of benefit by a subject cannot be considered infringement of the right to free consent. Author assesses that protection of right to free consent by legal ban of participation in researches to persons who can be influenced by some of indicated methods to give their consent is complete and effective. Comparing solutions of Serbian law with solutions of the Declaration of Helsinki, the author concludes that these are similar when it comes to the right to possible consideration of infringed right to free consent. In respect of the protection, Serbian solutions are assessed by the author as more adequate than solutions of the Declaration which foresees exclusion of the researcher from the process of consent getting as form of protection for potential subject. The author lists serial of arguments supporting her position. References Appelbaum, P.S. & Grisso, T. (1988). Assessing patients`capacities to consent to treatment. The New England Journal of Medicine. 319 (25). pp. 1635-1638. Bello, B.A. (2010). Dignity and informed consent in the treatment of mature minors. J Int Bioethique. 21 (4). pp. 103-122. Carmen, M.G. & Joffe, S. (2005). Informed consent for medical treatment and research: A review. The Oncologist. 10 (8). pp. 636-641. Coleman, D.L. (2007). The legal ethics of pediatric research. Duke Law. 57 (3). pp. 517-624. Childress, F.J. (1990). The place of autonomy in bioethics. Hastings Center Report. 20 (1). pp. 12– 17. Coleman, C.H. (2009). Vulnerability as a regulatory category in human subject research. The Journal of Law, Medicine & Ethics. 37 (1). pp. 12–18. Davidson, A.J. & O’Brien, M. (2009). Ethics and medical research in children. Paediatr Anaesth. 19 (10). pp. 994-1004. Djurić, S. (2012). Ethical problems in researches including children. Specijalna edukacija i rehabilitacija. 11 (3). pp. 449-468. Douraki, T. (2002). Ethical and Legal dimensions of Medical Confidentiality in European Law of Human Rights. Pravni život. (9). Ezekiel, J.E., Wendler, D. & Grady, C. (2000). What makes clinical research ethical. The Journal of the American Medical Association. 283 (20). pp. 2701-2711. Forster, P., Emanuel, E. & Grady, C. (2001). The 2000 revision of the Declaration of Helsinki: step forward or more confusion? Lancet, 358 (9291), p. 1451. Flory, J. & Emanuel, E. (2004). Interventions to improve research participants` understanding in | 367 informed consent for research. The Journal of the American Medical Association. 292 (13). pp. 1593-1601. Ivović, N. (2004). Consent to Medical Experimental Treatments. Pravni život. 485 (9). pp. 339-352. Kandić Popović, Z. (1996). Legal Protection of Human Rights and Modern Biomedicine. Pravni život. 10. Macklin, R. (2003). Bioethics, vulnerability and protection. Bioethics. 17 (5-6). pp. 472–486. Mason, S., Barrow, H., Phillips, A., Eddison, G., Nelson, A., Cullum, N. et al. (2006). Brief report on the experience of using proxy consent for incapacitated adults. Journal of Medical Ethics. (32). pp. 61-62. Mujović Zornić, H. & Petrović, Z. (2012). Responsibility of Health Institutions for Harms as Consequences of Treatment. Vojnosanitetski pregled. 69 (8). pp. 692-699. Mujović Zornić, H. (2007). Legal aspects of ethical comities work in medicine. Pravni život, 509 (9). pp. 253-275. Radišić, J. (1986). Professional responsibility of medical staff. Belgrade: Institute for Social Sciences. Radišić, J. (2004). Medical Law. Belgrade: Business Law School, Nomos. Rothman, D.J. & Rothman, S.M. (2005). The Willowbrook war. Piscataway: Transaction Publishers. Shuster, E. (1997). Fifty years later: The significance of the Nuremberg Code. The New England Journal of Medicine. 337 (20). pp. 1436-1440. Stojanović, D. & Antić, O. (2004). Introduction to the Civil Law. Belgrade: Belgrade University - Law School. Stojanović, Z. (2009). Comment of the Penal Code. Belgrade: Savremena administracija. Schwenzer, J.K. (2008). Protecting Vulnerable Subjects in Clinical Research: Children, Pregnant Women, Prisoners, and Employees. Respiratory care. 53 (10). pp. 1342-1349. Tatić Klajn, V. (2009). Children as subjects of biomedical researches or experiments in the light of medical, ethical and legal considerations. Pravni život. (9). pp. 837–853. Visser, H.K. (2010). Medical research in children: the pros and cons of extending the legal boundaries. Ned Tijdschr Geneeskd, 154 A. p. 2395. Vodinelić, V. (2012). Civil law – Introduction to the civil law and its general part. Belgrade: Union University – Law School, Public Company „Official Gazette“. Wirgley, A. (2007). Proxy consent: moral authority misconceived. Journal of Medical Ethics. (33). pp. 527-531. Živojinović, D. (2013). Protection of Vulnerable Subjects of Clinical Researches within the Declaration of Helsinki. In: The collection of papers from the International scientists’ gathering under the topic Law and Service, 2013, May 10. Kragujevac, Serbia. Editor: Mićović, M. pp. 681-697. Živojinović, D. (2012). The historical development and international regulations of clinical research involving human subjects. In: The collection of papers from the International scientists’ gathering under the topic Law and Service, 2012, May 3-4. Kragujevac, Serbia. Editor: Mićović, M. pp. 677-697. Author unknown, 2001. Nigerians angered by drugs trial delay. BBS News. [online] http://news. bbc.co.uk/2/hi/africa/1465532.stm. World Medical Association (1964-2008). Declaration of Helsinki: Ethical Principles for Medical Research Involving Human Subjects. Helsinki, Finland. International Conference on Harmonization of technical requirements for registration of pharmaceuticals for human use (1997). Guideline for Good Clinical Practice. ICH Topic E 6 (R1) London 368 | UK. Guideline for Good Clinical Practice were integrated into the legal system of Serbia in 2008 under the title “Guidelines of Good Clinical Practice in Clinical Trials” („Official Gazette of the Republic of Serbia“ 28/08). The Nuremberg Code. Trials of War Criminals Before the Nuremberg Military Tribunals Under Control. Council Law No. 10, Vol. 2, Nuremberg, October 1946–April 1949. Washington, DC: US Government Printing Office, 1949. The Medicines and Medical Products Act, „Official Gazette of the Republic of Serbia“ 30/2010, 107/2012. The Penal Code, „Official Gazette of the Republic of Serbia“ 85/2005, 88/2005, 107/2005, 72/2009, 111/2009. The Obligations Act, „Official Gazette of SFRY“ 29/1978, 39/1985, 45/1989; „Official Gazette of SRY“ 31/1993; „Official Gazette of SM“ 1/2003. The Constitution of the Republic of Serbia, „Official Gazette of the Republic of Serbia“ 98/2006. | 369 370 | Anna Schneiderová Róbert Jáger University of Matej Bel in Banská Bystrica The right to dignified life and welfare legislation in Slovakia during the interwar period Abstract The article describes the social status of the population of today’s Slovakia with emphasis on the most serious social problems. Article examines the earliest description of the changes of social conditions in the wider European area, which occurred in the interwar period, and then describes the changes in social conditions in the territory of today’s Slovakia. Consequently, it describes a process of legislation change regulating the social security of the population and labor relations. The article highlights the changes in legislation that have occurred in the status of the population as a result of changed social events since the end of World War I until the events preceding World War II. Keywords: Social security law, Social security, Social assistance, Labour law, Czechoslovakia, Slovakia 1. The social status of the population of Czechoslovakia during the interwar period Czechoslovakia had to respond from the moment of its creation to a number of problems in the social field. An important phenomenon of Czechoslovakia of the interwar period was the unemployment rate. This was due to severe disorders of development of the world economy caused by before mentioned crises. Workers in factories, but also wage workers (small scale enterprises, as well as agricultural workers) were experiencing unemployment. Unemployment in the state administration, local government, education, culture or health was not in mid-twenties such a serious problem, because this sphere was experiencing the acute shortage of skilled labour after the Hungarian intellectuals left the country. During the period immediately following World War I, the estimated number of unemployed in Slovakia was 150,000. The temporary reduction in the number of unemployed occurred in 1926-1929. This decline was due to the rapid development of the Czechoslovak economy. However, the crisis in 1929-1933 had a very negative impact on unemployment. Unemployment in this period was influencing all positions and all social strata (the worst of it were agricultural workers). The number of unemployed has risen to 250,000. The same number of people got to the subsistence level: 250.000 inhabitants earned six crowns a day, while bread was worth 2 crowns. At the end of 1935 there were already registered 800,000 unemployed in Czechoslovakia (Kršák, 2009, pp. 402). As a result of growth of the unemployed decreased spending power of the population due to which there was an excess of food and agricultural products. Among the priority tasks of the state in social area during the crisis was a care for the unemployed. They were paid benefits, activities providing the basic living for them and their children were organised. One of the consequences of a very bad social situation of the population of Slovakia was an emigration. Only in the years 1920 - 1930 emigrated more than 180,000 people to Western Europe or the USA. In addition to traditional large emigration abroad, many people also went to | 371 Western Europe or to Bohemia for shorter stays. About 20,000 people were every year leaving the country because of seasonal jobs (Oláh et al., 2009, pp. 52). There were a lot of riots especially in times of crisis, which were caused by a poor social situation of the population. Demonstrations and mass forms of protests were holding place, where were presented economic and social requirements. The most serious riots occurred in the thirties in the Košúty in Horehronie. These demonstrations led to clashes with police power in 1932, during which were killed 13 people. Besides the unemployment, the other acute social problem of post-war Czechoslovakia was also housing issue. Lack of housing has already occurred before World War I. Housing issue of underprivileged was a secondary result of high unemployment, because people who have lost a steady income did not have enough money to pay a rent. People with no income, who were under enforcement actions evicted from apartments, had to look for cheaper but worse apartments (Haburajová - Ilavská, 2009, pp. 43). There were emergency colonies arising. Most of the population of emergency colonies were unemployed or seasonal workers who were currently unemployed. People in emergency colonies lived in shacks, often without electricity. Their houses were built of mud and the boards. When it rained, people often had to sit under an umbrella. They lived in the unused sheds, old barracks or in the barns. Many people died in unheated basements because of a lung disease or they experienced severe joint rheumatism (Kováč, 1998, pp. 132). Economic and social conditions also significantly affected health of the population. An essential task of the health service after the war was to improve relatively poor health of the population caused by the long war, gradually reduce the high infant mortality and reduce the number of infectious and so called social diseases. They were mostly poor social conditions which caused high morbidity (the morbidity in the population living in a favorable social situation during the reporting period was not extraordinary in comparison with other countries of Europe at that time). Similarly as it was with the housing issue, people who lost jobs lost the means for good quality accommodation and subsistence. Prices of basic food began to rise, prices of milk, dairy products, vegetables, meat increased. The increased liability of the organism of social handicapped population to the illnesses was affected by the combination the above factors. One of the most typical infectious diseases, in which were we can see a lack of resistance against infections, were typhoid fever or typhus. Yet malnutrition of the population created favorable conditions for expansion of pellagra, a disease that previously occurred only in some areas of America and Southern Europe. Epidemics appeared in greater extent in Slovakia in the winter between the years 1935 and 1936. The disease ended in severe health harm. Also respiratory diseases were expanded. Social problems negatively reflected on a high level of infant mortality. Print of pre-Munich Republic was delivering frequent reports of deaths of hunger (Schott, 1994, pp. 395). 2. Legislation of social security law during the interwar period Czechoslovakia was created on the basis of Law no. 11/1918 Coll. on the establishment of an independent state of Czechoslovakia. This Act is called the ‘first constitutional provisory’ or also known as ‘receptionist law’ (Benko, 1998, pp. 503). Law no. 11/1918 Coll. also ensured legal continuity of the law of the Austrian-Hungarian monarchy. This means that previous legislations remained valid and that Czech lands as the former part of the Austrian monarchy have retained Austrian law and Slovakia, as a former part of Austrian-Hungarian monarchy retained the Ugrian law. This state is called legal dualism. This situation created significant problems, since there were considerable differences be- 372 | tween the Austrian and Ugrian legal systems. The situation in Slovakia was more complicated, which was caused not only by the fact that Austrian law was much more modern. It was also because the Ugrian legal system used not only the laws, but also regulations, common law, case law and decisions. This caused quite difficult orientation in this law. After the establishment of Czechoslovakia, the law has been further developed and supplemented by the adoption of new legislation. In the field of social security law and labour law of interwar Czechoslovakia the international provision was very important, particularly regulation in ratified conventions of International Labour Organisation. One of the most important results of the Versailles Peace Treaty was the establishment of the International Labour Organization (hereinafter “ILO”). Its creation was a manifestation of efforts to improve working and social conditions of workers. Czechoslovakia was its members and during the existence of the Republic there were ratified thirteen conventions that came into effect by publication in the Collection of Laws and Regulations. The ratified convention modified the following areas: a) The extent of working time ILO Convention no. 1/1919 on the limitation of working hours to eight hours a day and thirtyeight hours a week in industrial plants, b) Increased protection of specific categories of employees ILO Convention no. 4/1919 on the employment of women in night work, ILO Convention no. 5/1919 on determining the minimum age of children for labour in the industry, ILO Convention no. 10/1921 on the age of children for labour in agriculture, c) Protection from the consequences of negative social events ILO Convention no. 19/1925 on the compensation of workers against occupational diseases, ILO Convention no. 19/1925 on equal treatment of domestic and foreign workers in workers’ when compensating injuries, ILO Convention no. 24/1927 on sickness insurance for workers in industry, commerce and domestic servants, ILO Convention no. 25/1927 on sickness insurance for agricultural workers, the ILO Convention no. 14/1921 on the introduction of weekly rest in industrial concerns, e) The right of association ILO Convention no. 11/1921 on the rights of agricultural workers to associate and merge f) The protection of health ILO Convention no. 13/1921 on the use of white lead in painting work. Immediately after the establishment of Czechoslovakia there have occured changes in the area of ​​social security and Labour. Based on the Act. 91/1918 Coll. on the eight-hour working time, eight-hour working time was enacted (particularly government regulations were adopted for each group of occupations, e. g. to work in a pharmacy, mining, etc.). This Act regulated also work breaks. One can even argue that the provisions of this rule are more advanced than similar provisions of the standards of developed European countries (Mosný - Hubenák, 2005, pp. 246 and Mosný, 2013,pp.33). In other developed countries of (Western) Europe they began to introduce eight-hour working time after 1919, when Washington ILO Conference. Eight hours a day and 48 hours a week was designated by law alternatively so management firms and businesses had the freedom to choose whether the working time will be exactly 8 hours a day, or whether it will take another day period, in total not more than a week forty-eight hours. (It was argued that this free working time will not lead to a loss of competitiveness of the economy). To implementation this Act, it was issued Government regulation 11/1919 Coll., which issued regulations implementing the Act on eight-hour working time and also act of the | 373 Ministry of Social Welfare from 21.3.1919 no. 4751/III. Law no. 91/1918 Coll. in addition to working arrangements provided increased protection of adolescent employees  (children under 16 years were not allowed to do the night work) and of persons employed in household(with persons employed in household this regulation together with the Act. 29/1920 Coll. ensured at least the minimum social protection). Another serious social problem not only of post-war Czechoslovakia, but of almost the entire world was widespread child labour. Therefore it was only natural that in the first years of its existence, the Czechoslovak legislative power established a prohibition of the child labour. The ban was implemented by Law no. 420/1919 Coll. on child labour. Under this legislation, children under 14 years were not allowed to work. The term ‘to work’ was expressed as an occupational activity done for salary or as a regular job. This Act contained many exceptions. An employment during a study or education was excluded from the ban to employ children. It also allowed children to work on isolated and light, although regular tasks at home. It allowed employing children (even foreign) in agriculture and households from 10 years of age. The Act contained a general exemption from the prohibition on child labour in case of urgent public reasons or emergency circumstances (e.g. endangered harvest). Prohibition of child labour in many cases left the family without any earnings. Prohibition of the child labour thus solve a social problem, but (in some hopefully rare cases) to raise another social problem. As mentioned several times before, the inter-war Czechoslovakia had in the social sphere a problem with unemployment. One of the first laws eliminating the negative effects of the unemployment was Law no. 63/1918 Coll. on benefits for the unemployed. This law introduced a system of benefits for the unemployed among all unemployed persons who are subject to the Social Insurance Act (but only if they do not refuse to work in community service) (Mosný - Hubenák, 2005, pp. 246 and Mosný, 2013,pp.33). Under the Law no. 63/1918 Coll. to receive benefits were entitled wage-working individuals existentially dependent on wages that were subject to sickness and pension insurance. The term ‘unemployed’ was defined by the legislation relatively vaguely. Quite soon, however, the group of eligible individuals receiving unemployment benefits started to narrow. Government regulation no. 157/1919 Coll. excluded from eligible persons those who had worked before becoming unemployed in agriculture, forestry and households. The amount of the benefits depended on the wages and number of family members. It was ranging from 0.60 to 5 Crowns per day, which was relatively small in comparison with the high prices of that period. Higher benefits the parliament rejected with the reason that the unemployed could be tempted to live the truant life. Only about half the number of unemployed was receiving benefits because of administrative restrictions. Law no 63/1918 Coll. allowed the indirect benefit paid by employers. It was equal to the amount of wages, while state refunded the employer 80 to 90 per cent of the benefit. The biggest drawback of this legislation, with regard to the social circumstances, was that seasonal farm and forest workers (they represented the largest group of wage workers) were not entitled to receive the benefits. Another barrier in providing benefits was a condition of sickness and pension insurance. Only part of industrial workers, business and civil servants was insured in Slovakia. Law no 63/1918 Coll. was initially valid only until 15th February 1919, but its validity and effectiveness was extended several times. The unemployed benefits however excessively burdened the state budget. Since October 1919 were therefore unemployment issues solved through relief work, especially in an infrastructure. They were organized by district councils and villages which used state funding in the amount of workers wage, which was more than 6 crowns per person, per day. 374 | A fundamental change in the unemployment occurred after the adoption of   Law no 267/1921 Coll. on the state bonus to unemployment benefits. A change was the transition from the state unemployment benefits to unemployment allowance. This on first sight only terminological distinction showed in practice that the state did not to provide full unemployment benefits. It provided only a bonus, which should complement a rate coming from voluntary insurance of workers who should have been covered in the trade unions. We can say that by this so-called Ghent system were actually cancelled state unemployment benefits. Since this system was meant to provide financial support only to unemployed unionized through central union with a certain share of state assistance, group of persons eligible to receive the support was reduced considerably. There was a wave of resistance against the new law, and therefore it became efective in the year 1925. In relation to the unemployed, this measure could potentially impair their social status. On the other hand, state could persuade its citizens to take responsibility for their social status (since each employee could be insured in a union). In the early thirties there was a change in the status of unemployed. Their position has improved by amending part of Ghent system. The change was made by amending Law no. 322/1921Coll. which extended the period of payment of unemployment benefits for 13 weeks. The period of payment of the benefits was extended to 26 weeks and in rare cases to 39 weeks. The government also introduced a lot of actions to help the poor in the form of kind benefits (milk action, coal, sugar-action, which were known among people as ‘Žobračenky’ alias ‘Beggings’). State catering action of Social Welfare Department was built on the fact that the unemployed receive vouchers worth of 10-20 Crowns (received a single citizen 10 Crowns), which allowed them to get food (excluding drinks) in selected stores. They were allocated according certain rules: those who were since 1929 at least three months continuously employed, in case of seasonal workers it was required to work continuously up to six months, they were not eligible for the state catering action vouchers. Those, who received any other benefits (regardless of its size), owned a residential house or accepted a job offered by the employment agency, they were also not entitled to get the vouchers. The vouchers were originally allocated for 2 months; time of use was gradually prolonged. District, town social committee and district notary offices decided about their allocation. Ministry of Welfare provided vouchers in accordance with the funds that were available. After 1933 the recipients of vouchers had a duty to work certain number of working days in exchange for vouchers without any compensation. The work was given by notaries, mayors, public authorities and its rejection meant a loss of the entitlement to the allocation of food. Another measure issued in connection with the elimination of the negative effects of unemployment on the social status of the population, was work recruitment (with the possible job abroad recruitment). General rules for recruiting the unemployed to a work included Government Decree no. 217/1936 Coll. on work recruitment. On the basis of regulation of Minister with full authorisation for the administration of Slovakia no. 34/1919 Coll. work should be offered independently to trade assistance workers and businessmen, particularly for agricultural workers. Employers notified employment agencies about vacancies and jobseekers have to report twice a week in job agencies. There were not only public employment agencies active in Slovakia, but also private and trade agencies. Private employment agencies received a reward of 10 per cent of the client’s wage. Public employment agencies worked for free of charge. The rights of workers in industries were in case of redundancies somewhat protected by the provisions of the Law no. 330/1921 Coll. on works councils and the ward boards. The work council had under this Act the right to defence an employee who was employed by the company for at least three years, or if it causes of his release had appeared to be unjustified. Employment | 375 conflicts could have been submitted by so called decisive court attached to the individual corporations or an industrial court. Central Labour Court or so called General Parity Commission in Bratislava was established in Slovakia. The terms of redundancies of employees could also be covered in the provisions of collective agreements. Legislative power responded to the frequent collective redundancies of employees or to a stagnation of the production of some enterprises during the crisis in the thirties with the Law no. 225/1933 Coll. on measures for employees of stopped periodic forms. Stagnation for a longer time than 14 days or dismissal of more staff should have been announced in advance to the district office, which began the conciliation procedure. If this action did not achieve desired result on halting operations or collective redundancies, the district office decided on a proposal of any party. A similar character had the Government regulation no. 78/1934 Coll. on measures against stopping factory business services, against collective redundancies of the employees and also modified certain periods of notice in the job (service) ratios. Paid holiday for employees was introduced by Law no. 67/1925 Coll. introducing paid holiday for employees. Before 1925 the extent of holiday was not revised equally by law. By 1925 only miners have legal right to paid leave. Based on the Law no. 262/1921 Coll. was introduced paid holiday to workers in the mining of reserved minerals. Holidays in this category of workers ranged from 5 to 12 days a year. In other work professions, the range of holidays was specified in collective agreements. The collective agreements usually determined the extent of leave for one week. Law no. 67/1925 Coll. introduced statutory holiday provisions also to the other sectors. The Law established the extent of leave depending on seniority. An employee in continuous employment within 1-10 years was entitled to 6 days per year, 7 days per year at 10 to 15 years of employment and longer lasting job relationships and apprentices 8 days. The law actually only fossilized what the collective agreements already stated. Since the law already directly contracted the employers, regardless of whether a collective agreement was concluded or not, this clearly increased legal certainty of working. A military service was not counted into the determining period for length of holiday. The only advantage for a recruit was that during the performance of his military duty, it was not possible to terminate the employment of a recruit (Law no. 61/1925 Coll. on the continuing work (service) ratios of end-exercise in arms). The determining period for paid holiday would also not count the time during which was employee not employed because of illness or injury. It was not taken into the account who or what had caused the failure to perform a work. A similar character has the Government regulation no. 322/1938 Coll. on the protection of work conditions of employees who entered presence military service. Many categories of employees were more privileged than the others in the length of leave. Private sector employees were in accordance to § 26 and 27 of the Law no. 154/1934 Coll. on private employees entitled to two weeks of holiday per year, if their employment has lasted less than five years. If their employment lasted more than 5 years, they had 3 weeks and after 15 years 4 weeks. Editors were in accordance to the Law no. 189/1936 Coll. entitled up to six weeks of paid leave per year. In 1920 there were adopted two laws governing collective labour relations. There was Law no. 143/1920 Coll. on employee participation in the administration of mines and their share of net profit and Law no. 144/1920 Coll. on works and mine councils for mining. These laws introduced employee participation in decisions on fundamental issues like running of several businesses and their participation in net profit. An alleviation of the class contradictions and harmonization of capital with work was expected by employee participation in co-management and the net profit. Participation of employees in the company represented interference into previously unre- 376 | stricted exercise of the ownership right. Co-management of the company by employees on the basis of these two laws is not comparable with the full workers’ control on a production introduced in Soviet Russia after the October Revolution, because the decisions of workers’ control became mandatory for the management. We can argue that in post-revolutionary Russia authorities working effectively took over control of plant management and the then management has become only the executive body. This situation never happened in Czechoslovakia. Share of net profit could have been used for general charitable purposes exclusively for employees and their families by course of law the Law no. 143/1920 Coll. The mine board decided about shares following the budget of the company. The sphere of activity of these laws, however, remained limited only to the mining area. During the Czechoslovak post-war period there were various national trade associations and organizations. In 1922 Communist Party of Czechoslovakia was established after splitting of ultra left wing of the Czechoslovak Social Democratic Workers’ Party (Kováč, 1998, pp. 120). After its establishment, the Communist unions formed the International All-Union League. It was in the year 1928 the third largest trade union head office in interwar Czechoslovakia. During this year were in Czechoslovakia organised by unions 1,733,979 people, while the largest unions were social democratic trade unions with 537,727 members. The trade union movement was established on the basis of the encyclical Rerum Novarum of Pope Leo XIII from 1891 was represented by the Imperial All-Union Committee of Christian social working class (123,769 members in 1924). In 1920 was created in Slovakia All-Union League of the Christian working class based in Žilina (Bianchi, 1973, pp. 236). A significant factor, which aimed to improve both working conditions, but also improve the social status of the population, was the newly adopted legislation of collective mass agreements. In addition to the name ‘collective agreements’ was also uses the term ‘mass agreements’ and ‘tariff agreements’. The legislation of issues of collective mass agreements was contained in the Law no. 29/1920 Coll. on adjustment of wages and working conditions of home work. The issue of framework contracts, collective, wage and employment agreements were governed by the Law no. 76/1927 Coll. on direct taxes. It means that collective agreements were not governed by a uniform rule of law, but the legislation was a component contained in the regulations governing other primary issues. While employees obtained by a collective agreement more favorable working and wage conditions, an employer had stability of labour costs and a reliable calculation of production costs. According to § 1 of Decree no. 141/1937 Coll. Contracting Party of collective agreements could be workers` organizations or an individual - the employer, as well as a number of employers or one or more employers’ organizations. According to § 2 of the Government regulation no. 144/1937 Coll. it was allowed to declare collective agreement as mandatory for a particular area and branch of the industry. Then it was mandatory to all plants of this industry, even if the employer or the employees were not members of organizations which signed the contract. These types of contracts regulated in particular wage rates, but also dealt with various forms of allowances to the rewards, working time, holidays and so on. The big change in the social security of workers in Czechoslovakia between the wars was a legal duty of a health insurance of private employees that is non-employees. This insurance was regulated by Law no. 117/1926 Coll. The health insurance of public employees was regulated by Law no. 221/1924 Coll. on insurance of staff against illness, invalidity and old age and the workers had Law no. 268/1919 Coll. All employees, except for civil servants (whose social security was adjusted for them) were supposed to be insured according to the Law no. 221/1924 Coll. on insurance of staff against ill- | 377 ness, invalidity and old age. Under this Act, health insurance was carried out by health insurance companies, disability insurance and retirement by Central Social Insurance, which was based in Prague. Health insurance included help in sickness, help during pregnancy and burial. Help in sickness was in form of medical assistance, medicines and sickness benefits. Sickness benefits were provided for the longest one year and the amount of insurance depended on the classification of an insured into the pay scale (there were 10 of them). Maternity benefits were given to women during the six weeks after delivery, provided that at least six weeks before delivery the woman was insured. Insured woman, also a wife of an insured husband was also entitled to a free assistance of a midwife or, if necessary, a medical assistance. From the invalidity and old age insurance, under the Law no. 221/1924 Coll. on insurance for employees in case of illness, disability and age, was able to provide the following benefits: a pension, retirement, compensatory allowances for these pensions, widow’s pension, widower’s pension and orphan’s pension. There was a special law on the territory of Slovakia Law no. 26/1921 Coll. annulling the earlier modification of Article XIX/1907 on insurance industry and business employees in the event of illness and injury. Pension insurance for private employees in senior services was introduced by Law no. 484/1921 Coll. The most important was the new Law no. 26/1929 Coll. on pension insurance of private employees in senior services. This Act changed the capitalization system of financing the pension system to continuous system. As for the state administration in matters of the pension insurance, under § 2, ​​par.2 Government reg. no. 529/1920 Coll. was established Administrative Commission of the General Pension Institute in Prague. It was supposed to be composed of 14 members, half of which should be delegated from the employers and half from the insured. After extending the scope of Pension Protection Act to Slovakia, which became effective from 1st January 1922, the Administrative Commission under explicit provisions of the above standards was expected to be extended by two members representing employers and of employees in Slovakia. This provision was not adhered. After the establishment of the General Retirement Institute in Bratislava under the Low no. 484/1921 Coll. government was empowered to appoint a the Administrative commission to its management, consisting of half of the employers and half of the insured. Furthermore, it prepared the statutes and the rules of procedure of the office. This provision was either not adhered. Labour judiciary has been reformed in early thirties. It was mainly because of the Law no. 131/1931 Coll. on labour courts. Labour courts took the agenda from the general courts and administrative bodies whose competence to decide about labour disputes disappeared. They were meeting in a three-member Senate, where the chairman was a professional judge; one from the assessors was from employees and one from employers. The working conditions of miners, employees’ public enterprises and private employees were excluded disputes from their scope. The general jurisdiction could have been canceled by an agreement on the judge, even in the collective agreement. The Czechoslovak governmental power over the entire existence of the interwar intervened into the economy state with the regulatory measures. A secondary effect of these measures should almost always have been an improvement of condition of the economy: to sustain employment and prevent price increase, which finally should have stabilized (and improved) the social status of the population. The government, for example, tried to keep a control of rising food prices (e. g. in January 1919 to regulate the price of meat, in July 1919 to regulate the price of potatoes). Government reg. no. 335/1919 Coll. on adjustment of textile trade issued principles for the manufacture and distribution of consumable items. By regulation of the Ministry on supplying the people, no. 39/1919 Coll. adjustment on trade with milk, dairy products, and lard, determined the mandatory supplies. 378 | Ticket rationing of food and some consumer goods remained until 1921. So called homologation action was also a part of the regulatory action. Based on the Law no. 12/1920 Coll. businesses based abroad had to relocate to the territory of Czechoslovakia, or their activity could have been prohibited. The main purpose of this legislation was an increase in tax revenue of the republic. In overall, 1920`s (after a stabilization of conditions) were characterized by minimal state intervention in the economy. However, in the 1930`s (marked by the economic crisis) was taken a large number of state regulatory actions. These measures can include, e.g. forced syndicate (in the production of glass - Government reg. no. 2/1936 Coll. in textile production - no. 228/1936 Coll. in logging - no. 170/1933 Coll.). The syndicate was created, if the majority of the industrial area applied for it. The syndicate also determined the maximum extent of the production and sales. There was even forced syndicate in agriculture. Based on the Government reg. no. 137/1934 Coll. a grain monopoly was created – by the creation of the Czechoslovak Grain Society, which could as an only one buy domestic grain and export mill products abroad. Public intervention allowed the Law no. 95/1933 Coll. on exceptional power of enacting. Government could modify by the form of legislation of Regulation customs tariff or to do other arrangements to adjust prices and maintain balance in the national economy. Other government regulations have been adopted on the basis of this law, e. g. Decree-Law no. 48/1935 Coll. on some measures in the electricity industry, by which the authorities had the power to determine prices of electricity, merge power plants and others. Further state intervention in the economy anticipated also Law no. 131/1936 Coll. law on the defence of State. State therefore in this period assumed another function - a guardian of the economy. Czechoslovakia of interwar period had a relatively advanced legislation of working conditions. Based on Government regulation no. 41/1938 Coll. by which were issued the general regulations for the protection of life and health of labourers, treated in great detail the working conditions of manual workers. Its provisions were in content and detail very similar to today’s legislation of protection of life and health. Provisions of the current provisions under which the employer is required to ‘implement measures with regard to all circumstances related to work in accordance with the laws and other regulations to ensure the safety and health at work’ or ‘to improve working conditions and adapt them to employees, taking into account changing real and predictable circumstances and achieved scientific and technological knowledge’, are very similar to the rules contained in the Government regulation no. 41/1938 Coll. by which were issued the general regulations for the protection of life and health of labourers. 3. Legislation of social security law after the Munich Conference and Vienna Arbitrage As a result of major social changes as a consequence of the Munich Conference and Vienna Arbitrage that Czechoslovakian society underwent (and also as a result of preparations of a society for the imminent war), there were also issued the laws which would be considered at least as controversial under ‘normal’ circumstances. One of the first laws like this was Government regulation no. 195/1938 Coll. on working responsibilities in a state of emergency, under which all employees working in specific areas (eg, concrete plants, heating plants, brick kilns, dairies, pharmacies, laundries, print, radio, etc.) were imposed a duty to work regardless of their age and sex. It was irrelevant whether a person working in that area worked as an employee or was self-employed. We can include to this group laws and regulation, which should address an important problem of unemployment and the use of employment potential of the unemployed to generally beneficial acts. Based on Government regulation no. 223/1938 Coll. on working units were after agreement of the Ministry of Defence and the Ministry of Social Welfare established work units to | 379 which could be placed unemployed over 18 years. A person who received ‘a call up’ under § 5 of Government regulation no. 223/1938 Coll. had to start such a service, or was committing a crime. Individuals placed to the unit had to obey all the commands of their superiors. They were entitled to work equipment, accommodation, meals and their hourly wage was 40 cents. During the period when the service was performed, they were not entitled to any unemployment benefits. Released from such a unit could be only those who became ineligible to work, were called to military service, or found a proper permanent job. Insurance of individuals placed in units dealt with the Government regulation no. 246/1938 Coll. on entitlements of individuals placed in work units. Another norm that apparently responds to changing social conditions was e. g. the Government regulation no. 244/1938 Coll. on regulation of the employment of individuals from the territory occupied by foreign powers. According to § 2 paragraph 2 an employer was obliged to ask the district office for permission to continue the employment of people who permanently inhabited territories occupied by foreign powers. If the district office did not issue such a permit, the employment relationship between employer and employee residing in the territory occupied by a foreign power, ex lege lapsed. In response to changing social conditions was also issued in terms of the Defence Act 193/1920 Coll. the Government regulation no. 194/1938 Coll. on restrictions to travel abroad. According to Government regulation it was forbidden to travel to all male persons who were subject to compulsory military service and had no appropriate permission. A certain protection of individuals who have entered the military service, provided e. g. the Government regulation no. 322/1938 Coll. on the protection of working conditions of employees who entered presence military service, according to which it was not possible to terminate the employment of persons called up to the military service. The end of 1938 has brought notable changes in the international political sphere. These changes have caused serious harm to the public and private life of Czechoslovak society. Czechoslovak statehood was initially limited, then broken. Therefore there arouse completely different development conditions for the Czech and the Slovak nation. Equally seriously determined was the development of Social Security Rights and Labour Rights. We will describe the development of legal institutions and social conditions during World War II in the next work. 4. Summary The period of our history that we call capitalism, in comparison with feudalism, is relatively short but it is also the period of dynamic social changes. Big changes in social conditions after the onset of capitalism caused changes even in the law. While during the feudal period especially those in economic distress were supported, in the period of capitalism it has spread from the original forms to assistance to persons in economic hardship or persons in mental and social distress. Also at this time we can trace the first beginnings of social work as a practical activity of a science, whose task was to help to solve social problems. References BEŇKO, J. et all. Dokumenty slovenskej národnej identity a štátnosti I. (Documents of Slovak national identity and statehood I.) Bratislava: National literary centre - House of Slovak literature, 1998. p.514. 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Prague: Karolinum, 2008, p.461. ISBN 978-80-246-1429-8. RUSSEL, K. Atlas lidské migrace (Atlas of human migration), Prague: Mladá fronta. 2008, p.192. ISBN 978-80-204-1706-0. SCHOT, H. et al. Kronika medicíny (Chronicle of medicine). Bratislava: Fortuna Print, 1994. p.647. ISBN 80-7153-081-6. STEVENSON, J. Dejiny Európy – od najstarších civilizácií po začiatok tretieho tisícročia (History of Europe - from the earliest civilizations to the beginning of the third millennium). Prague: Otto Publishing, 2003, p. 510. ISBN 80-7181-132-7. STODOLA, E. Štatistika Slovenska (Statistics of Slovakia). Turčiansky St. Martin: published on the author’s own cost. 1912, p.158. VLČEK, E. Vznik sovietského štátu a práva v rokoch 1917-1918. (Formation of the Soviet State and Law 1917-1918). In: Kadlecová, M. et al. Legal history. Prague: Eurolex Bohemia, 2005, p.579. ISBN 978-80-7380-161-9. ŽILLOVÁ, A. Chudoba a jej prejavy na Slovensku (Poverty and its manifestations in Slovakia). Badin: MENTOR, 2005, p.161. ISBN 80-968932-2-X. ŽILOVÁ, A. K metodologickým otázkam v sociálnej práci (Methodological issues in social work). In “Social Work Days” on the topic “The Social sphere of the Slovak Republic and social work (Europe, law and practice)” and “Romani personalities.” Nitra: ŠEVT, 2010, p. 71-76. ISBN 97880-8094-650-0. This article is published with the support of grant project titled: KEGA no. 003TU-4/2012 “Formácia podnikateľských schopností študentov spojená s reformnou optimalizáciou výučby dejín štátu, prameňov práva a právnych inštitútov” (The formation of entrepreneurial skills of students associated with optimizing the Reform of teaching history of law, sources of law and legal institutions.) Principal Investigator: prof. JUDr. Dr.h.c. Peter Mosný, PhD. | 381 382 | Ivan Iurlo University of Lecce Lettere da Treblinka….quel ‘vecchio’ Dottore parlava di Uguaglianza e Fratellanza tra i Popoli. Janusz Korczak e i diritti umani Non auguro il male a nessuno. Non vi riesco. Non so come lo si fa. Janusz Korczak C’era una strada a Varsavia che si prolungava da quel castello verso il ghetto in cui la vita della comunità ebraica appariva apparentemente normale. Nel quartiere si proponevano diverse strutture urbanistiche. Gli edifici costruiti già prima dell’inizio della seconda guerra mondiale posti accanto alle cubiche architetture a firma del comunismo che avanzava. Ed in lontananza la seducente torre a vetri che voleva significare la caduta di un sistema politico e l’inizio della nuova democrazia. La nostra storia troverà la sua meritata collocazione in quella piccola strada; cento passi ove gli eventi più meschini ebbero il ruolo di protagonista. C’era una casa in quella via. Era la casa degli orfani della via Sliska. Il quattro agosto di un lontano millenovecentoquarantadue la Varsavia distrutta dall’orrore di un invasore spietato piangeva i suoi figli. Rigido il clima; la notte precedente la più silenziosa di tutte. I bambini dormivano e nell’ala destra la signora Stefa (1) vigilava come una sentinella. Il letto del vecchio dottore nel centro della stanza, sul comodino pane nero e una caraffa d’acqua (2). La porta che dava sul dormitorio era aperta. Più a sud gli angeli dormivano. Notte. In quella notte ricordava, il dottore, la sua fanciullezza; i pensieri confidati ai familiari sull’attento progetto del mondo che cambia: eliminare ogni forma di denaro; abbattere i pregiudizi e cosa fare perché non vi fossero più bambini malvestiti e affamati con i quali gli era proibito di giocare. Pindaro ascoltava e d’un sol balzo “sono vecchio tutte le volte che ricordo il passato, gli anni e gli avvenimenti d’un tempo. Voglio essere giovane, quindi faccio progetti per il futuro. Che fare dopo la guerra ? Forse mi chiameranno a collaborare alla costruzione di un nuovo ordine nel mondo o in Polonia ? Ne dubito molto. E non lo vorrei neppure. Dovrei diventare un funzionario, essere dunque prigioniero degli orari di lavoro e dei contatti con la gente, dovrei avere una scrivania, una poltrona e un telefono. Perdere del tempo dietro le piccole questioni correnti di ogni giorno, lottare contro la gente mediocre con mediocri ambizioni, con protettori, con una propria gerarchia, con proprio fini” (3). Sereno ricordo l’anno in cui la Casa degli Orfani veniva costruita. Mai come allora il vecchio medico comprendeva il valore della preghiera, del lavoro e della bellezza delle realtà. Un quadrettino sul progetto, poi una sala, una stanza, un corridoio. Fermo lui in quelle armoniose discussioni su ideali, princìpi, convinzioni… con i suoi occhi nasceva l’edificio della speranza. Ogni decisione rapida diventava direttiva per l’artigiano. Ogni idea doveva essere ponderata, calcolata, economizzata. Affascinato l’educatore dalla presenza di cazzuole, livelle, squadre e compassi le cui funzioni semplificavano il lavoro del muratore. | 383 La Casa era pronta. Giunse, poi, il giorno in cui Korczak, Stefania e Wilczynska ed i duecento orfani erano immobili in quella piazza del trasbordo. Korczak, alla testa del corteo. Stretti a sé i due fanciulli più deboli; gli orfani percorrevano in silenzio ed in fila quelle fredde strade. Il dodicenne più audace portava con onore la bandiera verde (4). Ogni sezione preceduta dal suo educatore. Con dignità giungevano dinanzi quei vagoni. Il campo di Treblinka l’ultima destinazione. Morivano tutti. No. Non è la storia di una legione romana che con animo belligerante affronta la battaglia. E’ un momento di un anonimo mondo fatto di educatori, giovani, giovanissimi che andranno incontro alla morte con l’unica forza che l’invasore non riuscì a strappare: la dignità. Nel giorno della sua drammatica fine, il cinque agosto millenovecentoquarantadue, guidava i suoi duecento orfanelli in una vera e tragica crociata, diretta verso le porte dell’inferno. La storia più convenzionale riferisce che Janusz Korczak (Varsavia, 22 luglio 1878 – Campo di sterminio di Treblinka, 6 agosto 1942) fu un pedagogo, scrittore e medico polacco; unico riferimento che i redattori della “Convenzione per i diritti del bambini” hanno avuto per realizzare il più importante e diffuso documento internazionale per la tutela dei diritti dell’infanzia, approvato, su iniziativa polacca, dall’Assemblea Generale delle Nazioni Unite nel 1989. Egli richiama quella lotta pionieristica per l’affermazione dei diritti dell’infanzia ed il ruolo della pediatria quale evidente espressione della bioetica. Non ci è concesso lasciare il mondo così come è. Non auguro a nessuno del male. Non ne sono in grado. Non so come si faccia (5). Tra le innumerevoli citazioni che la letteratura propone per meglio rappresentare lo spessore culturale e filantropico di Korczak, si riportano due espressioni che il medico, anche negli ultimi momenti di vita, amava ricordare. Si. Korczak è stato un attento conoscitore del mondo. Un mondo, in quel tempo, distrutto dalla ferocia assassina dell’invasore; un mondo aggredito dalla barbarie dell’oppressore. Ciò nonostante quel vecchio medico, attraverso la sua ferma determinazione, si pose a tutela di tutti quei diritti evidentemente lesi. La sua biografia merita un adeguato approfondimento. Scritti con tenacia nonostante la stanchezza e l’indebolimento fisico, complice il silenzio della notte e l’inesauribile desiderio di vivere, a matita, poi con una stilografica, fatti successivamente ricopiare da un giovane dell’orfanotrofio, gli appunti e le memorie di Janusz Korczak non hanno niente della confessione; questi pensieri intendono piuttosto riaffermare l’opera di una vita e ne dichiarano la vittoria proprio in un momento della disfatta. Il pericolo incombe, insieme, sulla vita di Korczak, dei suoi bambini e sulla sua opera, un’opera di civiltà per rimediare alle ingiustizie della storia. Il presentimento della fine imminente penetra tutto il suo pensiero: la consapevolezza della morte violenta possibile si intreccia con la certezza della vecchiaia e dell’inevitabile epilogo. L’educazione dei bambini alla morte diventa un capitolo della pedagogia di Korczak. Infaticabile di giorno per assicurare ai tanti orfani il cibo, le medicine e il vestiario, attento a difendere la loro dignità anche in quella situazione estrema in cui tutto sembrava normale e la vanificazione di ogni valore, concentrato nell’assolvimento dei compiti di tutela e di educazione della Casa degli Orfani, di notte Korczak preparava un affresco sulla Varsavia antiguerra, ripercorrendo le tappe della propria vita. Questo itinerario che segue il cammino ed il pensiero di un uomo straordinario ci permette di cogliere orientamenti e atteggiamenti che contribuiscono a rivelare una ulteriore dimensione giustamente individuata nella speranza. Speranza che impone una particolare attenzione al futuro 384 | e che, al di là di ogni sua profonda e salda fondazione si radica e chiama alla ribalta l’Uomo. Ancora pochi giorni prima della deportazione e morte, Korczak scriveva nelle sue memorie, ripercorrendo rapidamente le tappe della sua vita io parlai molto con gli uomini: con coetanei e molto più anziani, adulti….Io sono stato ‘ammirato’: un filosofo. Ma soltanto con me stesso mi manifesto….un quarto d’ora fa ho concluso il mio monologo…e probabilmente mi sono detto per la prima volta nella mia vita con tutta sicurezza: ‘ Io ho uno spirito di ricerca, non di scoperta’. Ricercare per sapere ? no. Ricercatore per trovare, per penetrare fino in fondo ? Anche questo no. Dunque ricercare per interrogarsi continuamente, senza fine (6). Il nome di Korczak è citato dalla più prestigiosa tribuna dell’Organiz­zazione delle Nazioni Unite, quando dinanzi quell’autorevole consesso internazionale s’apre il dibattito sull’educazione per la pace. Sorge l’Associazione Internazionale dal nome «Janusz Korczak», che oggi riunisce i Comitati Korczakiani, i Circoli degli Amici di Korczak e non solo d’Europa, ma anche del Nord, Sud America e Giappone. Ci si domanda perché uomini di differenti orientamenti poli­tici, differenti convinzioni ideologiche, filosofiche e religiose s’incon­t rano e trovano un linguaggio comune, quando si parla di Janusz Korczak. Non si può non affermare che fu un uomo del Rinascimento nel senso lato. Fu un umanista non solo grazie a ciò che realizzò, ma soprattutto attraverso la sua esistenza. Nella lotta per l’alleanza tra l’educazione e le forze creative della vita egli accettava in pieno i princìpi dell’eroismo romantico. Riallacciandosi agli autorevoli romantici spiegava le differenze e le convergenze tra la teoria e la prassi: affermava che grazie alla teoria comprendo, ma grazie alla prassi sento ». « La prassi - diceva - è il mio passato, la mia vita, Ia somma delle mie esperienze, il ri­cordo degli insuccessi provati, delle delusioni, sconfitte, vittorie e trionfi ». La prassi, così concepita, doveva fornire « le verità della vita », mentre la teoria serviva solo per le sue verità inanimate e senza vita e perciò confessava: « Frequentemente rinuncio alla teoria, ma raramente a me stesso » (7). Analogamente all’atteggiamento dell’educatore egli definiva an­che la posizione dell’educando. Scriveva infatti nei « Momenti educa­tivi »: « Non lavori per la paura, per la società, per il futuro, se non lavori per l’arricchimento della tua anima». Questa affermazione si richiamava, e non senza ragione, ai « Libri di pellegrini polacchi », scritti dal Poeta polacco ( 8), poiché nella vi­sione Korczakiana gli uomini veri erano come viandanti in un mondo crudele ma reale, che chiedeva radicali ed essenziali miglioramenti. Ma gli uomini veri sono prigionieri e detenuti, e proprio per questo sono liberi. Quando, nel suo libro, il «Re Matteuccio» si troverà in prigione potrà proporsi come il grande eroe ro­mantico: «Finché mi legano con la prepotenza e violenza sono libero, posso fare ciò che voglio, sono libero di difendermi». Ma in che modo si può essere veramente liberi? Come rifor­m are il mondo? Non lo sapeva Korczak. Così, come non lo sapeva il suo re, il piccolo Mattia Primo, nella sua marcia di sconfitta in sconfitta nella nobile protesta contro norme e regole di vita ingiuste, prive di sentimento e false. Nel «Senato dei pazzi», proposto nel millenovecento­trentasei al teatro Ateneo di Varsavia, il viaggio verso la pazzia del mondo contemporaneo in tutti i paesi, e a tutti i livelli della vita porterà ad accuse ben precise verso il mondo ingiusto. Il quotidiano lavoro compiuto da Korczak iniziava dallo studio del mondo medico e andando oltre, stabiliva le direttive del trattamento e del comportamento nei confronti dei | 385 bambini, la cui base era l’osservazione. « Alla medicina — scriveva Korczak — devo la tecnica della ricerca e la disciplina del pensare scientifico » (9). Come un medico attentamente mira alle generalizzazioni, così anche l’educatore sogna di « una grande sintesi del bambino », che nasce dalle faticose osservazioni quotidiane. Gli uditori presenti alle lezioni del dottore presso l’Istituto di Pedagogia Speciale di Varsavia, ricordavano la sua prima lezione tenuta in quella Scuola, intito­lata «Il cuore del bambino». E questo è quanto veniva riportato: «Tutti gli studenti, stupiti da questa idea, si riunirono nello studio radiologico…Il Dottore vi era venuto con qualche ragazzo del suo orfanotrofio. Fu messo in funzione l’apparecchio di Roentgen per vedere il cuore del ragazzo -impaurito- che batteva in quel momento più velocemente. Il ragazzo aveva paura di tante persone sconosciute, nella sala era buio, l’apparecchio rumoreggiava… Così si presenta il cuore del bambino, nel momento in cui l’educatore è arrabbiato con lui ». Il geniale entomologo francese Fabre — ricordava Korczak —si vantava di aver eseguito sugli insetti osservazioni che fanno epoca, senza ucciderne alcuno. Studiava i loro voli, i loro costumi e compor­tamenti, affanni e gioie. Li osservava attentamente, quando si ralle­gravano ai raggi del sole, combattevano e perivano nella lotta, quando cercavano il cibo, costruivano i propri rifugi, facevano provviste. Non si indignava, mentre lo sguardo sapiente seguiva le potenti leggi della natura nei loro appena percepibili palpiti. Egli era un maestro elementare. Osservava con occhio nudo. « Educatore — gridava Korczak — sii un Fabre del mondo del bambino ». Da questa posizione chiedeva «che si elaborasse una diagno­stica educativa, basata sulla comprensione dei fenomeni»; e da que­sto punto di vista definiva i convitti e le scuole come «il terreno per la ricerca e quasi una clinica educativa». Realizzando tali postu­lati nella sua quotidiana e personale fatica, potè catalogare centinaia migliaia di particolari, creando l’unica pedagogia del suo genere: la pedagogia dei fatti piccoli e minuti. Quando già si innalzavano le mura del Ghetto, il dottore pro­gettava per i suoi ragazzi una bandiera verde della solidarietà inter­nazionale. Ai suoi amici fuori delle mura del Ghetto, Korczak, inviava fiori con un biglietto, su cui, trasformando l’avvertimento dei romantici, scriveva bisogna ricordarsi delle rose, quando bruciano i boschi. Grazie alla sua attività riformatrice nel campo dell’educazione, diretta a favore dei bambini, degli orfani e dei fanciulli abbandonati, Janusz Korczak operò una radicale svolta nella tradizionale pedago­gia tutelare: trasformò gli orfanotrofi, mantenuti per la maggior parte dalle elemosine, che ai bambini senza tetto ed abbandonati assicu­ravano al massimo un tozzo di pane e un tetto sopra la testa — nelle moderne « Case del bambino », concepite come istituti educa­tivi, che organizzano ed hanno cura del completo sviluppo umano di coloro che sono stati sottoposti alla loro tutela. Sotto questo aspetto egli fu non solo un continuatore dell’opera di Johann Heinrich Pestalozzi, di nazionalità svizzera e con cognome italiano, ma anche espressione delle tendenze che si facevano vive nel vente­simo secolo. Di fronte alla vita e alla morte mantenne l’atteggiamento di uno Stoico, della Giovane Scuola Stoica di Seneca. «Piccola Rivista» (10), per tre volte tentò di salvare Korczak dal Ghetto, ma in ogni tentativo si scontrò dinanzi la sua risposta negativa, ottenendo da lui per commiato, durante l’ultimo incontro, alcuni quaderni ed appunti dalle sue letture. In questi, tra l’altro, era sottolineata la 386 | frase di Seneca: «Non è gran cosa il vivere, vivono pure gli schiavi e gli animali, ma è grande cosa il morire con dignità ». Karol Wojtyla — il Pontefice Giovanni Paolo Secondo — il dieci ottobre millenovecentoottantadue, nel momento della cano­n izzazione di Massimiliano Kolbe, pronunciò queste parole: «L’o­d ierna canonizzazione ci richiama al ricordo di tanti altri uomini, che durante la seconda guerra mondiale hanno sacrificato la loro vita nel generoso servizio per il prossimo, e in modo particolare sacri­f icandosi per gli umiliati, per i fratelli sofferenti e bisognosi. Tra questi uomini, in primo piano spicca la figura di Janusz Korczak, un pedagogo polacco d’origine ebrea, il quale coscientemente ha accettato la morte nel campo di sterminio, nell’agosto dell’anno mille­n ovecentoquarantadue, assieme ad un gruppo degli orfani ebrei, che erano sotto la sua tutela nel Ghetto di Varsavia» (11). Korczak respinse tutte le proposte di fuga dal Ghetto — or­ganizzate dalle varie organizzazioni clandestine mi­l itari e politiche. Rifiutò per confermarsi un pedagogo leale ed un alleato verso i bambini affidati alla sua tutela: a lui non era permesso abbandonare i propri figli dinanzi la catastrofe. Un gesto che rientra nella categoria dell’eroismo etico. Con la sua decisione quel vecchio dottore non salvò nessuno. Eppure la marcia di Janusz Korczak verso la morte è diventata, nel suo simbolismo, la grande sfida morale. (Endnotes) 1 Stefania Wilczynska, stretta collaboratrice di Korczak, ne condivise anche la morte nel lager di Treblinka (agosto 1942). 2 Korczak J., Diario del ghetto, 1997, p. 15 ss., ed. Luni Editrice. 3 Korczak J., Diario del ghetto, cit. p. 20 4 Quando nel 1940 la Casa degli Orfani di Varsavia fu spostata nel ghetto istituito dai nazisti Korczak decise di restare con loro, e rifiutò le proposte di alcuni amici che volevano trovargli un nascondiglio nella parte “ariana” della città”. L’8 giugno 1942 Korczak e i bambini “consacrarono” la bandiera della Casa degli Orfani, verde come la speranza e la natura. Il 18 luglio Korczak fece mettere in scena ai bambini La posta di Tagore, che rappresenta un bambino malato, rinchiuso nella sua camera, che muore sognando di correre per i campi. Secondo Korczak, era necessario che i bambini imparassero ad accettare la morte con serenità. Il 4 agosto Korczak, gli altri educatori della Casa e duecento orfani furono condotti verso i treni nazisti. Korczak, alla testa del corteo, teneva due bambini per mano. Gli orfani camminavano in fila per quattro, con la loro bandiera verde. Ogni sezione era preceduta dal suo educatore. Furono rinchiusi tutti nei vagoni e portati al campo di sterminio di Treblinka. 5 Ampia sitografia. Cfr. per tutti http://www.piuculture.it/it/2012/05/janusz-korczak-non-ci-econcesso-lasciare-il-mondo-cosi-come-e/. 6 Kallarate D. De Natale M.L., Kuberski J., L’impegno educativo di Janusz Korczak, 1987, p. 45 ss., ed. Cacucci Editore. 7 Kallarate D. De Natale M.L., Kuberski J., L’impegno educativo di Janusz Korczak, cit., p. 60. 8 Adam Mickiewicz nacque il 24 dicembre 1798 a Zaosie, vicino a Nowogródek, l’antico Gran Ducato di Lituania da una famiglia di antico lignaggio, ma rovinata. La sua formazione culturale, di tipo classico, fu completata all’Università di Vilnius dal 1815 al 1819. Dal 1819 al 1823 esercitò l’attività di professore a Kaunas. Visse ad Odessa, Mosca e San Pietroburgo, stringendo legami con numerosi scrittori russi, tra cui Aleksandr Puškin. 9 Korczak J., Come amare il bambino, 1996, p. 35 ss. | 387 10 Nel 1911 J.K. fonda a Varsavia un orfanotrofio sperimentale, la Casa degli Orfani, dove mette in pratica le sue convinzioni pedagogiche, a partire da un assunto: il bambino è una persona completa fin dalla nascita, che quindi ha diritto ad esprimersi ed a esercitare i suoi diritti come un adulto. L’istituto ha una sorta di governo democratico interno: i ragazzi collaborano a programmare le attività culturali e di gioco, lavorano in attività artigianali per sostenerlo, hanno un Tribunale fondato sul perdono, dove vengono giudicati fra pari; e un periodico scritto da loro, la “Piccola Rivista”, che per anni sarà allegato a un popolare giornale della comunità ebraica di Varsavia. 11 http://www.vatican.va/news_services/press/documentazione/documents/santopadre_biografie/giovanni_paolo_ii_biografia_pontificato_it.html. 388 | Dejan Matic, Ph.D. [email protected] Milan Palevic, Ph.D. [email protected] University of Kragujevac Employment and the right to high education in Serbia in the context of legal order in Europe Abstract The paper discusses the issue of accessibility of higher education to the persons who are employed. Higher education is one of the most important driving forces in developing a prosperous and democratic society. This causes the need for its broadest accessibility to all persons, regardless of their personal characteristics. Employed persons are a particularly important category of potential students, as higher education accessible to these persons enables them to join the newly acquired knowledge to the existing work experience, making them the most promising driving force of social progress. In our opinion, this category of citizens in Serbia is subjected to de facto discrimination regarding the possibility of acquiring high education. In this context, we took the comparative analysis approach, analyzing both positive legal norms in the Republic of Serbia, and the relevant documents of international law, with particular reference to the regulations in the European Union, that regulate these issues, while also determining the existing social practices in their implementation in Serbia. In our opinion, although the existing positive legal regulations in Serbia clearly supports the concept of equal and wide access to higher education for all, the practical consequences of some solutions, produce the exact opposite, very undesirable, side effects. Upcoming education reform in our country is an excellent opportunity to improve existing solutions in our higher education, including this, more than important problem. Keywords: accessibility of high education, employed persons, discrimination, Bologna Declaration, Bologna process 1. Introduction The right to education, as formulated by the Universal Declaration of Human Rights and the International Covenant on Economic, Social and Cultural Rights, as well as the Convention for the Protection of Human Rights and Fundamental Freedoms, is a thorough and broad foundation on which fundamental principles of the development of healthy, democratic and open society of free citizens, based on respect for the individual and collective rights, underlie firmly. Consequently, it can be considered one of the most vibrant and promising human rights from the rights of so-called “Second generation”. We believe that it is reasonable to conclude that the right to education, by itself, necessarily constitutes one of the conditions for enjoying all other human and minority rights and freedoms. This nature of the right to education can be clearly seen in Article 26. Universal Declaration of Human Rights (1948.), Article 13 International Covenant on Economic, Social and Cultural Rights (1966.), as well as in Article 2, Protocol 1 of the Convention for the Protection of Human Rights and Fundamental Freedoms (European Convention on Human Rights) (1950.).The fact that education in many countries, especially at the primary, that is, the basic level, is considered not only the right but also the obligation, shows perhaps most convinc- | 389 ingly, the importance of this right, as well as its essential belonging to core values of any modern democratic society. Although the situation regarding higher education is to some extent different, taking into account the dualistic nature of the services in the sector of higher education (Matic, D., 2011, pp. 845-860), it does not detract from its essential importance which it, today, in every modern society inevitably has. Moreover, we tend to think that higher education is just one of the major driving forces in the development of a successful, prosperous and democratic society. This is precisely the view on higher education, i.e., on the importance it has on contemporary culture and society, which is clearly highlighted in the Bologna Declaration (Joint declaration of the European Ministers of Education convened in Bologna on the 19 June 1999), and therefore represents, as it seems, one of the basic ideas of ​​the Bologna process as a whole. In addition, preferences and opinions expressed in the Education Development Strategy in Serbia up to 2020, which has recently become available to the public, clearly indicate a major role of both education in general and higher education in the future development of our society. For these reasons we believe that equal access to education at all levels for everyone, that is, open access to all levels of education, with particular consideration to higher education, is a necessity of essential importance. Although the positive law of the Republic of Serbia is largely in line with international standards and norms, it seems that its implementation in practice results in the placing of specific categories of entities in an unequal position, i.e., the actual disabling of a number of individuals to receive higher education. Specifically, these are individuals who are employed, that is, the employees (Labor Law, 2005.). Therefore, we started a detailed analysis of both provided positive legal solutions and practical consequences of their use in the context of projected goals, expressed in relevant domestic and international acts as well. 2. The aims of Bologna process The Bologna Declaration is firmly based on an unambiguous commitment directed towards fast development of higher education, with the aim of establishing the Europe of Knowledge, that is, the European Higher Education Area. That higher education is the driving force that plays a central role in the development of cultural, intellectual and scientific dimensions of the entire European area, representing a key and indispensable factor in both social and individual progress. The reform of higher education, as it was designed with this declaration, necessarily points to the paramount importance not only of higher education, but of education in its broadest sense, and aims to give every individual, and consequently society as a whole, competence to properly and fully face the ever more numerous and complex challenges that globalization poses on all modern societies at the beginning of the new millennium. It is the main way to improve the mobility of entities while, logically speaking, at the same time consequentially maximizing the employability of individuals and strengthening economic development in the area of ​​the continent. This approach, as it seems, can only further encourage creating and strengthening the awareness of belonging to a common cultural and economic space, as well as the awareness of sharing and respect for the common social values ​​in Europe. Consequently, the reform of higher education must necessarily create an environment that will allow easy mobility of citizens in order to study, and subsequently to get employed. Increasing the attractiveness of European higher education system, which is one of the key goals expressed in this declaration, subsequently leads not only to pointing out the vitality of civilizational values ​​of European society, but also to ensuring the continued development of Europe as a stable and tolerant community, based on a thorough and quality-based knowledge. To this end, a number of measures have been proposed, from creating a system to facilitate understanding and harmonization of diplomas, through the introduction of the European Credit Transfer and Accumulation System and joint efforts to increase quality, to highlighting the concept of lifelong learning and the harmonization of European higher education to the European 390 | Research Area. Our current social situation certainly requires a detailed review of the implementation of these solutions within our system of higher education, but such an analysis would, it seems, not only exceed the default scope of this paper, but also to some extent shift our focus from the very question that, on this occasion, interests us most. Therefore, we are not going to discuss now all the numerous and complex issues which, by the nature of things, the implementation of the Bologna process inevitably brings, but we will pay attention to the analysis of those issues which are, in terms of the problem we consider, of utmost importance. Furthermore, we have in mind the concept of lifelong learning, i.e., education, which is quite explicitly mentioned in the Bologna Declaration, and thus represents its essential, inseparable part. This concept is based on the idea of ​​enabling each individual to, at any time, regardless of their professional status, age or any other characteristics, participate in the acquisition of new knowledge and skills, i.e., in perfecting their knowledge. Thus understood, the concept of lifelong learning is undoubtedly more than a valid guarantee of the successful development of the most important resource that a society may have, its citizens, and therefore represents a necessary condition for increasing social productivity as a whole and for the successful development of an economically stable and democratic society. Contemporary social trends necessarily require that this concept is embraced by the reform of the current education system which will observe, both formal and non-formal educational attainment, as complementary elements of a more broadly understood education system in one society, by integrating all aspects of education in a single continual process of acquiring knowledge and skills that lasts a lifetime. Necessary and the initial assumption of this approach, as it seems, involves a full access of, in the first place, formal education for all citizens, regardless of their eventual differentiation, both in terms of professional status and age, and in terms of any other personal characteristics that they may have. Moreover, one could quite reasonably argue that not accepting such a concept almost entirely leads to preventing a proper realization of the fundamental values ​​and goals proclaimed in the Bologna Declaration. In addition, the question of real guarantees and protection of the right to education, as one of the basic and most important human rights, is inevitably raised. The above questions are mostly applied to higher education although, in truth, a similar curiosity, naturally to a much lesser extent, can appear in the case of primary and secondary, that is, elementary and intermediate education. Adequate positive legal solutions that allow access to higher education for all, are definitely a necessary frame of a successful adoption of the concept of lifelong learning, but without careful consideration of the actual consequences of their implementation, and ongoing efforts aimed at their improvement, it, by itself, cannot be the only and the sufficient measure on the way to the formation of higher education system, which would represent the foundation of a strong social development. 3. The positive legislation of the Republic of Serbia Strictly speaking, positive legal regulations in Serbia in the area of higher education is in full compliance with relevant international laws and standards, and thus provide quite a valid guarantee to development of this area in accordance with the principles and values ​​expressed in the Bologna Declaration. So, our supreme law of the land in Articles 71-73 directly pertains to the right to education. The Constitution explicitly guarantees the universal right to education, whereby primary education is proclaimed compulsory and free, while secondary education is free but not compulsory. Provisions on access to higher education that establish its general character, based on equal conditions for all, have, as it seems, a special importance in the context of the problem under consideration. Although, truth be told, this is not a free education, such as primary and secondary, the Constitution establishes the obligation of the state to, and in accordance with the law, provide for free tertiary education to successful and talented students of lower property sta- | 391 tus. In addition, the Constitution also guarantees the autonomy of universities and academic and scientific institutions, as well as scientific and artistic creativity. At the same time, ensuring the moral and material rights of authors of scientific and artistic works, the Constitution defines the obligation of the state to encourage and support the development of science, culture and art (The Constitution of the Republic of Serbia, 2006). Based on the foregoing, it would be quite reasonable to conclude that the constitutional framework of the legal system in the Republic of Serbia regulates the issues relating to the exercise and protection of the right to education, including higher education, by nature, quite in line with international principles and all relevant international legal acts, and therefore it can be, if we at least consider the warranties provided by the current Constitution of the Republic of Serbia, fully exercised. The Law on Prohibition of Discrimination (2009) has an undoubtedly special importance in considering our positive legal regulations, regarding the utter accessibility to higher education. Although, at first glance, the significance of this act, from the perspective of the issues we consider, is relatively small, since only two of its Articles directly pertain to the right to education, and thus, implicitly, the right to higher education, such a conclusion would be, in our opinion, completely unjustified. It is enough to cast even a cursory glance at the extremely meticulous conceptual determination of discrimination (Article 2) that can be found in this act, as well as at its clear and explicit determination of the principle of equality of all, regardless of personal characteristics (Article 4), in order to understand clearly that the significance of this law for the protection and full exercise of the right to education, as well as all other human and minority rights and freedoms in our country, heavily exceeds the number of Articles that it devotes to each right or freedom. Of course, in terms of accessibility to higher education, we are particularly interested in Articles 17 and 19 of this law, devoted entirely, albeit implicitly, to discrimination in this area. Specifically, they address the issue of discrimination in the provision of public services and the use of facilities and public spaces (Article 17), as well as discrimination in education and professional training (Article 19). When it comes to discrimination in the provision of public services, this Article provides that it exists in cases when legal or natural person, within the framework of their activities or profession, refuses to provide service on the grounds of a personal characteristic of an individual or a group of persons or if an individual or a group of persons, in order to provide the service in question, requires the fulfilment of some condition that is not required of other individuals or group of persons. In addition, discrimination in the provision of public services exists as well if a legal or natural person, within the framework of their activities or profession, unwarrantedly gives priority to another individual or a group of persons when it comes to providing a service. The same act also establishes the general right to equal access to objects in public use, and consequently objects used in the sphere of education as well as public spaces. Regulating the issue of discrimination in education, Article 19 of the law primarily emphasizes the right of everyone to education at all levels under equal conditions, and in accordance with the law. Discrimination in this area involves the obstruction of or prevention from enrolment in the educational institution or exclusion of an individual or a group of persons from these institutions on the grounds of their personal characteristics. Furthermore, discrimination, in the sense of this Article, is considered to be obstruction or prevention of an individual or a group of persons from their attendance of classes and participation in other educational activities on the basis of their personal characteristics, as well as categorization of pupils according to their personal characteristics, harassment, and any other unjustified differentiation and unequal treatment of them. Also, this Article provides protection from discrimination for both educational and learning institutions that operate in accordance with the law, and persons who use or have used the services of these institutions in accordance with the law. The provisions of the Law on Prohibition of Discrimination contain very precise and clearly formulated solutions that strictly speaking, provide more than a complete protection and proper exercise of the right to education in accordance with the highest international standards. 392 | There is no doubt that in reviewing our positive legal regulations concerning accessibility to higher education, the Law on Higher Education (2005) has a very special place. We will not engage in a detailed analysis of the provisions of this law, since that project would significantly exceed the objectives of this paper, but we will try to point out to those provisions which are, in our opinion, of particular relevance to the issue we deal with on this occasion. Act states as the primary objectives of higher education, the following: transfer of scientific, technical and artistic knowledge and skills, development of science and promotion of artistic creativity, ensuring the source of young researchers, professionals and artists, as well as providing higher education accessible to all on equal terms, life-long learning, and consequently significant increase of the number of people with higher education (Article 3). In the following Article eleven principles on which higher education in the Republic of Serbia is based, are determined, of which we find, bearing in mind the aims of approaching this analysis, particularly interesting those which, in our opinion, to the fullest extent stand testament about the commitment of the legislator to regulate the complex issues of higher education in accordance with the principles and values ​​expressed in the Bologna Declaration and other current international standards in this area (Article 4). This primarily refers to the principle regarding the respect for human rights and civil liberties, along with establishing the prohibition of any form of discrimination. In addition to this, the principle that establishes the obligation to harmonize national systems of higher education to European, while committing to increase the mobility of academic staff and students, is also a very solid foundation in the promotion of the values ​​which would turn higher education into a potentially key factor in increasing the level of knowledge and resources as a whole, as well as the basic pledge to improve the quality of life of each individual. Also, of particular importance is the fact that this act determines the right to higher education as a general, emphasizing the principles of equal access, regardless of any possible grounds of distinction, including the financial situation (Article 8). That said, the conclusion regarding the formal compliance of the Law on higher education with international standards in this area cannot be distinguished from the earlier presented statements pertaining to the Constitution of the Republic of Serbia and the Law on Prohibition of Discrimination. In other words, this act is also in line with current international standards concerning higher education. 4. Factual unintentional discrimination as a result of the implementation of laws However, even a side view of the practice in this area, almost immediately points to the inadequacy of a solution that suggests unambiguous access to higher education for all individuals, regardless of their personal characteristics, i.e., the inadequacy of the attitude towards the absence of any form of discrimination, even the unintentional one, in this sector. The wide access to higher education includes, in addition to the free enrolment of an individual in the higher education institution, to the same extent the possibility of studying in a way that will not put an individual in an unequal position because of personal characteristic of any kind. Moreover, the Law on Higher Education clearly points out, among other rights, the right of student to enrolment, quality education, objective assessment, and the right of all students to study under conditions of equal quality for all (Article 86). In the same place, this act also, logically, regulates the obligations of students during the study, from which we believe the most important is, and from the aspects of the problem we consider the one that the law puts in the first place, the obligation of students to meet the educational and pre-exam obligations. The importance of these obligations particularly gains in importance if we take into consideration some other provisions of the same law that, regulating the matter of assessment, provide that student’s success in mastering a particular subject is under continual scrutiny and is expressed in points which student earns by complying with the pre-examination obligations and passing exams (Article 89). In other words, the final grade the student earns after passing the exam is a kind of summation of his overall engagement during the | 393 school year, that is, one semester, if it is a so-called one semester course. This approach in itself is not bad, on the contrary, we are inclined to believe that in this way, the continuing efforts of students to increase knowledge and master the subject in question are quite properly stimulated. However, if we look back for a moment at the provision of the same law which regulates the issue of the scope of the study, we can come to a definite conclusion that meeting the obligations, as provided by law, requires almost a full day and daily attention to studies of an individual who has decided to receive a higher education. Specifically, the act provides that the overall student engagement consists of a whole range of activities that among other things include the attendance and activity of students in lectures, exercises, seminars, independent work, preliminary exams, writing of term papers and final papers and other forms of engagement (Article 29). Although this concept of the engagement of students undoubtedly provides a thorough mastering of a subject, it is quite clear that it, regardless of the quality of higher education and skill in organizing the teaching, requires most of the day, excluding any other activity other than studying. With these allegations we do not indicate a potential overburdening of students, since with the adaptation of the curriculum this problem can be avoided to a large extent, although, truth be told, this is not the case always and everywhere (ESIB’s Bologna process committee, 2005), but the simple fact of the necessity of a complete and exclusive commitment to studying of anyone who decide to receive higher education. To large number of the student population this does not constitute a commitment that cannot be fulfilled, given that most of them come into higher education institutions right out of high school bench, which is not at all undesirable, on the contrary. In addition, a number of the student population is unemployed, and therefore most of their time can be fully committed to receiving higher education. From what has been said, we can conclude that in planning the acquisition of higher education in this way, the legislator had in mind primarily the improvement of the quality of teaching and its outcomes, accentuating as thorough acquisition of knowledge as possible while maximizing student activities. Although these are more than desirable tendencies, it seems that a not-so-small category of potential students got almost entirely lost in the shuffle. Namely, these are individuals who are employed, that is, the employees (Labor Law, Article 5). At first glance it is obvious that the employee simply cannot, in any way, meet the obligations that the law prescribes for students. It is hard to imagine an employer who would be willing to provide daily attendance of lectures, exercises and other forms of learning activities to a person employed by him, at the expense of fulfilling the obligations that every employment relationship inevitably carries. It must not be forgotten that this category of potential students may belong to people of all ages, from those who are still teenagers, to those who have been employed for several decades. If we are to make a joke out of it, we could argue that while creating such a concept of higher education, the legislature had in mind only two categories of students, high school students whose parents are in adequate financial situation so that they can provide them to be unemployed as they gain higher education and senior citizens, since only these two categories of individuals are able to fully commit to the obligations placed on them by the university. Joking aside, the factual impossibility of receiving higher education of employees is, in our opinion, unquestionable and represents more than a serious problem. Employees are faced with a factual, although unintentional discrimination in receiving higher education. There is no doubt that this is by no means the intention of the legislator, after all, we have already indicated the determination of the legislator aimed at equal access to higher education for all, regardless of their personal characteristics. However, it seems that the legislators, by equating the rights and responsibilities of all students, paradoxically, made a group of students unequal. Employees as potential students are unable to meet the obligations that the law predicted, and thus, they are consequently deprived of opportunities to have any rights. In other words, employees may not, de facto, receive higher education. This is undoubtedly true, that is, factual discrimination against these individuals. The provisions of the Law on Higher Education concerning lifelong learning can- 394 | not adequately serve to solve this problem, since this type of education is seen essentially as a phenomenon outside the educational system, regulating it quite casually and superficially (Law on Higher Education, Article 96.). Let us recall that, in our opinion, the concept of lifelong learning implies, first of all, the reform of the existing system of education that will observe, both formal and non-formal educational attainment, as well as complementary elements of a more widely conceived educational system in a society, integrating all aspects of education in a unique continual process of acquisition of knowledge and skills that lasts a lifetime. To make this possible, formal education, and this time we primarily mean higher education, must be fully accessible to all persons, regardless of their characteristics of any kind. The situation is even worse from the standpoint of achieving those goals and values ​​expressed in the Bologna Declaration, and in other documents that we have discussed, including the Law on Higher Education itself, and the Education Development Strategy in Serbia up to 2020. It is this category of the population that, especially in terms of the many challenges that globalization brings to our society, needs the opportunity to upgrade and acquire new knowledge in order to enrich the already existing work experience and subsequently to be able to, by nature, provide the greatest momentum and strongest contribution to social development. But even if that is not the case, we must not allow the existence of any form of discrimination in an environment that tends to value a stable, healthy and prosperous democratic society. Especially if we take into account the provisions of the Law on Prohibition of Discrimination, which we mentioned earlier. We believe that it is necessary to find, as soon as possible, an adequate solution to this problem. With no intention to advocate any approach as the only possible and correct, it seems that a possible solution may be sought in the reintroduction of the slightly modified category of so-called part-time students, whereas the already existing categories of so-called students financed from budget and self-financed students would in no way be jeopardized, since the grounds on which the new category of students is introduced would be quite different. Namely, we believe that the possibility of occasional attendance to lectures would allow employees to receive higher education, like all other categories of potential students, with the obligation to reimburse the costs of its conducting in the event of a prolonged absence. In this way we only point to one possible solution of the problem, noting the equal legitimacy and validity of other possible approaches. Certainly this is a question which must be given an adequate attention, as soon as possible. The huge and essential importance of higher education in the development of any modern society undoubtedly creates the need of its general accessibility to all individuals, regardless of their personal characteristics. In this way, the broadest range of citizens would have the opportunity to acquire new knowledge and skills at the highest level, which would inevitably result in both greater economic productivity as a whole, and the strong development of scientific, cultural and democratic dimensions of the entire society. Employees are a particularly important category of potential students, as the acquisition of higher education enables these individuals to incorporate the newly acquired knowledge and skills into the existing work experience, making them the most promising driving force of social progress. Unfortunately, in our opinion, this category of citizens in our country is under one, truth be told, unintentional, but nothing less-present, factual discrimination regarding the possibility of receiving higher education. Although existing positive legal regulations in Serbia clearly advocate the concept of equal and broad access to higher education for all, the practical consequences of some solutions produce exactly the opposite, quite adverse effects. Paradoxically, it seems that it was the desire to equalize the rights and obligations of all potential students that led to placing the category of employees in an unequal position. In our opinion, it is necessary to make an effort to find the right system solution for this problem as soon as possible. The upcoming reform of education in our country is a great opportunity to improve the existing solutions in our higher education, including this, more than an important problem. Otherwise, not only that the goals and values ​​proclaimed in both international and domestic laws concerning | 395 higher education will not be achieved, but also the development of a social system based on the principles of democracy, tolerance and respect for human and minority rights and freedoms, and respect for diversity and non-discrimination will be more than seriously compromised. 5. Summary The paper discusses the issue of accessibility of higher education to the persons who are employed. Higher education is one of the most important driving forces in developing a successful, prosperous and democratic society. This causes the need for its broadest accessibility to all persons, regardless of their personal characteristics. Employed persons are a particularly important category of potential students, as higher education accessible to these persons enables them to join the newly acquired knowledge and skills to the existing work experience, making them the most promising driving force of social progress. Unfortunately, in our opinion, this category of citizens in our country is subjected to de facto discrimination regarding the possibility of acquiring high education, despite legislation that advocates the concept of equal and wide access to high education for all. The sad fact is that actually a consistent and complete implementation of these, in essence, quite benevolently oriented legal solutions, consequently leads to discrimination against a broad category of persons. Impossibility of complying with the commitments at work with the demanding study programs on the one hand, and practical absence of the actual programs of lifelong learning in practice, on the other hand, leads to the fact that employed persons, from the standpoint of their possibility of acquiring higher education, are entirely second-class citizens in Serbia. This situation simply must not be tolerated in a democratic society that aspires to build its future on the basis of full respect of human and minority rights and the absence of any kind of discrimination. For this reason, we believe that it would be more than useful to introduce the specific category of part-time student, which would, in our opinion, at least to some extent, enable employed persons to attend classes, which would make them, to a large extent, equal with other students. It is necessary to take advantage of the upcoming planned education reform in Serbia in order to find a solution to this serious problem, as soon as possible. References Convention for the Protection of Human Rights and Fundamental Freedoms (European Convention on Human Rights) (1950), Article 2, Protocol 1. Education Development Strategy in Serbia up to 2020.[online] Available at: www.srbija.gov.rs/extfile/ sr/179119/strategija_obrazovanje026_cyr.zip [Accessed 31 May 2013] ESIB’s Bologna process committee. (2005). The black book of Bologna Process,( p.p. 10.). Bergen: The National Unions of Students in Europe International Covenant on Economic, Social and Cultural Rights (1966), Article 13. Joint declaration of the European Ministers of Education convened in Bologna on the 19 June 1999 Labor Law of the Republic of Serbia, Article 5 Law on Higher Education of the Republic of Serbia, Article 3. Article 4, Article 8, Article 29, Article 86, Article 89, Article 96. Law on Prohibition of Discrimination of the Republic of Serbia, Article 2, Article 4, Article 17, Article 19 Matic, D.(2011). High education: Between public services and commercial services trade. Proceedings on the XXI century – century of services and public service rights.( p.p. 845-860). Kragujevac: Faculty of Law, University of Kragujevac The Constitution of the Republic of Serbia, Article 71-73. Universal Declaration of Human Rights (1948), Article 26. 396 | László Kőhalmi PhD [email protected] University of Pécs The Human Rights in the Criminal Procedure – The Hungarian Pattern Abstract Guaranteeing human rights in the criminal procedure hasn’t lost its actuality in the European Union, since subjects under a criminal procedure are in a naked position. The accused person can count only upon the help of his/her defender and the human rights organisations. Human rights seem to be the same in different states of the European Union, however, in point of the real predominance of rights there are severe differences, because of the deficits of the execution of norms. States of the European Union recognize conceptions and legal steps towards the Europeanization of the criminal procedure law as the decrease of their sovereignty. The Hungarian legislator has made a severe regulation retrocession in the new Hungarian Basic Law in the field of assurance of human rights. The formation of an office with European controlling competence should be considered to ensure human rights in the human procedure. This Office for Human Rights could control the predominance of human rights in all phases of the criminal procedure, even in the prison. Keywords: human rights, criminal procedure, European Union, Constitution Court, Fundamental Law 1. Introduction In 1949 in Hungary the communist Constitution was accepted, and this has not changed essentially until 1989. In 1989 the “more than one party system” was established again and the claim to the acceptance of a new civil Constitution has arisen. In 2010 the conservative party has reached 2/3 majority in the Parliament, which removed the barriers of accepting the new Fundamental Law. This was accompanied with serious anticipation; criminal lawyers were waiting for the most efficacious protection of human rights as ever seen in Hungary. 2. The Theoretical Basis Concerning the Human Rights The state gains its main justification in a constitutional democracy out of the fulfilment of the requirement that it realizes the peaceful, free and equal coexistence of the people. “The recognition, the protection, and ensuring of the human rights has an outstanding and indispensable role as regards to the guaranteeing of this value-content, which has been developed in the historical process of the coexistence of mankind” [Petrétei, 2011, p.413]. The various international organisations (UN, ILO, and Council of Europe) carry out an extremely useful activity in the field of the human rights, as the creation of a series of various “cataloguecollections of the human rights” is to be connected to them. One thing has necessarily to be emphasised in connection with the human rights, namely, that there is no existing uniform and exact definition for them, as the content and the grounds of | 397 this notion is debated, it is especially its demarcation from the cognate notions (e.g. fundamental rights, natural rights) that is not obvious and clear. The cause of this is on the one hand that there are several and from each other very different theories as regards to the human rights, on the other hand the notion of basic human rights is used in the common political language in several meanings, and the actual meaning-content of the notion depends on the fact if the given political power finds itself in a pro-government or an opposition position. The so called process of the regime change in Hungary -, which was actually a change of the method in the practice of the executive power -, namely the period starting in 1989 with the transition from the socialist system into the formation of a civil society, gave a proof of the fact that the political actors keep changing their opinions as regards to the question what (fundamental) human rights actually are. When a political party is being forced into the benches of the opposition, it interprets the notion of the human rights in a quite wide sense of the meaning, while being in governing position; it narrows down the scope of human rights as much as it can. Between 2002 and 2010 human rights were being injured to a serious degree, however, the party, which was earlier in opposition, when coming to power in 2010 has not totally come up to the expectations concerning the fulfilment of human rights. A further statement in connection with the uncertain interpretation of the notion of human rights is that it is often used as a synonym of the fundamental rights. The concept that the individual has got inherent, inalienable and inviolable human rights, which mean the moral base of man and for this reason they apply to everyone and they have developed in the course of a long historical development. “The development of the idea has delivered the precondition for the history of ideas that the individual may oppose the state power by means of his natural right, as it is his individual aim in life that enjoys priority, and this means a determining fact for the state” [Petrétei, 2015, p. 414]. The birth of the human rights dates back to the Age of Enlightenment at the end of the 17th and the 18th century, respectively, namely to the period when the concept of the natural law became dominating. At that time the „common opinion” of human rights was characterised by the concept according to which these rights were considered to be inherent, inalienable, and inviolable. The acknowledgement of the human rights in a declaration was realised in the course of the civil revolutions in the 18th century. It is quite important to emphasize these because nowadays the process, which has successfully manifested itself in the products of the legislation of several centuries, is endangered to be sacrificed because of referring to various presumed or real dangers within a second on the altar of fetish-words such as e.g. security, organized crime. We can refer here to terrorism as a magic word of the legislation that enables for its users the complete disregarding of human rights at any time. The classical mediators of the human rights are probably turning in their tombs at the adopting an item of legislation related to a more effective action against crime such as the allowance of torturing the accused in order that the criminal procedure be successful etc. The classification of the human rights – rights of the first generation, rights of the second generation, and rights of the third generation – has thoroughly been elaborated in the literature; their detailed presentation will not be the subject of this study. 398 | 3. The Rules of the new Fundamental Law The growing of the human rights into actual rights is due to the circumstance that these rights have become parts of the constitutions, and – as normative rules obligatory for the state power they have an influence on the legal system as a whole. The grounding, the acknowledgement, and the guaranteeing of the human rights in the constitution can lead to the circumstance that the human rights resulting from the postulates and declarations of natural law may turn into actual right sin the legal sense. The material notion of the human rights and the formal notion of the basic rights guaranteed in the constitution may thus theoretically coincide with each other, however, not to a whole extent; they can differ from each other on the grounds of their content and personal validity. The 1949 communist Constitution, however, “softened” later on due to amendments to the Constitution, but in its character the paramount law carried on to serve the one-party state structure. The content and the “Bukharin touch” of the 1949 Constitution symbolised the loss of the country’s independence. We will further analyse below the provision of the National Avowal, according to which Hungary denies the existence of its national self-determination in the period between 19 March 1944 and 2 May 1990 and pursuant to this does not recognise the legal continuity with the 1949 communist Constitution. It has to be noted among the peculiarities of the 1989 Transition that Hungary was the only country that did not adopt a totally new constitution. In 1989, as part of National Roundtable negotiations there were discussions of the new state structure and what laws would be adopted in order for the country to move from a monolithic societal setting into a democratic framework based on a multi-party system. The result of the National Roundtable negotiations was that the elected Members of Parliament could vote on the acts on the right of association (which made possible the establishment of parties), the right of assembly, and on the right to freedom of conscience and religion already in place since 1985. With the enactment of the Act XXXI of 1989 it was decided to amend the 1949 Constitution, then the Act on the establishment of the Constitutional Court was adopted as a result of the National Roundtable negotiations “No formally new constitution was adopted; however, the constitutional amendment of 19 June 1990, enacted by the first freely elected parliament, rewrote the Constitution in more than fifty instances, particularly in the following domains: constitutional statutes prescribed for the regulation of fundamental rights (e.g. taxes) ceased to exist and were rendered ineffective; the procedure of election and the powers of the President of the Republic changed as did the powers of the Parliament. This is important because due to this legal-technical solution the Constitution itself thus is not rooted in the parliament of the ancien régime but in the first freely elected one. Between 1990 and 2010 the necessity of the adoption of a formally new constitution had been, from time to time and with a varying intensity, a recurring topic” [Trócsányi, 2011, pp.17-19]. As far as the Hungarian regulation is concerned, we have to emphasize that the new „Constitution” with the name „Fundamental Law” („Basic Law”) came into force on 1st January 2012 in Hungary. The former Stalinist-type constitution (Act XIX of 1949) was completely modified in 1989 and it was identified as the constitution of a constitutional state, however, the decisive political powers – considering it a question of prestige – created a new constitution, and they did not even allow to use the name „constitution”, that is the reason why it was named 2Fundamental Law”. Article B of the Section Foundation lays down that „Hungary shall be an independent and democratic State”, and according to Article C „The Hungarian State shall function on the principle of the distribution of executive powers.”According to Paragraph (3) Article Q of the „Foundation”, “Hungary shall accept the generally recognized rules of international law. Other sources of inter- | 399 national law shall be incorporated into Hungarian law upon their promulgation by laws.” These rules mean a guarantee from the point of view of the realization of human rights only in a very general and far-fetched sense. As far as the more detailed rules of the Fundamental Law are concerned, according to Paragraph (1) of Article I of Section “FREEDOM AND RESPONSIBILITY”: „Inviolable and inalienable human rights shall be respected. It shall be the primary obligation of the State to protect these rights.” The lawmaker wished to emphasize the importance of the word „man” in the Hungarian version by writing it in capital letters. According to Paragraph (2) Article IV of FREEDOM AND RESPONSIBILITY “No one shall be deprived of his or her freedom, except on the grounds and in accordance with the procedure specified by an act of Parliament.” Paragraph (3) of the same Article goes like this: “Any individual suspected of having committed a criminal offence and hold in detention shall either be released or shall be brought before a court within the shortest possible period of time. The court shall be required to give the detained individual hearing and shall make decision, with the grounds stated in writing, to either release the individual or place him or her under arrest within undue delay.” One thing should be noted in connection with this. The second sentence of Paragraph (2) Article IV puts down the possibility of applying the actual sentence of life imprisonment without parole, however, it can “only” be applied in case of committing a wilful and violate crime. There was a serious debate about life imprisonment in Hungary both in the literature and the politics, concerning its compatibility with the human rights. The debate has been ended in the legal sense, as the Constitutional Court (CC) cannot examine the provisions of the Fundamental Law (FL) as regards its content; consequently, it is not possible to bring the eventual unconstitutionality of the death sentence in front of the Constitutional Court. As to the rights related to freedom, the regulation in the FL also raises some problems. The habeas corpus provision which is part of the right to personal freedom and security was not developed during the constitution-making, thus it is formulated also in the future as the duty of authorities, not as an individual right to the judicial review of an arrest [see Article IV(3)].The term ‘as soon as possible’ was not specified in connection with the bringing before a judge either. By introducing the right to self-defence in the constitutional provisions [Article V], the boundaries of the individual and state responsibility become uncertain. The relationship between the new right and the monopoly of the state to enforce the constitution and the legislation as outlined in Article C(3) of FL remains an open question. It can be presupposed that the former is an exception to the latter rule, however this solution is unfortunate in case of a constitutional provision. Furthermore, it is also open to debate, what the relationship between the right to self-defence and the regulation on justified defence in the Criminal Code is. The Criminal Code defines justified defence as one of the exculpatory grounds, but it – in contrast to the self-interest pursuing approach by the FL – allows also preventing the unlawful attack against other persons, thus it also reflects to the principle of solidarity (Chronowski, 2012, pp.127-128). According to Paragraph (1) Article XXVIII “In the determination of his or her civil rights and obligations or of any criminal charge against him or her, everyone is entitled to a fair and public hearing within a reasonable time by an independent and impartial tribunal established by law.” With a slight difference in the wording, the Fundamental Law maintains the contents of the regulation provided by the Constitution. The right to hearing by a court Although Article XXVIII Paragraph 1 does not contain an equality clause, that is to be found – not limited to judicial proceedings – in Article XV. This means that the practice of the Constitutional Court is applicable also in this regard, namely: The rule of law 400 | requirement of material justice can be achieved by staying within the institutions serving legal certainty and guarantees. The Basic Law grants the right to a procedure, which is necessary and in most cases appropriate to the realisation of material justice. The obligation of the State emerging from Article XXVIII Paragraph 1 is inter alia to grant judicial settlement of disputes related to civil law rights and obligations (civil law dispute). In relation to the right to hearing by a court, the Constitutional Court, however, ruled that a temporal limitation of the submission of claims is justifiable, as the above-mentioned rule of law requirements are met. Its reasoning stated that the right to hearing by a court (just like other rights granted by the Fundamental Law) is not an absolute right, but it can only be exercised in the framework established by legal certainty as appearing in a rule of law: Regarding the judicial supervision of resolution of an association, the general requirement of legal certainty is concreted in priority objectives of company law, like security of trade and protection of creditors. If legal certainty is realised in one of the most important areas of company law in the realisation of these two requirements, then temporal limitation of the right to submit claims cannot be considered either unnecessary or disproportionate. “The Constitution set out the requirement of a fair trial but this was removed from the text of the Basic Law according to the standing procedural regulations. However, it enables no interpretation that would state that the procedure is not aimed at uncovering material justice. Instead, Article XXVIII Paragraph 1 regulates “fair” trial. It must be noted that fairness is not applicable to the trial only, but to the whole procedure and to each and every element therein” [Balogh & Hajas, 2011, p.104]. The classical and liberal principle of the democratic state, namely the presumption of innocence is also included in Fundamental Law: “Everyone who has been charged shall be presumed innocent until proved guilty by final decision according to law.” The presumption of innocence is present in the Basic Law (Fundamental Law) with same content as it had in the Constitution. Presumption of innocence was originally connected to criminal procedures, but it must now be extended to other procedures just like the right to fair trial. Such other procedures could include – inasmuch as this presumption is feasible there – administrative, disciplinary and misdemeanour procedures. According to the presumption of innocence nobody is to be considered guilty until proven otherwise in a final decision of a criminal court. According to the Constitutional Court this formula does not mean that the authorities could not take certain measures – even limiting fundamental rights – against the accused. This approach and practice complies with the norms of international law. Article 6 Paragraph (2) of the European Convention on Human Rights declares the presumption of innocence, but in light of Article 5 the accused may be deprived of personal liberty if that is necessary. According to this approach, the presence of custodial arrest, remand, temporary coerced medical treatment and prohibition to leave the place of residence in the Hungarian law does not violate the Constitution. All these measures limit a fundamental right under the Constitution, but naturally, in a due way, by appropriate judicial guarantees. “The consequence of the presumption of innocence is that the burden of proof is on the authorities prosecuting a criminal case” [Balogh & Hajas, 2011, pp.104-105]. According to Paragraph (3) Article XXVIII “Anyone indicted in criminal proceedings, shall be entitled to defence at all stages of such proceedings. Defence counsels shall not be held accountable for their opinions expressed in defence arguments.” I would like to remark in connection with the cited regulation that the adaption of the Fundamental Law had been preceded by an interesting legislative interlude concerning the human | 401 rights in criminal procedure. The Act LXXXIX of 2011 had damaged the human rights of the accused in the course of the criminal procedure to such an extent that e.g. the public prosecutor could prohibit the contact with the defence counsel for a period of 48 hours in the case of a crime of corruption. Luckily, the Constitutional Court repealed the regulations violating seriously the human rights of the criminal procedure in its decision 116/2011 (XII.20.) CC. An amendment of the Code of Criminal Procedure adopted in July 2011 authorised prosecutors to press charges before a court other than the legally designated court – upon the decision of the Prosecutor General – if it was deemed necessary for the sake of the speed of the proceedings in the so-called “priority cases”. The later – prematurely – removed President of the Supreme Court challenged the above amendment of the Code of Criminal Procedure concerning “priority cases” before the CC, and the respective provisions were abolished by the CC in December 2011 by Decision 166/2011. (XII. 20.). In its decision, the CC set out that the right of the Prosecutor General to transfer cases also violates Article 6 (1) of the European Convention on Human Rights (ECHR). The CC argued that transferring cases to another court would only be compatible with the ECHR if the respective substantive and procedural legal rules are set out by using foreseeable, clear and objective criteria, no (or minimal) room is left for discretion and if the “actual decision may be made by the own institutions of the independent and impartial judicial system”. Since these requirements were not complied with, the respective rules infringed the right to a fair trial as enshrined by the ECHR [Eötvös Károly Policy Institue, 2013, pp.6-7]. Paragraph (4) of Article XXVIII is an euro-compatible regulation, according to which “No one shall be held guilty of any criminal offence on account of any act which did not constitute a criminal offense under Hungarian law or – within the meaning specified by international treaty or any legislation of the European Union – at the time when it was committed.” According to the Constitutional Court these principles are not just about the obligation of the State to prohibit and make punishable offences in law, but these also refer to the right of the individual to be found guilty and sentenced only according to law. The principle of nullum crimen sine lege is part of the constitutional legality of criminal law, but it is not the exclusive criterion of such. “Article XXVIII Paragraph 4 of the Fundamental Law stipulates that no person shall be found guilty or be punished for an act which, at the time when it was committed, was not an offence under the law of Hungary or of any other state by virtue of an international agreement or any legal act of the European Union” [Balogh & Hajas, 2011, p.104]. Paragraph (5) of Article XXVIII says: Paragraph (4) of Article XXVIII „shall not prejudice the trial and punishment of any for any act which, at the time when it was committed, was criminal according to the general principles recognized by the community of nations under international law.” Paragraph (6) of Article XXVIII has is also of a Union-reference and it formulates he principle of ne bis in idem within the frame of the Fundamental Law: “With the exception of cases of remedy defined by law, no one shall be liable to be tried or punished again in criminal proceedings for an offense for which he or she has already been finally acquitted or convicted in Hungary or – within the meaning specified by international treaty or any legislation of the European Union – in another Member State in accordance with the law.” The principle of ne bis in idem is declared as a new element among the constitutional guarantees of judicial procedure. This principle means the prohibition of double jeopardy, which was already a general principle of the legal system. Article 50 of the Charter reads: “No one shall be liable to be tried or punished again in criminal proceedings for an offence for which he or she has already been finally acquitted or convicted within the Union in accordance with the law.” According to the Fundamental Law, “except for extraordinary cases of legal remedy determined by law, 402 | no person shall be prosecuted or convicted for any offence for which he or she has already been acquitted or convicted by an effective court ruling, whether in Hungary or in any other jurisdiction as defined by international agreements or any legal act of the European Union” [Balogh & Hajas, 2011, p.105]. Paragraph (7) of Article XXVIII ensures the right to remedy of the accused (suspect, defendant, condemned): “Everyone shall have the right to seek remedy against judicial, administrative or other official decisions, which infringe upon his or her rights or legitimate interests.” Two major elements are different in the Fundamental Law compared to the rules of the Constitution. “On the one hand, the right to submit a proposal is inserted beyond written applications and complaints. On the other hand, the addressee is not “the competent state organ” but “any organ which exercises public power”. This right of petition can be exercised by anybody who is entitled by rights from the Basic Law and is entitled to participate in public affairs. This means every natural person without prejudice to their nationality and residence. This right extends to Hungarian citizens, foreigners and stateless persons, regardless of their being in Hungary or abroad. Right of petition can also be exercised by legal persons and other entities without legal personality. The right to submit an application, complaint or proposal demands that the organs exercising public power do not prevent or hamper such submission. Accordingly, if the competent organ denies accepting a complaint, this right would be violated. However, the right of petition does not only cover submission of petitions to competent state organs. It also covers a decision on the merits of the petition by the competent state organs having jurisdiction. Such decision on the merits also means that it must be exhaustive – thus they adjudge each and every element within their competence. Any interpretation contrary to this one – namely when this requirement is not met – is suitable for violating the essential contents of the right of petition. The addressee can be any organ (state or municipal alike) exercising public power and not only those that bear the function under a separate legal regulation to examine and adjudge complaints. It must be noted, however, that it does not violate the right of petition that an important institution of parliamentary control, the ombudsman, is not entitled to adjudge a certain range of complaints, despite the fact that his domain is considerably widened by the new regulation (Balogh & Hajas, 2011, p.106). According to Paragraph (4) of Article 27 of the Fundamental Law regulating the activity of the courts: “In the interest of the enforcement of the fundamental right to a court decision within a reasonable time and a balanced distribution of caseload between the courts, the president of the Országos Bírósági Hivatal [National Office for the Judiciary] may designate a court to hear cases specified in an implementing act, as provided for therein, other than the court of general competence but with the same jurisdiction.” This regulation is, in my opinion, one raising concern, as the president of the National Office for The Judiciary, “in the interest of the jurisdiction”, may transfer cases from one court to the other with the aim of its judgement. this violates the basic principle of the right to the statutory right to a judge, and it can bring the accused into a very disadvantageous position e.g. an accused living in one part of the country has to travel to a trial held at a court in the other part of the country, which means a serious cost of travelling for the accused on the one hand, and in the case of his or her being sentenced, he or she is to pay the multiple amount of the cost of the procedure. “The text of the Fundamental Law does not provide sufficient guarantee of judicial autonomy. The passages of the Fundamental Law pertaining to the administration of justice are missing | 403 a number of important guarantees and symbolic elements. These deficiencies permit changes to public law that could threaten the autonomy of the courts. Unlike the currently effective constitution, the Fundamental Law makes no mention of the judicial levels, and does not name the elements of the judicial system, and, thus, it gives authority to abolish the regional courts of appeal. It does not deal with the administration of the courts: even prior to 1997 the wording of Paragraph (5) of Section 25, which mentions the participation of organs of judicial self-government in court administration, proved to be an insufficient guarantee in the face of excessively broad interpretations of government powers. The Fundamental Law, therefore, does not prevent the creation of an administration model in which there are no counterbalances to central governmental powers” [Fleck, Gadó, Halmai, Hegyi, Juhász, Kis, Körtvélyesi, Majtényi, & Tóth, 2011, p.29]. The administration of the court system of Hungary has been re-regulated by Act CLXI of 2011 on the Organisation and Administration of Courts, and the former judicial body in charge of administrating courts has been replaced by a one-person decision-making mechanism, the President of the newly established National Office for the Judiciary (NJO). The reform model chosen and the extensive powers of the NJO’s President were criticized by the Venice Commission in both of its related opinions, and it was stated that since the President of the NJO (who is elected by the Parliament) is „an external actor from the viewpoint of the judiciary, it cannot be regarded as an organ of judicial self-government” The right to transfer cases (i.e. reassign them to another court instead of the court originally competent on the basis of the procedural law, regulated in details by Act CLXI of 2011 on the Organisation and Administration of Courts) is based on Article 11 (3) of the Transitional Provisions of the Fundamental Law, which states that the President of the NJO may execute its power to reassign cases “until a balanced distribution of caseload between courts has been realized” (Eötvös Károly Policy Institute, 2013, pp.5-6.). 4. A Few Suggestions Concerning the Regulation The European Union, through its Parliament, issued an opinion on the new Hungarian Fundamental Law. A resolution adopted Summer of 2011 (by 331 votes to 274) calls on the Hungarian authorities to address the issues and concerns raised by the Venice Commission and to implement its recommendations. There are basically no problems with the implementation of the “classical” human rights of the criminal procedure – e.g. the usage of the mother-tongue -, but it is to be emphasized that one of these most important representative with guarantee is the defence counsel. Persons under a criminal procedure find themselves in a vulnerable situation. The accused can basically count on his or her defence counsel and the help of the human rights organisations. This being like that means that in the case of the damaging the rights of the defence counsel, that the accused’s rights will be narrowed down in the criminal procedure. The human rights in the criminal procedure are seemingly the same in the various Member States of the European Union; however, notable differences are to be found as regards to the actual implementation of these rights due to the deficit in the enforcement of the norms. The Member States of the European Union are to be found in a situation where they consider the strivings and the legal steps done in the direction of the Europeanization of the criminal procedural law as a decrease of the sovereignty. In my opinion, it would be necessary to consider the setting up of an agency having a European controlling scope of authority in the interest of ensuring the human rights e.g. with the name “Euro Lawyer”, “European Access to Justice Agency” or “European Legal First Aid Agency”. 404 | It is also important that such an agency should be able to control the implementation of human rights in each section of the criminal procedure – even in the prison – namely, the final part of the criminal procedure, the penalty enforcement gets often out the scope of the experts dealing with the human rights. 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[2013].Das Recht auf Verteidigung und die Stellung des Verteidigers im ungarischen Strafverfahren [The Right to defense and the Position of the Defense counsels]. Strafverteidiger 2: pp. 120-125. Herke, Cs., Mészáros, B. &, Novokmet, A. [2012].The process of accusation and its judicial control – a comparative study. In: Drinóczi, T., Ercsey, Zs., Zupan, M. & , Vinkovic, M. [ed.] Contemporary legal challenges: EU - Hungary – Croatia. Pécs-Osijek: University of Pécs Faculty of Law, pp. 403-429. Kelemen, K. [2011]. The New Hungarian Constitution: European Criticalities. Available through:<http://academia.edu/1184042/K._Kelemen_-_The_New_Hungarian_Constitution_ European_Criticalities_2011_> [Accessed 10 June 2013]. Kelemen, K. [2013].Flexible Constitution: The 4th Amendment to the Hungarian Fundamental Law – Part II. Dritti Comparati. 25 marzo. 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Decision 9/1992 Constitution Court Decision 11/1992 Constitution Court Decision 59/1993 Constitution Court Decision 60/1994 Constitution Court Decision 793/B/1997 Constitution Court Decision 935/B/1997 Constitution Court Decision 3/1998 Constitution Court Belilos v. Switzerland, No. 10328/83, Judgment of 29 April 1988. | 407 408 | Maria Rosaria Piccini Univeristy of Bari Aldo Moro The right to intercultural and inter-religious upbringing in european policy 1. Multicultural Europe and the management of differences in cultural and religious landscape The new millennium has begun with dramatic and at times violent changes that affect humanity in profound ways. Globalisation, the rise of new economies, and life in a multicultural society, challenges the very nature of educational institutions around the world1. In complex societies education plays a major role to equip young people for making the best use of living in diversity. In a world experiencing rapid change and where cultural, political, economic and social upheaval challenges traditional ways of life, education has a major role to play in promoting social cohesion and peaceful coexistence. The presence of more and more significant percentages of immigrants in the European social landscape has several consequences on many social and cultural dynamics and produces new processes of interrelation. Among the other changes, one of the more visible is the so called ‘return’ of cultures, and in particular religions in the European public space. The case of Islam – and particularly of Islam in Europe – is often considered the more problematic expression of this process. Indeed, the presence of immigrants of different cultural and religious background is one of the factors that pushes the society into a change that is much ‘larger’ than their presence: in fact, it has important if not decisive effects also for the host society. Anyway the presence of Islam in Europe is spread. The ethno-national character of the European Muslim communities of recent immigrant origin can be broadly classified as South Asian, North African and Turkish. This is connected to the period of European empires overseas. The first small number of immigrants in modern times came to Britain from various parts of the empire in the 19th century (especially Yemen) but the much larger post-1945 immigration came from the colonies in the Caribbean (mostly Christians) and the Indian subcontinent (Hindus, Sikhs and Muslims). French Muslim immigration started in the late 19th century from Algeria, a process which took off after 1945 and expanded to include Tunisia and Morocco and later parts of former French sub-Saharan Africa. When Germany began to import labour for its growing post-war industries, Turkey became the largest supplier from outside Europe (arguably there had developed a pseudo-colonial economic relationship between Germany and Turkey at the end of the 19th century). These patterns set the tone also for the smaller European countries as they imported migrant works, with Belgium and the Netherlands as the clearest examples with Muslims originating mainly in Morocco and Turkey. Turks also came to France in substantial numbers. In Scandinavia, the mix was more diverse but in varying patterns also combined South Asians, North Africans and Turks. It should be noted that these very rough regional and national definitions cover a range of ethnic and linguistic groups. North Africans include both Arabs and Berbers, South Asians include Bengalis and Sylhetis, Punjabis, Pashtuns and Sindis, and Gujaratis, not to mention a number of other smaller groups. Turks include Kurds (and in government statistics also Christians, especially Syrian Orthodox). Smaller number of immigrants from Indonesia and Surinam (former Dutch Guyana) also moved to the Netherlands. This overly coarse perspective needs refinement with closer approaches. Yugoslavia was a significant source of migrant labour in the 1960s and 1970s. As a result, Bosniaks have become a notable component of the Muslim communities in Austria and Switzerland, making up the majority | 409 in the latter. The opportunities for comparatively open labour immigration were sharply restricted in 1973-74 (in 1962 in the United Kingdom). Subsequently attention has shifted to people coming as refugees, where restrictions were only introduced gradually later. This category of immigration was pushed by a number of conflicts and upheavals. The Lebanese civil war starting in 1975 led to both Lebanese and Palestinians moving. The Iranian revolution in 1979, repression and uprisings in Iraq, the Soviet occupation of Afghanistan during the 1980s, civil war in Sudan, disintegrating states in Yugoslavia and Somalia, and economic or environmental collapse in places like Albania and parts of sub-Saharan Africa were among the chief drivers of large refugee movements from the 1970s and till the present. Countries like Germany and the Scandinavians started out with comparatively liberal refugee policies which were gradually tightened from the 1980s, most slowly in Sweden. This has since produced growing numbers of illegal immigrants, including growing problems with criminal networks facilitating the movement of people across borders. The countries of southern Europe had for decades been countries of emigration, both to the Americas and, after 1945, to northern Europe. Only in the 1980s did their economies become attractive enough for them in turn to become countries of immigration, mostly across the Mediterranean. So numbers of people from North Africa, especially Morocco, entered Spain, often with the intention of transiting or temporary stay only, but for many the stay became long-term. Italy became the recipient of a marked mix of groups from North and sub-Saharan Africa as well as eastern Europe, while Greece had started already in the 1980s to attract immigrants from the Indian subcontinent, different parts of Africa Arab and non-Arab, as later from neighbouring Albania and Macedonia. This is quite distinct from the quite special case of the settlement at the end of the first world war in the Treaty of Lausanne 1923 which regulated the reciprocal status and rights of the Greek minority in post-Ottoman Turkey and the Turkish minority in the western Thrace districts of Greece. Under Communist regimes in eastern Europe before 1990, the most common form of Muslim migrant presence was that of students from favoured countries, which included parts of the Arab world. Small numbers, usually men, stayed and settled, sometimes with difficulty, when they met and married local women. From the early 1990s these regions also began to take part in the broader European immigration process, leading to the growth of especially Arab and Pakistani communities2. The presence of immigrant populations it is nor culturally neither religiously ‘neutral’. The immigrants do not arrive naked: they bring with themselves their visions of the world, traditions, histories, faiths, practices, values, moral systems, images and symbols. So they turn to them as indispensable identity references, not only individually, but also collectively and as communities3. This process produces a radical change of paradigm in our interpretative criteria; and, even before, in our perception, and in our social and juridical experience. We usually have a clear definition of the Nation-State, whose elements, in the classical doctrine, are: a territory, a people, and a normative system (a law). An implicit element, which is not part of the doctrine but it is rooted in the collective unconscious of many, is also a religion, or at least a common religion heritage, with the possible inclusion of some religious recognised minorities. For different reasons, all these elements are undergoing a deep change. Territories are multiplicating (devolutions and separations, but in the other direction also processes of federation). Peoples are pluralizing, and also the normative systems are pluralizing. Finally, cultures and religions which are not part of any historical heritage, find their place in society. In the same territory, people, cultures, religions live together: they enter in contact with each other, they mix with each other, so plurality is becoming physiology in Europe4. This modification of society is nowadays irreversibile. 410 | 2. A definition of intercultural education as a tool to avoid discrimination The presence of Islam created a multicultural situation in Europe, contributing to a great extent to creating an awareness of it and making it more visible and topical. In Europe the introduction of the use of the term “multiculturalism” marked the passage from an immigration perceived only as economic and temporary to a permanent presence of populations. In several countries, it still appears as a fact that multiculturalism is giving a new form (to the public spheres and civil societies of the new Europe. Is still growing the debate around multiculturalism and legal pluralism. Intercultural Education represents a response to the challenge to provide social cohesion in Europe. It is framed within a Human Rights perspective as expressed in the Universal Declaration of Human Rights of 1948, which provides that “Education shall be directed to the full development of human personality and to the strengthening of respect for human rights and fundamental freedoms. It shall promote understanding, tolerance and friendship among all nations, racial and religious groups, and shall further the activities of the United Nations for the maintenance of peace”5. The major challenge when discussing the issue of education and multiculturalism is dealing with some of the inherent tensions that arise in reconciling competing world views with each other. Such tensions reflect the diversity of values which co-exist in a multicultural world. Often, they cannot be resolved in a single ‘either/or’ solution: however, the dynamic interchange between competing aspects is what lends richness to the debate on education and multiculturalism. One significant tension arises from the nature of intercultural education itself, which accommodates both universalism and cultural pluralism6. This is particularly evident in the need to emphasize the universality of human rights, whilst maintaining cultural difference which may challenge aspects of these rights. Concepts of culture and education are intertwined, because culture forges educational content, operational modes and contexts shaping our frames of reference, our ways of thinking and acting, our beliefs and even our feelings. All actors involved in education, teachers and learners, curriculum developers, policy makers and community members, invest their cultural perspectives and cultural aspirations into what is taught, and how it is conveyed. Yet education is also vital to the survival of culture. As a collective and historical phenomenon, culture cannot exist without continual transmission and enrichment through education, and organized education often aims to achieve this very purpose7. Religion now is a topic of importance in Europe. It has recently come into focus among European institutions, as an important constituent of understanding and supporting of intercultural education and citizenship education in schools. The demographic and cultural composition of societies is rapidly changing as a result of greater mobility of peoples and persons. Ethno-centrism, racism and xenophobia constitute a serious threat to the life and well-being of many societies and to the dignity and worth of human beings. Governments and international organizations, notably the United Nations and the Council of Europe, have repeatedly stated in imperative terms that the speedy and comprehensive elimination of all forms of racism and racial discrimination, xenophobia and related intolerance is a priority. In this framework the role of intercultural education is of crucial importance and should be promoted by all available means with the aim to fostering tolerance, understanding and respect among peoples, groups and individual persons. Today, ‘intercultural education’ and ‘intercultural pedagogy’ are regarded as a more appropriate response to the new context of globalisation and the increasing convergence of different languages, religions, cultural behaviour and ways of thinking. | 411 Educational strategies would aim to develop common universal elements: respect, peace, justice, environmental protection, human dignity, autonomy, etc. Although this principle has many merits, on closer inspection some limitations are visible as well. A view of the world is depicted here which is unrealistically supposed to be unitary, while in reality the world is very heterogeneous and fragmentary (the danger here being to overlook the particular social and cultural memberships of each person). Furthermore, this movement (of trans-cultural education), which is very strongly rooted in Europe, could turn out to be a new and further form of cultural imperialism, by means of which Europe or the Western world could try to force their own value systems via economical or cultural power onto the rest of the world8. There are several objectives of intercultural education: first of all intercultural education emphasizes on tolerance and respect for others. Goals of intercultural education include: promotion of the conditions that lead to pluralism in society by increasing sensitivity towards other cultures and value systems; developing respect for the lifestyles that are different from theirs as to enable children to understand and appreciate one another; cultivation of a commitment to equality as to enable children to act responsibly in making choices and taking actions directed against discrimination and prejudice; and respecting the similarities and differences in terms of value and training all children to speak for themselves and to articulate their culture and history9. 3. Legal framework of intercultural education in international law Education is a concern of the international community, in particular with regard to human rights, equality of opportunity, cultural diversity, i.e. issues of education in multicultural societies. Since 1948, several international legal texts have been adopted which contain references to the promotion of intercultural education. For the most part, these texts belong to the category of human rights instruments that have been drafted within the framework of international organizations such as the United Nations, UNESCO and the Council of Europe. The Universal Declaration of Human Rights (1948) is one of the fundamental international standard-setting instruments for managing relationships between people in societies. It assigns two basic functions to education that also are essential to the concept of Intercultural Education: it provides that education “shall be directed to the full development of the human personality and to the strengthening of respect for human rights and fundamental freedoms”, and that it “shall promote understanding, tolerance and friendship among all nations, racial or religious groups, and shall further the activities of the United Nations for the maintenance of peace”. These two basic principles influenced generations of international instruments on education that take inspiration from these Declaration developing these ideas . The importance of education for the society progress is underlined also in other international documents, as: the International Covenant on Economic, Social and Cultural Rights (1966), which adds a central provision concerning the social empowerment of the individual through education. It states that: “education shall enable all persons to participate effectively in a free society”. The Convention on the Rights of the Child (1989) , which underlines the complex cultural responsibilities of education, provides that: “the education of the child shall be directed to … the development of respect for the child’s parents, his or her own cultural identity, language and values, for the national values of the country in which the child is living, the country from which he or she may originate, and for civilizations different from his or her own”10. The ILO Convention No. 169 concerning Indigenous and Tribal Peoples in Independent Countries (1991) develops several provisions that are relevant to Intercultural Education. They address the adequacy of educational programmes: “education programmes and services for the peoples concerned shall be developed and implemented … to address their special needs, and shall in- 412 | corporate their histories, their knowledge and technologies, their value systems and their social, economic and cultural aspirations”; the participation of the peoples concerned in the educational processes: “education programmes and services for the peoples concerned shall be developed and implemented in co-operation with them”; their empowerment in society: “the imparting of general knowledge and skills that will help children belonging to the peoples concerned to participate fully and on an equal footing in their own community and in the national community shall be an aim of education for these peoples” (art. 29); and the promotion of understanding between these peoples and other population groups: “educational measures shall be taken among all sections of the national community … with the object of eliminating prejudices that they may harbour in respect of these peoples” (art. 31) 11. The UNESCO Convention on the Protection and Promotion of the Diversity of Cultural Expressions (2005) reinforces the idea already included in the UNESCO Universal Declaration on Cultural Diversity (2001) that cultural diversity must be considered as a “common heritage of humanity” and its “defense as an ethical imperative, inseparable from respect for human dignity”12. It also states that “cultural diversity can be protected and promoted only if human rights and fundamental freedoms…are guaranteed” (art. 2.1), which is to be achieved through the encouragement and promotion of “understanding of the importance of the protection and promotion of the diversity of cultural expressions … through educational … programmes”. In national legislation and official policy papers there is hardly ever a reference to international norms that pertain to this subject. Another recent instrument is the International Convention on the Protection of the Rights of All Migrant Workers and Members of their Families. This convention contains a provision which focuses on the importance of education for the integration of migrant workers and their families in the states of employment13. In particular art. 30 provides that «each child of a migrant worker shall have the basic right of access to education on the basis of equality of treatment with nationals of the State concerned. Access to public pre-school educational institutions or schools shall not be refused or limited by reason of the irregular situation with respect to stay or employment of either parent or by reason of the irregularity of the child’s stay in the State of employment», and in art. 45 is required that States of employment may provide special schemes of education in the mother tongue of children of migrant workers, if necessary in collaboration with the States of origin. Special mention should also be made of the Declaration on the Rights of Persons Belonging to National or Ethnic, Religious and Linguistic Minorities. This Declaration was adopted by the General Assembly of the United Nations after many years of negotiations on a highly politically sensitive question such as the rights of minorities. Article 4, paragraph 4, of this Declaration aims at promoting understanding between the minorities of a country and the other sections of the population through education (2.5)14. Lastly, the Declaration on the Elimination of All Forms of Intolerance and of Discrimination Based on Religion or Belief (2.4) should be mentioned. In this instrument, it is stipulated that children should be brought up to respect freedom of religion or the beliefs of others, in full consciousness that their energy and talents should be devoted to serving their fellow humans. It is argued that this provision has a clear link to intercultural education15. In December 1994, the General Assembly of the United Nations adopted a resolution in which it proclaimed a United Nations Decade for Human Rights Education, beginning on 1 January 1995. This resolution contains a recommendation to governments, non-governmental educational agencies and governmental organizations to implement a Plan of Action that had been drawn up by the United Nations16. In this resolution the General Assembly stressed that “human rights education should involve more than the more than the provision of information and should constitute | 413 a comprehensive lifelong process by which people at all levels of development and in all societies learn respect for the dignity of others and the means and methods of ensuring that respect (…) recognizing that human rights education and information are essential to the realization of human rights and fundamental freedoms and that carefully designed programmes of teaching, learning, training and sharing of experiences, materials and information can have a catalytic effect on national, regional and international initiatives to promote and protect human rights and prevent human rights violations”. In 2006 UNESCO published the guidelines for intercultural education, an important document that should serve as a valuable practical resource for teachers and learners, policy makers and community members alike who wish to promote intercultural education in interests of peace and mutual understanding17. Intercultural education needs to concern the learning environment as a whole, as well as other dimensions of educational processes, such as school life and decision making, teacher education and training, curricula, languages of instruction, teaching methods and student interactions, and learning materials. This can be done through the inclusion of multiple perspectives and voices. The distinct aims of intercultural education can be summarized under the headings of ‘the four pillars of education’ as identified by the International Commission on Education for the TwentyFirst Century. According to the conclusions of the Commission, education should be broadly based on the pillars of: learning to know, by “combining sufficiently broad general knowledge with the opportunity to work in-depth on a small number of projects” The Commission further states that “a general education brings a person into contact with other languages and areas of knowledge, and… makes communication possible. Learning to do, in order to “acquire not only an occupational skill but also, more broadly, the competence to deal with many situations and to work in teams.24” In the national and international context, learning to do also includes the acquisition of necessary competencies that enable the individual to find a place in society. Learning to live together, by “developing an understanding of other people and an appreciation of interdependence – carrying out joint projects and learning to manage conflicts – in a spirit of respect for the values of pluralism, mutual understanding… peace” and cultural diversity. In short, the learner needs to acquire knowledge, skills and values that contribute to a spirit of solidarity and co-operation among diverse individuals and groups in society. Learning to be, “so as to better develop one’s personality and be able to act with ever greater autonomy, judgement and personal responsibility. In that respect, education must not disregard any aspect of a person’s potential…” such as his or her cultural potential, and it must be based on the right to difference. These values strengthen a sense of identity and personal meaning for the learner, as well as benefiting their cognitive capacity18. 4. European policies about intercultural law and religious dimension. In Europe, most countries with relatively high immigration flows (such as France, Germany, Belgium and The Netherlands) show a similar line of development with respect to intercultural education. In the period after the economic miracle of the 1950s, teachers and politicians focused their attention on overcoming linguistic problems in schools. On the one hand, developmental measures for learning the host countries’ languages were put in place; on the other hand a great deal of emphasis was placed on giving children the opportunity to ‘preserve’ their languages and cultures of origin, so that a return to their native country could become possible at any time. Also during this time, numerous projects were created which could be termed ‘multicultural’: the 414 | main aim was getting to know about commonalities and differences on a linguistic, religious and cultural level. In the 1970s, some countries even saw the creation of new subjects due to the growing numbers of foreign children in schools, such as Ausländerpädagogik (pedagogy for foreigners) in Germany or pédagogie d’accueil (pedagogy of reception) in France, whose goal was the realisation of specific, ‘separate’ measures of intervention for foreign children. Over time, however, this concept has been increasingly criticised, as the risks of a ‘compensatory’ and ‘assimilatory’ pedagogy became increasingly visible. It was only in the 1980s that theoretical considerations and practical intervention strategies with respect to intercultural pedagogy slowly began to form19. The Council of Europe adopted the strategy of multiculturalism and multicultural pedagogy in the 1970s. In 1970, the Conference of Ministers passed its first resolution (no. 35), focusing on the entry age of migrant worker children into schools of the member states. A so-called ‘double track strategy’ was established to promote both the integration of these children within host country schools and also maintain cultural and linguistic links to the country of origin, so as to facilitate possible school reintegration. Further conferences (1973 in Bern, 1974 in Strasbourg, 1975 in Stockholm, 1976 in Oslo), also addressed ‘problems’ relating to the education of migrant workers, as well as the possibility of maintaining one’s links with languages and countries of origin. Stimulated by the Council of Cultural Cooperation (CDCC), a working group was set up between 1977 and 1983 under the direction of L. Porcher and Micheline Rey, that examined teacher education in Europe with respect to methods and strategies. This framework was underpinned by the recognition of the necessity to implement ‘intercultural education’. Then, in 1983, at a conference in Dublin, the European ministers for education unanimously passed a resolution on the schooling of migrant children, in which the importance of the ‘intercultural dimension’ of education was highlighted. The following year, a recommendation for teacher education was issued based on intercultural communication. Since the mid-1980s the Council of Europe has begun to promote numerous projects for education, which is no longer seen as multi- or trans-cultural, but instead as ‘intercultural’. The Council of Europe also made recommendations for the training of teachers who will work on the development of intercultural education. Certainly education can make a major contribution to the development of intercultural dialogue, understanding, respect and tolerance among people from different cultures. In Europe, there are two binding legal instruments which protect national minorities, their cultures and their languages: the European Charter of Regional or Minority Languages (opened for signature in 1992)20 and the Framework Convention for the Protection of National Minorities (opened for signature in 1995)21. These two instruments clearly underline the fact that a “climate of tolerance and dialogue is necessary to enable cultural diversity to be a source and a factor, not of division, but of enrichment for each society”. Article 6 of the Framework Convention stipulates that: “The Parties shall encourage a spirit of tolerance and intercultural dialogue and take effective measures to promote mutual respect and understanding and co-operation among all persons living on their territory, irrespective of those persons’ ethnic, cultural, linguistic or religious identity, in particular in the fields of education, culture and the media”. These two instruments are relevant for intercultural dialogue, because they require active cooperation between majorities and minorities. Both contain articles concerning education, aimed at protecting and promoting the minority culture and the obligation to provide quality education to members of these minorities – in their minority language, or at least in part. They therefore formed a starting point for a new political approach to intercultural education, rejecting assimilation with the majority and advocating an approach that asserts the equality of the two parties involved in the dialogue. They also place the issue clearly within the framework of human rights22. | 415 The European ministers of education responded rapidly to the “new context”. In 2003, in Athens, they adopted a declaration on intercultural education and the Council of Europe’s role in preserving and fostering the unity and diversity of European societies. In particular the ministers asked the Council “to focus its work programme on enhancing the quality of education as a response to the challenges posed by the diversity of our societies by ensuring that learning about democracy and intercultural education was a key component of educational reform”23. In 2007, in Istanbul, in a declaration intended as a follow-up to the Action Plan of the Heads of State adopted in Warsaw, the European ministers of education placed emphasis on inclusive education. They underlined the importance of measures to improve understanding between cultural and/or religious communities through school education. In their declaration it is pointed out that, whatever a state’s system of religious education, “taking account of religious diversity in intercultural education is not incompatible with certain forms of secularism and the partial secularisation of several present-day societies”24. Religion assumes particular importance also with regard to the development of intercultural dialogue and may contribute to the protection and promotion of the fundamental values in which our societies are rooted, in respect for their autonomy and prerogatives. Today, we are confronted with international tensions and threats against stability and peaceful coexistence of different cultural, political, ethnic and religious groups within the same people. This goes hand in hand with the duty to favour active participation by our peoples, in particular by the young, in the promotion of cultural and spiritual values and ideals in order to counter these threats. For this reason, in particular, Council of Europe launched in June 2006 the importance of the Campaign “All different, all equal”, to raise awareness among European young people on the common objective of fighting against any form of intolerance and discrimination, racism, xenophobia, anti‐Semitism, islamophobia, while promoting respect for diversities ; as well as the constant support provided by the Commissioner for Human Rights to numerous initiatives involving various countries concerning strategies to consolidate interfaith dialogue25. In 2008, the White Paper on Intercultural Dialogue: Living Together As Equals in Dignity was launched by the Council of Europe Ministers of Foreign Affairs. It makes numerous references to education, in particular education for democratic citizenship and human rights, language learning and history teaching, and also intercultural education with its religious dimension. The White Paper identifies education as one of the five key areas for the success of intercultural dialogue. The White Paper constitutes an important step offering an original framework for intercultural education26. Very important document on education was adopted within the framework of the OSCE. In a document titled “Helsinki Process” (adopted in 1990) the representatives of the participating countries agreed on the need to take effective measures to promote understanding and tolerance, particularly in the fields of education, culture and information. These measures should be in accordance with the constitutional systems at national, regional and local levels. Country representatives were requested to ensure that the goals of education pay special attention to the problem of racial prejudice and hatred, and to develop respect for different civilizations and cultures. In 1999 the Parliamentary Assembly of the Council of Europe invited member states to reinforce teaching about religions ‘as sets of values towards which young people must develop a discerning approach, within the framework of education on ethics and democratic citizenship’ and to promote ‘the teaching of the comparative history of different religions, stressing their origins, the similarities in some of their values and the diversity of their customs’. In order to clarify the status of such teaching in state schools, the European Parliamentary Assembly invited member states “to avoid any conflict between state‑promoted education about religion and the religious faith of families, in order to respect the free decision of families in this very sensitive matter”27. 416 | As a mirror of society, school is directly concerned with the question of the place of religion in public life. There is unanimity on this subject, as is evident from the growing controversy, not only over the presence and wearing of religious symbols in school, but also over the status to be given to teaching about religions, particularly the so‑called minority religions such as Islam. Some would say that such issues are marginal when considered alongside the major challenges of equity and efficiency confronting state education systems that are faced with significant budgetary restrictions. The issues take on a whole new meaning when seen in the larger perspective of educating citizens who will be living and working in ever more multicultural societies and when religion is seen as a cultural fact and a field of knowledge that cannot be ignored. Teaching about religions and other convictions, together with the broader objective of intercultural and citizenship education for young people, should play a very important role in multicultural societies. However, approaches to religious education adopted in state schools in Europe still have some way to go to take up this challenge. Such approaches are very varied and remain deeply rooted in the history and circumstances of each state. Teaching can be confessional or non‑confessional, obligatory or optional, with or without an alternative subject. It can also take the form of teaching about religious facts and be integrated into existing subjects. It can be provided by the different confessions, by the state or through cooperation between church and state. (Endnotes) 1 The spread of the mass media in our daily lives, the growth of information technology, profound geo-political changes, and the establishment of new markets, variously described as ‘globalisation’, ‘new economy’ or ‘computer-information revolution’, imply a reduction in distance, stronger ties between different geographical areas, greater mobility, as well as new and diversified migration flows. 2 Cfr. J. NIELSEN, The rise of Islam in Europe, in Renaissance and Modern Studies, vol. 31 (1987), pp. 58 73. 3 To examine the phenomenon of Islam in Europe see G. DAMMACCO, Diritti umani e fattore religioso nel sistema multiculturale euro mediterraneo, Cacucci, Bari, 2001; A. FERRARI (ed. by), Islam in Europa/Islam in Italia, tra diritto e società, Il Mulino, Bologna, 2008; S. FERRARI, Lo statuto giuridico dell’Islám in Europa occidentale, in Islam ed Europa. I simboli religiosi nei diritti del Vecchio continente, , Carocci, Roma, 2006, p. 17 ss.; AA.VV., Europa laica e puzzle religioso, Marsilio, Venezia, 2005; S. ALLIEVI, Musulmani d’Occidente, Tendenze dell’islam europeo, Carocci, Roma 2002; J.S NIELSEN, S.AKGÖNÜL, A. ALIBAŠI, B. MARÉCHAL, C. MOE (ed. by), Yearbook of Muslims in Europe, vol. 1, Brill, Leiden, 2009. Actually the percentage of Muslim population in Europe is 7,63%. ( to see more in detail the percentages see http://www. muslimpopulation.com/Europe/) 4 This is what makes sociologically unplausible a popular interpretative paradigm, such as the ‘clash of civilisations’ thesis, popularised by Huntington. He describes civilisations as separated, ‘here’ and ‘there’, rooted in different territories, clearly definible. See S. HUNTINGTON, The clash of civilization and the Remaking of World Order, Simon & Schuster, New York 1996. The fact the civilisations are not so separate as they are described, does not exclude conflicts and clashes, particularly on a cultural and religious ground. It simply re-interprete them differently: more as the effect of contact and interconnection, than of separation. 5 UNITED NATION, Universal Declaration on Human Rights, 1948. 6 Culture is defined in numerous ways. As such, it has been defined as “the whole set of signs by which the members of a given society recognize…one another, while distinguishing them from people not belonging to that society” It has also been viewed as “the set of distinctive spiritu- | 417 al, material, intellectual and emotional features of a society or social group… (encompassing) in addition to lifestyles, ways of living together, value systems, traditions and beliefs” Culture is at the core of individual and social identity and is a major component in the reconciliation of group identities within a framework of social cohesion. In discussing culture, reference is made to all the factors that pattern an individual’s ways of thinking, believing, feeling and acting as a member of society. See M. RICCA, Culture interdette. Modenrità, migrazioni e diritto interculturale, Bollati Boringhieri, Torino, 2013. 7 Education is “the instrument both of the all-round development of the human person and of that person’s participation in social life.” It can take place at any age, through the actions of many institutions such as family, the community or the work environment. It can also take place through interaction with the natural environment, especially when such interaction is socially and culturally determined. From these many influences, school remains the most visible educational institution, and its role is central to the development of society. It aims at developing the potential of learners through the transmission of knowledge and the creation of competencies, attitudes and values that empower them for life in society. 8 See A. PORTERA, Intercultural education in Europe: epistemological and semantic aspects, in Intercultural Education, Vol. 19, N. 6, December 2008, pp. 481–491 9 See S. Bećirović, The Role of Intercultural Education, in Fostering Cross-Cultural Understanding, in Ephiphany, Journal of transdisciplinary studies, Vol. 5, No. 1, 2012, pp. 139-156. 10 Cfr. UNITED NATIONS, Convention on the Rights of the Child, (2001). 11 ILO (International Labour Organization), Convention No. 169 concerning Indigenous and Tribal Peoples in Independent Countries, 5 september 1991, in ILO Official Bull. 59, art. 27. 12 Preamble, UNESCO, Convention on the Protection and Promotion of the Diversity of Cultural Expressions (2005) 13 UNITED NATIONS, International Convention on the Protection of the Rights of All Migrant Workers and Members of Their Families, Adopted by General Assembly resolution 45/158 of 18 December 1990. 14 UNITED NATIONS, Declaration on the Rights of Persons Belonging to National or Ethnic, Religious and Linguistic Minorities, Adopted by General Assembly resolution A/RES/47/135 of 18 December 1992. 15 UNITED NATIONS, Declaration on the Elimination of All Forms of Intolerance and of Discrimination Based on Religion or Belief, Adopted by General Assembly resolution A/RES/36/55, 25 November 1981. 16 UNITED NATIONS, United Nations Decade for Human Rights Education and public information activities in the field of human rights, Adopted by General Assembly resolution A/RES/51/104, 12 December 1996. 17 UNESCO’s work on education in general, and Intercultural Education in particular, is framed within a number of standard-setting instruments and documents. In the UNESCO Constitution, the founding member states declare as indispensable the “wide diffusion of culture and the education of humanity for justice and liberty and peace” and commit to the development of “the means of communication between their peoples and to employ these means for the purposes of mutual understanding and a truer and more perfect knowledge of each other’s lives. See 18 J. Delors, Learning: The Treasure Within - Report to UNESCO of the International Commission on Education for the Twenty-first Century, UNESCO, 1996. f 418 | 19 Cfr. D. FAAS, From Foreigner Pedagogy to Intercultural Education: an analysis of the German responses to diversity and its impact on schools and students, in www.academia.edu 20 COUNCIL OF EUROPE, European Charter for Regional or Minority Languages, Strasbourg, 5 november, 1992. 21 COUNCIL OF EUROPE, Framework Convention for the Protection of National Minorities, Strasbourg, 1 february 1995. 22 O. ÓLAFSDÓTTIR, Understanding and valuing diversity: Council of Europe activities in the field of intercultural education, Council of Europe, may 2011. 23 Standing Conference of European Ministers of Education, 21st session “Intercultural education: managing diversity, strengthening democracy”, Athens, Greece, 10-12 November 2003, Declaration by the European ministers of education on intercultural education in the new European context, paragraph 10. On line: https://wcd.coe.int/com. 24 Standing Conference of European Ministers of Education, 22nd session “Building a more human and inclusive Europe: role of education policies Istanbul”, Turkey, 4-5, May 2007, Resolution on the results and conclusions of completed projects 2003-2006. In the field of intercultural education, religious diversity and dialogue in Europe – online: http://www.coe.int/t/dg4/ education/historyteaching/Source/Results/AdoptedTexts/IstanbulResolution1_en.pdf 25 COUNCIL OF EUROPE, The European Youth Campaign for Diversity, Human Rights and Participation, All different-all equal, 2006 – 2007, Report of the Joint Council on Youth, Budapest, Strasbourg, 7 october 2009. 26 The White Paper provides various orientations for the promotion of intercultural dialogue, mutual respect and understanding, based on the core values of the organisation. The Ministers welcomed it as a “significant pan-European contribution to an international discussion steadily gaining momentum” as well as to the European Year of Intercultural Dialogue. The Ministers emphasised the importance of ensuring appropriate visibility of the White Paper, and called on the Council of Europe and its member states, as well as other relevant stakeholders, to give suitable follow-up to the White Paper’s recommendations. COUNCIL OF EUROPE, White Paper on Intercultural Dialogue, Living together as equals in dignity, 2008. The online version of the White Paper is available on the web site www.coe.int/dialogue 27 Recommendation 1396 (1999) of the Parliamentary Assembly of the Council of Europe, on religion and democracy. | 419 420 | Monika Domańska Institute of Law Studies Polish Academy of Science [email protected] Multiple discrimination as a European issue. Romani women perspective Abstract European equality provisions are only capable of dealing with a single ground for discrimination, not an undivided combination of grounds. But we are not monochrome. This is a real issue for Romani woman, who may find themselves discriminated against not only because of their racial or ethnic origin, but also because they are female, disabled or elderly. The discrimination that a Romani woman experiences is usually entirely different from that experienced by a Romani man or a woman from the majority population. Multiple discrimination is a relatively new issue and EU law is not as clear on this as it should be. While EU law do not expressly provide for the consideration of multiple discrimination (it does not expressly prohibit it), it does expressly recognise that different grounds may intersect. Looking for a wider approach to the issue, there is a need to examine European (binding and non-binding) legislation and policy, data collection and discussion at international level. Keywords: equality law, prohibition of discrimination, criteria of differentiation, minorities, EU Law. Introduction One of the aims of anti-discrimination regulations is to protect human dignity (Redelbach, 2000, pp.78-79)1. The Phenomenon of every human being is that he/she is not homogenous, monochrome, one-dimensional. This is why the identity of every person cannot be defined in terms of one selected feature, such as age, sex or skin colour. The above fact leads to the assumption that anti-discrimination legislation in its current shape does not pursue the above aim in a satisfactory manner.Apart from the issue of discrimination based on one or several grounds it must be noted that the anti-discrimination provisions currently in force (both on national and supranational level) identify several criteria of prohibited differentiation, covering different areas of human life, which nevertheless should be applied separately. Therefore, the possibility of multidimensional discrimination (resulting from the intersection of various prohibited criteria pertaining to different, protected areas of life), which nowadays may affect every member of our society, calls for efficient legal remedies protecting the multidimensional human being as a whole against the existing exclusion mechanisms. While not advocating any hierarchy of the exclusion criteria, we should point out that the most common ground, occurring in conjunction with other prohibited differentiation grounds, is gender (Crenshaw, 2005, pp. 45)2. Quoting S. Fredman (Fredman, 2005, pp.13-18) we could say that “…Ethnic minority women, older women, black women and disabled women are among the most disadvantaged groups in many EU Member States. Similar multiple or intersectional discrimination is experienced by gay or lesbian people; members of ethnic minorities; disabled black people; younger ethnic minority members or older disabled people”. When assessing the legal situation of women from ethnic minorities one must not forget that many national statistics does not include information on multiple systems of oppression. This is why, in many countries, the vulnerable social position of women from ethnic minorities, including Romani women, is hidden from sight. As a result, problems with acknowledging discrimination | 421 both on the grounds of gender and ethnic origin affect the development and implementation of appropriate protection policies targeted at Romani women. These women, who are often marginalized because of their ethnic origin, are more likely to become victims of human traffic, sexual harassment or be prevented access to employment. They are a “minorities in the minority”, which corresponds to the condition described by S. Fredman: “The more a person differs from the norm, the more likely she is to experience multiple discrimination, the less likely she is to gain protection” (Fredman, 2005, pp. 13-18). This article offers a conceptual approach to the issue of multiple discrimination as well as the practical use of rather fragmented body of EU non-discrimination law. This symmetric approach is seen as a precondition to establish whether and if so, how, EU law is able to respond to the challenge of multiplying grounds on which discrimination is prohibited. 2. Multiple discrimination. Some definitions. The terminological diversity (intersectional discrimination; intersectional subordination; intersectional vulnerability; interactive discrimination; compound discrimination; cumulative discrimination; multidimensional discrimination; multiple disadvantages; double marginalisation; triple marginalisation) is underlined by the fact that both the foreign and national doctrine includes several definitions of this phenomenon, introducing various types of such multiple discrimination. An analysis of the doctrine leads to the conclusion that such terms as: intersectional discrimination, multidimensional discrimination or compound discrimination tend to be used interchangeably. “Multiple discrimination” seems to be the most popular expression, used as an “umbrella term”3 for the different subtypes of such discrimination. However, this term is also defined sensu stricto and sensu largo, which further complicates any attempts at clearing this terminological ambiguity. According to the prevailing view expressed in the current doctrine it seems reasonable to distinguish and define the following types of such discrimination: a. multiple discrimination (understood sensu stricto, if it is assumed that the entire phenomenon should be defined based on multiple discrimination sensu largo) – a situation where a given person is subject discriminated against: on more than one ground, b) but at different times. An example could be a Romani woman subject to discrimination by being prevented access to employment: a) because she is a woman, b) in a different situation, when she is refused the job of a cashier. It should be emphasized that the ground of gender and ethnic origin do not affect that woman’s situation simultaneously, but each of them affects her separately and on different occasions. This type of discrimination exists in the legal framework as “discrimination”. Such examples of discrimination are treated separately, based on applicable provisions, each event of discrimination and the relevant criterion being treated individually. b. compound discrimination – a situation where one person is discriminated against on at least two grounds at the same time (added together they form interactional discrimination). The most frequently cited example of such discrimination is a job advertisement in which the employer specifies many requirements to be met by the applicants, such as: specific age, nationality, fluent English, job experience in the UK, Catholic religion. A person who does not meet one of those requirements may still get the job, although it is less likely, but failure to meet two of the requirements seriously jeopardizes his/her chances at employment (Moon, 2006)4 c. intersectional discrimination – a situation where several differentiation grounds act simultaneously and interact with each other, forming a new, characteristic system of exclusions. An example could be a disabled Romani woman, whose experiences on the labour market are not a simple sum total of experiences of a woman on the labour market, a disabled person 422 | on the labour market and a Romani woman on the labour market. Or a disabled gay person who is subject to various specific exclusions unknown to heterosexual men or disabled men (Makkonen, 2002). 3. Multiple discrimination – a phenomenon (non-)existent in EU law For many years EU legislation has prohibited discrimination on the grounds of gender and nationality. The concept of prohibiting discrimination on other grounds had gradually gained on importance, as EU structures and legal mechanisms developed, especially after adoption of the Treaty of Amsterdam in 1999 and implementation of Article 13 (currently 19 TFEU). This provision has always been considered an anti-discrimination clause which provided the EU with new ways to prohibit discrimination on grounds of gender, race or ethnic origin, religion or spirituality, disability or sexual orientation. Another milestone came with the UN World Conference Against Racism, Racial Discrimination, Xenophobia and Related Intolerance held in Durban, South Africa, in 2001. During that event the international community acknowledged the existence of a phenomenon called “multiple discrimination”. However, those events did not lead to the development of relevant anti-discrimination regulations. The multiplicity of currently recognized discrimination criteria does not represent “multiple discrimination”. It must be concluded that there is no regulation currently in force (either on EU or international level) which would be applicable to the phenomenon at hand. The only signs of engagement in the regulatory problem concerning multiple discrimination in European documents appear both in legally binding and non-binding acts. Paragraph 3 of the Preamble to Directive 2000/78/EC5 of the Council expressly states that “In implementing the principle of equal treatment, the Community should, in accordance with Article 3(2) of the EC Treaty, aim to eliminate inequalities, and to promote equality between men and women, especially since women are often the victims of multiple discrimination”6. A similar statement can be found in Directive 2000/43/EC7 (paragraph 14 of the Preamble). Council Decision No. 2000/750/EC8 also evokes the term “multiple discrimination”; twice in the Preamble and in Article 2, according to which: “Within the limits of the Community’s powers, the programme shall support and supplement the efforts at Community level and in the Member States to promote measures to prevent and combat discrimination…” The European Parliament has also had the opportunity to refer to the problem and in its Resolution of 25 November 20099, Item 31 it called “on the Member States to review the implementation of all policies related to the phenomenon of multiple discrimination”10. An initial analysis of those documents already leads to the conclusion that these are not effective measures which could be said to protect the rights of persons exposed to multiple discrimination. At this point we should mention the Council Directive on implementing the principle of equal treatment between persons irrespective of religion or belief, disability, age or sexual orientation11 as one of the most recent European initiatives; nevertheless, the EU legislator has again failed to provide for efficient solutions. While the Preamble (again) refers to “the need to tackle multiple discrimination, for example by defining it as discrimination and by providing effective remedies”, the proposed laws which are to be binding in Member States do not contain any provisions regulating the problem. An analysis of this area of research leads to the conclusion that this subject is characterized by conceptual disorganization and a definitional chaos, enhanced by the lack of advanced studies in the field. EU institutions are not trying to construct an appropriate legal framework for multiple discrimination. The lack of effective remedies, which has lasted for such a long time (basically since 2000, when anti-discrimination directives had mentioned multiple discrimination for the first time), cannot be justified. Moreover, lack of binding European legislation does not facilitate the implementation of appropriate laws in individual Member States. | 423 The issue of multiple discrimination is inherently connected with both anti-discrimination law and the human rights standards stipulated in the United Nations Charter and the Declaration of Human Rights. In September 1995 the Fourth World Conference on Women adopted the Beijing Declaration and Platform for Action and referred to the need to take into consideration the “multiple barriers”, experienced by women from ethnic minorities12. The Conference participants stressed the fact that age, disability, socio-economic position and ethnic origin create significant barriers for women. The existence of multiple discrimination and its different, co-existing forms was confirmed. Then, in 2000 the International Movement Against All Forms of Discrimination and Racism (IMADR)13 organized workshops devoted to multiple discrimination of women from ethnic minorities, which were held parallel to the UN Women’s Conference in New York. In 2001, during the UN World Conference against Racism, Racial Discrimination, Xenophobia and Related Intolerance held in Durban (South Africa), the Declaration and the Programme of Action were signed, in which the issue of multiple discrimination was explicitly raised14. The Durban Review Conference took place in Geneva in April 2009. One of the events organized as part of the Conference was the forum entitled: “Double odds: women overcoming multiple discrimination”15, during which the UN adopted a long-term programme of action with regard to gender-related dimension of racial discrimination. Moreover, Convention on the Rights of Persons with Disabilities, drafted in New York on 13 December 2006, Preamble, item p) expresses concern about “the difficult conditions faced by persons with disabilities who are subject to multiple or aggravated forms of discrimination on the basis of race, colour, sex, language, religion, political or other opinion, national, ethnic, indigenous or social origin, property, birth, age or other status”. Article 6 of that Convention stipulates that “the women and girls with disabilities are subject to multiple discrimination, and in this regard shall take measures to ensure the full and equal enjoyment by them of all human rights and fundamental freedoms”°�. Despite the large number of initiatives organized by the international community, the main barrier to implementation of measures aimed at tackling multiple discrimination consists of the lack of sanctions and other penalties for non-compliance in the State Parties. Nevertheless, the described instruments of human rights protection reflect the growing acknowledgment of this problem. While the above non-discrimination regulations on grounds of race or ethnic origin do not refer directly to Romani people, reports on multiple discrimination and its impact on the Romani community reveal some useful information in this respect. The following deserve special recognition: The Report of the EU Fundamental Rights Agency entitled “Data In Focus Report, Multiple Discrimination” of 2011; the report on EU-funded research led by Université Libre de Bruxelles, entitled “GENDERACE – The use of racial anti-discrimination laws: gender and citizenship in a multicultural context” of 2010;; the publication of the European Network of Legal Experts in the Field of Gender Equality entitled: “Multiple Discrimination in EU Law. Opportunities for legal responses to intersectional gender discrimination?” of 2009; Data in Focus Report. Multiple Discrimination, prepared by the European Union Agency for Fundamental Rights (FRA) in 2010. Those reports were multidisciplinary studies devoted to multiple discrimination. Even though each of them analysed the issue in accordance with its own assumptions, using different methodologies and studying various groups and areas of life, they are to some extent complementary and create a unique picture of the phenomenon at hand. Every year, reports/summaries of the legal status of Romani people in Europe are drafted by the European Roma Rights Centre17. The results of those reports reveal that Romani women and girls are most exposed to multiple discrimination in Europe. In this ethnic group, experiences of outside discrimination (coming from beyond the structure of that ethnic group) combine with discrimination related to the stereotype of a Romani woman, cultivated by the informal leaders of the group – the men. Hence, a one-dimensional approach, based on prohibiting discrimination on grounds of gender, race or religion, does not 424 | reflect the complexity of the situation and is not adequate to the simultaneous impact of those criteria on the condition of a given individual. According to one of those reports, more girls than boys from the Romani community do not go to school or drop out of school because, among others, they get married early. Lack of education, caring for children, living (mostly) in regions far away from big cities are the most frequent reasons why those women do not seek paid employment. Training options, which usually focus on a particular region of the country, are not addressed to Romani women, as opposed to men. Those women are more often than man discriminated against by the police, especially if they are not citizens of the given country. Women from ethnic minorities rarely experience gender equality in their everyday life or lack of discrimination on grounds of ethnic origin in the country in which they reside. All of the above factors force them to live in great stress, concerned about the fate of the younger generation18. 4. (Un)open catalogue of differentiation criteria Following the doctrine, the recognition of multiple discrimination charges by competent national authorities (if there are no specific provisions regulating the issue) is closely linked to the nature of the catalogue of prohibited discrimination criteria in the given country (Fredman, 2005). It is emphasized that most European countries implementing the EU directives and adjusting their own legal systems have closed catalogues of prohibited differentiation criteria19. A different approach is adopted in the European Convention on Human Rights, which in Article 14 contains a catalogue of analysed criteria: “The enjoyment of the rights and freedoms set forth in this Convention shall be secured without discrimination on any ground such as sex, race, colour, language, religion, political or other opinion, national or social origin, association with a national minority, property, birth or other status.” Such formulation allows the European Court of Human Rights to extend the list and add new, significant grounds and types of discrimination. Suffice it to say that the Court has already extended the Convention catalogue of prohibited criteria by disability and sexual orientation and has admitted the possibility of discrimination by association20. Moreover, it should be pointed out that some European countries have laws which refer to “multidiscrimination” and “intersectional discrimination”. Examples include Germany, Austria, Spain and Romania. Romanian legislation was amended in 2006 due to a large number of complaints received from Romani women evoking multiple discrimination. 5. Judgements of the European Court of Human Rights As concerns the judgements of the European Court of Human Rights on the legal status of Romani women (Romani people), the following cases should be listed: Thlimmenos v. Greece21, Nachova and Others v. Bulgaria22, Beard v. United Kingdom23, Coster v. United Kingdom24, Chapman v. United Kingdom25, D.H. and Others v. Czech Republic26, where the Court clearly stated that the evident lack of legal protection of the Romani community means that the needs and specific lifestyles of that group deserve special attention. It also stipulated that the multicultural structure of democratic societies is a value, not a threat. While the findings cited above did not refer directly to the issue of multiple discrimination, the case of Thlimmenos v. Greece clearly shows that lack of recognition of the “specific condition of Romani people” in the legal systems of particular countries leads to “discrimination by failure to provide differential treatment”. The above statement may lead to the conclusion that lack of appropriate legal remedies for the Romani community as distinguishable from the entire community of the given country, whereby their ethnic origin, cultural aspects, including the stereotyped social role of women, is not duly recognized, may be reflected in multiple discrimination of specific Romani women. No one else other than those women may be subject to such discrimination27. | 425 6. Judgements of the Court of Justice of the European Union The EU Court of Justice has inspired the development of many new concepts in European law, thus enhancing its effectiveness. However, the judgements of the CJEU do not refer to the issue of multiple discrimination, although some cases seem to touch upon the areas of life affected by this type of discrimination. At this point we should refer to Case C-303/06. S. Coleman. v. Attridge Law and Steve Law 28, which analysed the legal condition of a female plaintiff forced out of work because she took care of her disabled son. In 2002 Ms Sharon Coleman gave birth to a son who was suffering from hearing impairment and a respiratory condition. After unsuccessful requests directed at her company’s management to provide her with flexible working arrangements which would enable her to care for her disabled son, she was forced to resign from work. What is more, she claimed that in the period directly preceding her resignation she had been subject to verbal abuse at work due to her requests. One of the main charges raised by Ms Coleman was that she had been discriminated against, since there were other persons at her firm who were able to work flexible hours to care for their non-disabled children. Those persons had not been subject to verbal abuse or other treatment violating the dignity of the employee, which are defined as harassment under Directive 2000/78/EC. The Advocate General stated in his opinion that Directive 2000/78/EC also offered protection against discrimination to persons who, while not being disabled themselves, might be subject to unequal treatment in the form of direct discrimination or harassment by reason of their association with disabled persons. The Court of Justice of the European Union decided that the plaintiff had experienced discrimination due to disability. However, the conclusion could have been different, if it had been assumed that most persons caring for disabled people were women. Nevertheless, the Court did not evoke the issue of genderrelated discrimination anywhere in its judgement. 7. Summary Multiple discrimination is a term that has been present in the doctrine for some time now (since 1990s) and calls for legislation action. The problems is not sufficiently addressed by current laws or initiatives implemented as part for various policies prohibiting discrimination based on different, single ground. The anti-discrimination provisions currently in force were implemented mostly on an ad-hoc basis, as a reaction to various equal treatment campaigns, and they lack the coherence or uniformity necessary to enhance the effectiveness of available legal remedies. When drawing de lege ferenda conclusions it must be emphasized that there seems to be a need for totally new anti-discrimination provisions which would organize the provisions of current Directives and introduce new, necessary solutions for multiple discrimination. The CJEU also plays an important role in the process, as it could solve “urgent” problems and provide basis for legislation progress. References Bell, M., Cormack, J. (2006). Developing Anti-discrimination Law in Europe, the 25 EU Member States Compared. Brussels. Chege, V.A. (2010). Multidimensional Discrimination in EU Law: Sex, Race and Ethnicity. Npmos. Cieślikowska, D.; Sarata, N. (2012). Dyskryminacja wielokrotna – historia, teorie, przegląd badań. Warszawa. Crenshaw, K. (2005). Double trouble: multiple discrimination and EU law. European Anti-Discrimination Law Review, no 2. Fredman, S. (2005). Double trouble: multiple discrimination and EU law. European Anti-Discrimi- 426 | nation Law Review, no 2. Makkonen, T. (2002). Multiple, compound and intersectional discrimination: bringing the experiences of the most marginalized to the fore, by LL.M Timo Makkonen Institute For Human Rights, Åbo Akademi Uniwersity. Moon, G. (2006). Multiple discrimination: Problems compounded or solutions found. Justice Journal, no 3. Redelbach, A. (2000). Prawa naturalne – prawa człowieka – wymiar sprawiedliwości. Polacy wobec Europejskiej Konwencji Praw Człowieka. Toruń. Schiek, D.; Chege, V. (2009) European Union Non-Discrimination Law. Comparative Perspectives on Multidimentional Equality Law. NY. Uccellari, P. (2008). Multiple Discrimination: How Law can Reflect Reality. The Equal Rights Review. V.1. Wróbel, A. (2012). Traktat o Funkcjonowaniu Unii Europejskiej, Tom I. Warszawa. pp. 129-169. Wróbel, A. (2013). Karta Praw Podstawowych Unii Europejskiej. Komentarz. Warszawa. pp. 714770. (Endnotes) 1 I believe that human dignity is a fuzzy term derived from the area of values and from the formal and legal perspective it has not been defined in any legal act. However, it serves as the foundation for universal human rights. According to A. Redelbach, the recognition of human dignity, respect for privacy and the meaning of rights and freedoms have paved the way for reviewing the concept of power and its meaning in social systems. The human rights, which, as the author argues, should establish conditions for the fullest development of the human being and his/her active participation in the transformations of the world around him/her, are rooted in the concern for dignity. Redelbach, A. (2000). Prawa naturalne – prawa człowieka – wymiar sprawiedliwości. Polacy wobec Europejskiej Konwencji Praw Człowieka, Toruń, pp. 78–79. 2 A pioneer in multiple discrimination research, Kimberlé Crenshaw, says that “The paradigm of gender-related discrimination tends to be construed on the basis of experiences of white women, while the racial discrimination model is structured on the basis of experiences of the most privileged Blacks. As a result, the terms related to the nature of racial and sex discrimination are so narrow that they cover a small spectrum of experiences, neither of which touches upon the discrimination of Black women.” 3 The use of a simple borrowing from English in the EU law in not new within the doctrine. Examples include words such as “implementacja” (implementation) or “transpozycja” (transposition). 4 Example after Moon (2006). The author refers to a British case of Perera vs. Civil Service Commission (No 2), UK [1983] IRLR 166, where the employer had set up a series of requirements. Mr. Perera did not get the position. 5 Council Directive 2000/78/EC of 27 November 2000 establishing a general framework for equal treatment in employment and occupation. 6 Unfortunately, the Polish translation used the expression “women are often victims of various types of discrimination”. In German this paragraph reads as follows: “Bei der Anwendung des Grundsatzes der Gleichbehandlung ist die Gemeinschaft gemäß Artikel 3 Absatz 2 des EG-Vertrags bemüht, Ungleichheiten zu beseitigen und die Gleichstellung von Männern und Frauen zu fördern, zumal Frauen häufig Opfer mehrfacher Diskriminierung sind“. In French: “Dans la | 427 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 mise en oeuvre du principe de l’égalité de traitement, la Communauté cherche, conformément à l’article 3, paragraphe 2, du traité CE, à éliminer les inégalités et à promouvoir l’égalité, entre les hommes et les femmes, en particulier du fait que les femmes sont souvent victimes de discriminations multiples”. Council Directive 2000/43/EC of 29 June 2000 implementing the principle of equal treatment between persons irrespective of racial or ethnic origin. Council Decision 2000/750/EC of 27 November 2000 establishing a Community action programme to combat discrimination (2001—2006). European Parliament Resolution of 25 November 2009 on the Communication from the Commission to the European Parliament and the Council: An area of freedom, security and justice serving the citizen – Stockholm programme” (2010/C 285 E/02). A similar position of the European Parliament is reflected in 10 other resolutions. COM (2008) 140. Available at: <www.unesco.org/education/information/nfsunesco/pdf/BEIJIN_E.PDF> [Accessed 3 Jun 2013]. Available at: <www.imadr.org> [Accessed 3 Jun 2013]. Available at: <www.un.org/WCAR/durban.pdf> [Accessed 3 Jun 2013]. Available at: <www.ohchr.org/EN/NEWSEVENTS/Pages/DoubleOdds.aspx> [Accessed 3 Jun 2013]. Available at: <www.un.org/disabiliteies/default.asp?navid=13&pid=150> [Accessed 3 Jun 2013]. Available at: <www.errc.org> [Accessed 3 Jun 2013]. EU Monitoring and Advocacy Program/European Roma Rights Centre, Shadow Report Commenting on the fifth periodic report of the Federal Republic of Germany submitted under Article 18 of the United Nations Convention on the Elimination of All Forms of Discrimination against Women (2004). Several countries, including Poland, have decided to create open catalogues, cf. (Bell, Cormack, 2006, pp. 8). E.g. Weller v. Hungary, application no 44399/05, 31 March 2009. Thlimmenos v. Greece application no 34369/97, 6 April 2000. Nachova and Others v. Bulgaria, application no 43577/98 and 437579/98, 6 July 2005. Beard v. United Kingdom, application no 24882/94, 18 January 2001. Coster v. United Kingdom, application no 24876/94, 18 January 2001. Chapman v. United Kingdom, application no 27238/95, 18 January 2001. D.H. and Others v. Czech Republic, application no 57325/00, 13 November 2007. Muṅoz Díaz v. Spain, application no 49151/07, 8 December 2009. S. Coleman. v. Attridge Law and Steve Law, C-303/06, Judgment of the ECJ 17 July 2008. 428 | Bożena Nowak-Chrząszczyk Polish Academy of Sciences [email protected] Dealing with gross human rights violations. The problem of compliance with fair trial standards. Case study: Gacaca in Rwanda Abstract Each country which has the experience of systematic gross violations of human rights approaches a difficult task of developing its own way of dealing with past attrocities. After the 1994 genocide Rwanda came up with the idea of establishing a system of Gacaca courts referring to traditional system of conflict resolution. Gacaca with the goal to prosecute the perpetrators of genocide operated as a kind of criminal justice system, which makes it obvious to apply in its assessment the perspective of fair trial standards. The assessment provided by international NGO’s and most scholars is generally negative. The purpose of my research is to find out the reason for noncompliance of Gacaca with fair trial standards accepting generally - which is hardly arguable - that such noncompliance existed. This entails analysis of both the regulations on Gacaca and their application. It must be considered that Gacaca is a transitional justice system and thus it has more complex nature and multiple goals, such as reconciliation. The outcome of the research has a more general meaning by indicating certain sensitive areas requiring special attention when designing transitional justice mechanisms. My research consisted in analysis of law on Gacaca and extensively available materials provided by international and Rwandan NGO’s, Rwandan institutions supervising and monitoring Gacaca and international scholars. Keywords: transitional justice, genocide, proportionality, restorative justice, reconciliation 1. Introduction Following the 1994 genocide Rwanda faced a challenge of designing a transitional mechanism facilitating the reconstruction of a decimated society and introduction of the rule of law and respect for human rights. The challenge was enormous considering that 500,000 – 1,000,000 people were killed, hundreds of thousands injured, handicapped and raped, and 500,000 were initially suspected of participation in genocide. Rwanda came up with an idea of setting up a system of Gacaca courts combining elements of a traditional system of conflict resolution originating in Central Africa and modern criminal justice institution (Clark, 2010, p. 84). The system of Gacaca courts constituted a mechanism of transitional justice and as such, its goal was not only to administer justice1 and punish perpetrators of the massacres, but also to reconcile Rwandan society and reveal truth about the genocide. Prosecution was however an important function of Gacaca courts and these courts undeniably operated also as criminal justice institution. It was Gacaca’s role to conduct trials, render verdicts providing for punishment, including long-term imprisonment, executed by the state. Thus, it seemed obvious to apply in the assessment of Gacaca the perspective of fair trial standards. However, the conclusions provided by international NGO’s and most scholars is generally negative (see: Clark, 2010, pp. 91-96). Accepting generally - which is hardly arguable - that the procedure before Gacaca courts did | 429 not comply with fair trial standards, the purpose of this paper is to find out the reason for such noncompliance. I will argue that the law regulating Gacaca provided for procedural safeguards for the accused, with some acceptable modifications resulting from the multifaceted character of Gacaca and its goal to achieve social reconciliation. The problems with ensuring fairness of proceedings before Gacaca occurred rather in legal practice of Gacaca and resulted from lack of formal legal education as well as adequate training of Gacaca judges. The fact that Gacaca judges were not professional lawyers was one of the most important characteristics of Gacaca. I argue that this is also the crucial reason for Gacaca’s failure to comply with fair trial standards. The conclusion of the present analysis has a more general meaning by stressing the importance of ensuring well prepared staff for administration of justice not only in case of transitional justice mechanisms but also conventional justice system s. It shows that no matter how well fair trial rights are safeguarded in provisions of law, poorly trained judges will impair the fairness of any proceedings. 2. Gacaca courts The 1994 genocide totally destructed Rwanda’s social, economic and political foundations. Tackling the problem of such large-scale violence would be quite a challenge for a developed and prosperous country. When it came to Rwanda, one of the poorest countries in the world at that time2, facing additional economic difficulties in the early 90s, the problem seemed unsolvable with the country’s own resources. Soon after the genocide ended the UN Security Council adopted the SC Resolution 955 (1994)3 establishing the International Criminal Tribunal for Rwanda with the task to prosecute the masterminds of the genocide. However, until 2001 ICTR delivered judgments in only 9 cases. Considering violent past of the country with ethnic grounds, Rwandan authorities had much bolder plans. In order to end the ‘culture of impunity’ it was decided to prosecute every single perpetrator of genocide, crime against humanity, or crime connected with the genocide regardless of his / her social status or kind of involvement in the massacres. The first step in that direction was enactment of the Organic Law No. 08/96 of 30 August 19964 providing legal grounds for prosecution of perpetrators of the genocide and crimes against humanity by specialized chambers of conventional and military courts. Yet, soon it became obvious that if relying on conventional methods of delivering justice, the process of prosecuting of all the alleged perpetrators would last 100 years. As a result the idea of establishing Gacaca courts emerged. The normative basis for operation of Gacaca system was provided in the Organic Law No. 40/2000 of 26 January 20015. With a net of approximately 11,000 courts, the system was designed to speed up the process of prosecution and enable national reconciliation. Gacaca was a transitional justice system set up in order to facilitate transition of the Rwandan society from a system characterized by gross human rights violations to a system of rule of law and respect for human dignity. Although Gacaca courts resembled to a large extent modern criminal justice mechanisms, Gacaca was in fact much more than that. Just as other transitional justice systems6, Gacaca was also designed to reconcile the society and reveal truth about atrocities. As a consequence, the rules of procedure before Gacaca reflected the need to enable extensive, active and direct participation7 of the community and the accused in the proceedings before Gacaca. Gacaca stems from a traditional and unofficial conflict resolution mechanism8 still present in the Great Lakes Region in Africa, where a solution to a dispute or conflict arising in a small com- 430 | munity is established within this community. The conflicts are resolved by persons of integrity acting on behalf of the community and with its participation in order to restore social harmony. Gacaca, referring to the idea of social reconstruction, is similar to the concept ubuntu, i.e. the ideological foundation of the South African Truth and Reconciliation Commission, promoting joint efforts of all the members of a particular community in achieving forgiveness and reconciliation. Gacaca established in 2001 was (unlike its traditional prototype) a state-driven mechanism, regulated and coordinated by the state. It was designed as a two-tier system, with courts established at two administrative levels i.e.: cells (Gacaca Court of the Cell) and sectors (Gacaca Court of the Sector and Gacaca Court of Appeal). Gacaca courts were competent to hear cases of all perpetrators of genocide, crimes against humanity and other crimes connected with genocide with the exception of the most serious categories of perpetrators, i.e. planners, organizers, persons acting in the position of authority at the national or local level, murderers with extreme cruelty, perpetrators of sexual violence crimes, who were adjudicated by conventional (and military) Rwandan courts. In 2008 some of these cases, including cases of sexual violence crimes, were transferred to Gacaca Courts of the Sector. All adult members of the community living within the venue of the Gacaca court9 were obliged to participate in the Gacaca sessions, forming the General Assembly of the Gacaca court, and provide information (as well as ask questions) on genocide necessary to establish responsibility for acts of genocide and other crimes related thereto Following a Gacaca session, the community-elected lay judges delivered a ruling providing for a sentence if the accused was found guilty. The sentences consisted in imprisonment or the obligation to compensate the aggrieved party (in case of offences against property connected with genocide). The law on Gacaca provided for a complex system of guilty plea allowing for substantial reduction of the sentence and commuting half of the sentence into a community service on probation. The parties to the proceedings had the right to appeal to a higher Gacaca court. The result of Gacaca was the return home of thousands of detainees who, as a result of the Gacaca proceedings, were acquitted, released having their pre-trial detention exhaust the sentence imposed in the court’s ruling, or sentenced with a community service. This was of particular importance considering that shortages of working force was one of the biggest concerns in postgenocide Rwanda. Gacaca courts closed in June 2012. All unfinished cases were transferred to conventional Rwandan courts. 3. Gacaca`s (non)compliance with fair trial standards Fair trial standards have been developed in international law and implemented in most domestic legal systems. They serve as a measure of adherence of the state to the rule of law. The fair trial standards test is applied especially with regard to criminal proceedings, both in national and international contexts. As Gacaca serves to a large extent as a criminal justice mechanism, competent to impose sanctions executed by the state for acts constituting offences, it has also been assessed from the perspective of fair trial standards. The importance of adherence to fair trial standards also in the context of traditional courts has been raised at the forum of African Commission on Human and Peoples’ Rights in a Dakar Declaration and Recommendations: ‘It is recognized that traditional courts are capable of playing a role in the achievement of peaceful societies and exercise authority over a significant proportion of the population in African countries. However, these courts also have serious shortcomings, which result in many instances in a denial of a fair trial. Traditional courts are not exempt from the provisions of the African Charter relating to fair trial.’10 | 431 ‘(…) courts based on customary law cannot hand down binding judgments recognized by the State, unless the following requirements are met: proceedings before such courts are limited to minor civil and criminal matters, meet the basic requirements of fair trial and other relevant guarantees of the Covenant, and their judgments are validated by State courts in light of the guarantees set out in the Covenant and can if necessary be challenged by the parties concerned in a procedure meeting the requirements of article 14 of the Covenant. These principles are notwithstanding the general obligation of the State to protect the rights under the Covenant of any persons affected by the operation of customary courts.’ It is unquestionable that the rules of procedure before Gacaca did not comply with fair trial standards. This view is shared by most NGO’s, scholars and international institutions11. Catalogues of fair trial standards are now contained in international instruments, such as the International Covenant on Civil and Political Rights of 16 December 1966 (the ‘Covenant’)12. The catalogue of fair trial standards envisaged in art. 14 of the Covenant includes rights to: equality before the law, presumption of innocence, fair and public hearing, independent, impartial and competent tribunal established by law, prompt and detailed information of the nature and cause of charge, adequate time and facilities for the preparation of defense and the right to communicate with a counsel of one’s own choosing, trial without undue delay, presence at the trial, defense, a legal counsel, examination and obtaining attendance of witnesses, not to be compelled to testify against one or to confess guilt, to appeal, compensation for conviction, and protection against double jeopardy. The issue of Gacaca’s noncompliance with standards of fair trial has been extensively analyzed by the Human Rights Watch monitoring proceedings before Gacaca. Their findings have been described in the report: ‘Justice Compromised. The Legacy of Rwanda’s Community-Based Gacaca Courts’ from 2011, which will serve as a point of reference for the summary analysis below. a) the right to a counsel Although not expressly indicated in the applicable provisions, the accused before Gacaca were denied a right to a legal counsel13. This unwritten rule was (unlike some written ones) uniformly applied in almost all Gacaca proceedings. This departure from the fair trial rules was justified by the need to build a direct relation between the accused on one hand and the victim, and the community on the other. The denial of the right to a counsel had also another, more practical explanation. Ensuring access to a free legal counsel (most Rwandans were unable to cover the costs of legal assistance by themselves) was the expense that Rwanda was just unable to bear. b) the right to independent, impartial and competent tribunal established by law The right to a competent tribunal should be understood as a right to have a case heard by professional lawyers, possessing necessary qualifications and experience to adjudicate the case. It is justified to say that the more complicated and serious issue at hand the higher qualifications are expected from the judge. The Gacaca judges were elected from the local community and by this community. They lacked professional qualifications and instead they were to fulfill requirements pertaining to their moral standing. The judges were not provided with adequate training which resulted in judges violating basic procedural principles and denying the accused, but also witnesses and victims, their basic rights. There were also numerous factors impeding the independence and impartiality of Gacaca judges. They are closely related to the fact that the judges were not qualified lawyers, coming from small communities where the atrocities took place. Most importantly, the judges, lacking adequate preparation, were more susceptible to pressure from the authorities and prone to corruption. 432 | This issue will be further elaborated on in section 4 of this article. c) the right to prompt and detailed information on the charges against the accused and adequate time and facilities for the preparation of defense Contrary to provisions of the Organic Law and the Rwandan Code of Criminal Procedure14, it was a common practice that the accused were not provided with adequate information (on occasions receiving no information) on the charges brought against them. This was of particular concern in cases of detainees or one-day trials. It did happen that the suspect received summons lacking indication of the character of his/her presence required at the trial (whether he/she was to appear as a witness or an accused). If summons were delivered to the accused, it was usually done too late to prepare any defense, especially when it required calling witnesses. Cases have been reported of the accused learning of the accusation against them on the day of the trial. It also happened on occasions that the convicted were not provided with a copy of the ruling of the first instance court and were denied adequate time to prepare for appealing. d) the right to presence at the trial International regulations allow for conducting trials in the absence of the accused (trials in absentia) provided that the accused is properly noticed of the trial and the fair trial rights of the accused are respected during such trial. The procedure for trials in absentia was also provided for in the provisions regulating proceedings before Gacaca15. The Rwandan Code for Criminal Procedure16 indicates that in order to commence a trial in absentia, the accused must have been previously duly summoned. However, the trials in absentia before Gacaca courts were widely applied without proper notification of the accused. They sometimes learned of the conviction after the trial. Such trials were mostly used in cases of political opponents of the authorities, who were often the driving forces behind Gacaca proceedings. e) the right to present defense It follows from the Rwandan Code of Criminal Procedure17 that the accused are entitled to obtain attendance and examination of witnesses on their behalf. However, as a consequence of testitying in defense the witnesses were sometimes intimidated and faced accusation of genocidal ideology. This, considering the fact that witness testimonies constituted major source of proof in proceedings regarding genocide, impeded to a large extent the ability of the accused to effectively defend. On some occasions the judges also refused the accused the right to actively participate in hearing of evidence, thus refusing them the right to question witnesses and react to their testimonies. This not only undermined the fairness of the proceedings but also went contrary to the idea of gacaca based on participation of the reconciling parties and storytelling. f) the right not to be compelled to testify against one or to confess guilt The law on Gacaca18 requires that all persons in possession of information on genocide testify before Gacaca. Human Rights Watch suggests that this provision, as well as provisions penalizing refusal to testify refer also to the accused. Yet, in 2006 the National Service of Gacaca Jurisdiction (‹SNJG›)19 provided instructions indicating that the accused may not to be prosecuted for false testimonies in their own trials. However, in practice the accused were compelled to testify against themselves, mostly due to the fact that they were not provided with appropriate information prior to testifying.20 g) presumption of innocence On numerous occasions Gacaca proceedings were converted into a political game orches- | 433 trated by the authorities. Especially in high-profile cases the accused were considered guilty already at the outset of the trial as a consequence of a media campaign or a political/social debate predating the commencement of proceedings. Such campaigns were often based on accusations of ‘sectarianism’, ‘divisionism’, ‘genocide ideology’, i.e. offences consisting in questioning the facts relating to genocide and leading to ethnic animosity, which were vaguely defined in provisions of law and so easily used against political opponents. It was also a common practice that the judges, clearly unfamiliar with the idea of presumption of innocence, expressed their hostility towards the accused demanding their active defense with the result of shifting the burden of proof to the accused. h) protection against double jeopardy Until 2008 art. 93 of the Organic Law No. 16/2004 could be interpreted as allowing to procede with a case at Gacaca when it had already been adjudicated by the conventional court. This provision was amended in 200821 and although the intention of the amendment was clear (as least to lawyers) Gacaca judges still expressed doubts. Even though Gacaca judges were reminded of the meaning og the double jeopardy rule, it has been reported that it was on numerous occasions clearly violated leading to situations where the accused found innocent by the conventional court (or other Gacaca court) were later convicted and sentenced to long-term imprisonment by Gacaca court. 4. Who is to blame? In fact most inconsistencies of Gacaca’s proceedings with fair trial standards result from delegating administration of justice in serious criminal matters to lay judges and failing to provide them with a thorough training. Gacaca was meant as an African solution to African problems. In coping with Rwanda’s violent past it applied methods characteristic to traditional dispute resolution originating in Rwanda. This tie to the tradition was reflected in entrusting the judicial powers to judges elected by the community. It was supposed to give the community a sense of participation in delivering justice, a sense of ownership. Moreover, Gacaca was based on the idea of justice focusing on retrieving social harmony rather than handing out adequate punishment. Restoring social coherence was conditional upon participation of members of the community. Administration of justice was delegated to members of the local community, where the atrocities took place. They acted as judges, active participants of discussion aiming at establishing truth about the genocide and parties of the reconciliation process. The Seat (a judicial body of Gacaca) consisted of 7 persons of integrity (judges) and 2 depu22 ties . The judges in each Gacaca court were elected by the General Assembly from among its members (in case of Gacaca Court of the Cell – the General Assembly consisted of adult members of the local community). The judges generally held all powers of conventional criminal judges, with the most important being delivering judgments, thus deciding on criminal liability of the accused and imposing punishment, including long-term imprisonment. The judges convened and presided over Gacaca sessions, decided on liability for refusing to testify and slanderous denunciation23 and on holding the hearings in camera24, they summoned and questioned witnesses, received evidence and testimonies, received confessions and guilt plea, categorized the accused 25, ordered and carried out a search of or to the defendant’s, decided on taking temporary protective measures against the accused property, summoned the Public Prosecutor to give explanatory information on the files it has investigated, issued summons to the alleged offenders and ordered detention or release on parole.26 In case of Gacaca Court of the Sector and Gacaca Court of Appeal the 434 | judges also examined appeals27. The requirements for a candidate to a Gacaca judge generally referred to their moral standing and not education nor experience in legal matters. Anyone could become a Gacaca judge if he or she: − was at least 21 years old; − has not participated in genocide; − was free from a spirit of sectarianism; − has not been sentenced to a penalty of at least six months of imprisonment; − was of high morals and conduct; − was truthful; − was honest; − was characterized by a spirit of speech sharing; − has not been a genocide suspect28. A person was ineligible to hold a position in the Seat if any of the negative prerequisites was met29: exercising a political activity, being in charge of centralized or decentralized government administration, being a soldier or a policeman in active service, being a career magistrate, being a member of the leadership of a political party. In practice also possessing formal legal education disqualified from occupying a position of a Gacaca judge. Finally, there were 170.000 Gacaca judges, most of which at the level of the cell possessed middle education and at the level of sector – higher education (Clark, 2010, p. 76). 35 % of Gacaca judges were women (Mibenge, 2004, p. 413). Gacaca judges were given short training prior to taking up the office. The training sessions organized in 2002 comprised of 36 hour course on basic principles of Gacaca law, group management, judicial ethics, conflict resolution, trauma, human resources, equipment and financial management (Amnesty International, 2002, p. 26). The trainings must be considered insufficient considering the gravity of crimes adjudicated at Gacaca and responsibility rested on the judges. All major NGO’s observing Gacaca proceedings agree on this point: • ‘Amnesty International questions the adequacy of this training for the majority of gacaca judges who have no legal or human rights background. Amnesty International is concerned that this training will not enable them to competently handle the cases brought before them, given the complex nature and socio-political context of the crimes committed.’ (Amnesty International, 2002, p. 26) • ‘Given the low education and literacy levels of many judges, and the complexities and ambiguities of the gacaca law, it is difficult to see how such training could have been sufficient to prepare the judges to decide genocide-related cases.’ (Human Rights Watch, 2011, p.66) • ‘With such a challenging task, and their legitimacy as judges based solely on their integrity, it was inevitable that some would face accusations of bias.’ (Penal Reform International, 2010, p. 31) Although the initial trainings were repeated and supplemented with manuals provided by the Supreme Court of Rwanda, and later with additional training sessions and instruction booklets by the SNJG, all these efforts - usually confined to individual procedural issues - did not answer the problem. Neither did the possibility given to the judges to seek assistance from legal experts appointed by the SNJG30. | 435 Unprofessional and poorly trained Gacaca judges31 were unprepared to apply law which resulted in denying the accused their basic rights guaranteed in law. ‹Despite the faith placed in them by ordinary Rwandans, reports of the Penal Reform International revealed that many Inyangamugayo32 remained unsure about a number of significant legal concepts, including that of intent – the understanding of which has been crucial in judging genocide crimes. As a result, Penal Reform International has reported that many heavy jail sentences were handed down without any proof of intent, and has argued that this uncertainty has been prejudicial to the fairness of trials.’ (Penal Reform International, 2010, p. 32)33 The judges on occasions failed to provide motives for the judgments, applied different standards of proof and violated the rules on summoning. The criteria for categorization of the accused were not uniformly applied in all Gacaca jurisdictions (Human Rights Watch, 2011, p.66). This could result in changing the forum for adjudicating a case from a conventional court to Gacaca court and cause substantial differences in sanctions applied for analogous acts. Lacking understanding of their judicial powers the judges were susceptible to pressure from state or local officials. As a result the judges intentionally violated rules of procedure, for instance by failing to summon the accused or deliver release order in cases of acquited detainees. Human Rights Watch also reports incidents of intimidation of judges (Human Rights Watch, 2011, pp. 92, 110). The judges worked on voluntary basis. They were generally covered by the national health insurance and in 2007 they received one-time financial (an amount equal to app. $7) and in kind (a radio and a bicycle) remuneration (Human Rights Watch, 2011, p. 68). As a consequence, corruption was widespread. 35 % of Gacaca judges were removed from the office for accepting or demanding bribes (Human Rights Watch, 2011, p. 68). In his report of 2008 the Rwandan Ombudsman points that judiciary is the second most corrupt state institution in Rwanda (Human Rights Watch, 2011, p. 106).34 Gacaca judges were members of small communities where the atrocities being later adjudicated at Gacaca took place. They often knew the victim or the accused or even had a family relationship with one of parties (which constituted grounds for disqualification of a judge from the proceedings, but has not always been the case) (Human Rights Watch, 2011, p. 105). As a result they were personally involved. This, on occasions, affected their approach to the accused and victim, leaving doubts as to their impartiality (Human Rights Watch, 2011, pp. 104-105). A negative approach to the accused also resulted in assigning guilt to the accused at the beginning of the trial, requiring him/her to defend, thus undermining the presumption of innocence rule. Cases were also reported of judges removed from the office for their participation in genocide (Penal Reform International, 2010, p. 32). In sexual violence cases the fact that the judges came from the same community as the victim sometimes discouraged the latter from reporting cases and testifying. The judges lacked the authority usually associated with professional judges, which made it more difficult for the victims to talk about sensitive issues, such as rape35, before the Seat. Despite focusing the trainings on cases of sexual violence, in some cases the judges did not know how to handle the hearing and show respect for the traumatized victims (Human Rights Watch, 2011, p. 114). The fact that the responsibility for inadequate protection of the rights of the parties to trial rests on the judges is reflected in diversity of criticism expressed in communities across Rwanda (Human Rights Watch, 2011, p. 131). In different parts of country, different level of adherence to fair trial standards and respect for the parties’ rights have been reported. As the judges in fact applied the same legal provisions, this shows the influence of judges’ personality, moral standing and individual preparation on the quality of justice delivered by Gacaca 36. 436 | ‘The impact of judges’ actions on the quality and outcome of Gacaca trials cannot be underestimated. Fair trials depended on their capacity to interrogate and cross-examine defendants and witnesses, to confront them, to distinguish between direct and hearsay evidence, as well as false testimony from the truth, and to convince a reticent or apprehensive witness to speak. Often, records of previous hearings were inadequately kept or were not available, which meant judges relying only on their memory of what had been said. The judges’ ability to motivate and ‘hold’ their audience over a protracted period also played a vital part in the search for the truth, and in avoiding miscarriages of justice.’ (Penal Reform International, 2010, p. 31) It may be said that what was supposed to make Gacaca a product acceptable for all by its reference to traditional forms of dispute resolution familiar to most Rwandans, became the cause of its problems. It is the lay judges, managing Gacaca sessions, whose activities could mitigate the effects of faults inherent in Gacaca, often contributed to the degradation of Gacaca’s significance as a mechanism for delivering justice. 5. The idea of proportionality in application of fair trial standards test in case of transitional justice mechanisms It is hardly arguable that the proceedings before Gacaca complied with fair trial standards. The fact that this, to a large extent, is due to incompetency of the judges dealing with genocide cases (which in itself constitutes infringement of fair trial standards) and not the legislation regulating Gacaca itself, does not really alter this conclusion. However, Gacaca’s role was not limited to prosecution of genocide perpetrators. Gacaca was a complex transitional justice mechanism, a hybrid system combining not only different aims and functions but also different methods of social reconstruction. Generally, all transitional justice systems aim at bringing justice, reconciliation and revealing the truth about human rights infringements. In case of Gacaca, P. Clark also adds to these fundamental objectives: peace, healing, forgiveness (which together with the previous three form – what he calls – profound objectives of Gacaca), processing the backlog of genocide cases, improving living conditions in jails and facilitating economic development (the pragmatic objectives of Gacaca) (Clark, 2010, p. 32). Depending on the political, social and economic climate in the state dealing with transition one of these objectives (truth, justice, reconciliation) becomes the leading idea behind the system and is supported but also modified by the remaining objectives. Thus, when transition is generally based on the operation of a truth (and reconciliation) commission, prosecution of individual perpetrators is also carried out to a limited extent (avoiding undermining of the work of the commission which usually offers amnesty in exchange for truth) and additional compensation programs are implemented. When transition is to result from criminal proceedings, elements characteristic to truth commissions, such as far-reaching participation of the society in the proceedings, storytelling and amnesty, are reflected in the rules of procedure. As a consequence, criminal proceedings used within the context of transitional justice system should not be assessed by the same rules as criminal justice systems in usual domestic circumstances. They are not only convened in order to hear extraordinary cases (such as genocide and crimes against humanity) but also serve other, more complex, purposes than conventional, domestic criminal courts. ‘In so far as it touches upon sui generis considerations of transitional justice, extraordinary international crime materially differs from ordinary common crime.’ (Drumbl, 2010, p.308) As a result, accepting generally that the fairness of criminal proceedings obtained through safeguarding fair trial rights of the parties to the trial should be the ideal state to be pursued by | 437 any criminal justice institution, when dealing with criminal proceedings constituting transitional justice mechanism, I suggest accepting limitations to these rights when they facilitate other goals than prosecution and are proportionate. The concept of proportionality in the application of human rights is not new. Although not expressly mentioned in the European Convention on Human Rights and Fundamental Freedoms37, it has been exploited in the work of the European Court of Human Rights (‘ECHR”) (McBride, 1999, p. 23) when dealing with the so-called ‘qualified rights’38. The proposed implementation of the concept of proportionality in case of limitations to certain aspects of fair trial rights is definitely bolder and more far-reaching. Indeed, the analogy with the idea of proportionality in the ECHR case-law is quite distant. Like in case of the proportionality principle applied by the ECHR, the implementation of the concept in the execution of fair trial rights in transitional justice institutions would be based on balancing the interests of one of the parties to the trial (usually the accused) against the interests of the reconciling society. Unlike in the case of the ECHR approach, proportionality in the transitional justice context would be applied to procedural (and not substantive) human rights and most importantly it would likely effect (like in the case of Gacaca) in denial of particular fair trial rights39 and not only their limitation (like the right to a counsel). Although the above proposition might be seen controversial, it is still worth considering. Most transitional justice systems, as mentioned above, are based on the idea of harmonizing different, often conflicitng, objectives, most importantly the administration of retributive justice (punishment) and reconciliation. The search for an unequivocal assessment of such systems demands a less dogmatic application of assessment criteria than in case of conventional systems applied in ‘normal’ domestic situation, allowing for certain concessions. Expecting such systems to comply with the standards of fair trial to the extent required in case of conventional, domestic criminal courts does not appropriately consider the extraordinary character of transitional justice, and demand for such compliance is simply unreasonable. It is also raised that ‘sometimes the international due-process demands are asymmetrical to the demands of justice’ (Apuuli, 2009, p. 22). This, considerimg the extraordinary character of such mechanisms, may be equally applied to, other than international, transtional justice systems. Such opinions are substantiated by examples of cases, where due to fair trial concerns commonly known perpetrators of genocide or crimes against humanity escape justice (Apuuli, 2009, p. 22).40 The application of the concept of proportionality of limitations to fair trial in the context of transitional justice seems in some cases inevitable. Considering the impossibility of full compliance of transitional justice system with fair trial standards, the other options to handle the issue of compliance with fair trial rights in the transitional justice circumstances are to resign from the application of fair trial test altogether or to abandon the idea of prosecution of genocide suspects. The first option could be harmful for the parties to such proceedings (especially the accused) and for this reason the concept of proportionality could serve as a safety valve from arbitrary infringment of fairness of the proceedings. On the hand withdrawing from prosecution of genocide suspects may be, in certain situations (like in the case of Rwanda), unacceptable, leading to denial of justice to the victims and questioning the principle of rule of law. Although this approach, implementing the idea of restorative justice, has been taken in numerous states dealing with gross human rights violations and the need for transition41, it would not work in all cases, and it would - most likely - not work in the case of Rwanda.42 Referring to a ruling of the UK High Court of Justice, in which the court denied the extradition of four genocide suspects to Rwanda due to fair trial concerns with the Rwadan judiciary Drumbl points out: ‘If broader goals of reconciliation and transitional justice entered the decision-making matrix in cases of the extradition of suspected génocidaires to their home states, some space 438 | might emerge for compromise regarding the arguably inflated value of strict due process. ( ) Ultimately, it may be helpful to devlop new rules for the game for state-to-state exradition in cases of extraordinary international crimes. These might emerge from within the fair trial principle (…) or, perhaps more radically, by contextualizing the fair trial principle (i.e. by infusing transitional justice concerns into the applicable legal standards).’ (Drumbl, 2010, pp.308-309). Drumbl’s opinion is in fact in lines with the above argumentation as it reflects the need for a different approach to adherence to fair trial standards in case of transitional justice mechanisms. Gacaca was a criminal justice institution operating in the context of transitional justice. One of its objectives was the administration of (retributive) justice. But, as mentioned above, Gacaca was also to reconcile the society and enable fractured communities to rebuild. Thus, it was a multifaceted and extraordinary institution.’Tens of thousands of people participated in the genocide and, therefore, it is not practical to deal with this situation using traditional orthodox style prosecution.’ (Apuuli, 2009, p. 24) 43. Applying the abovementioned proportionality test to proceedings before Gacaca and their compliance with fair trial standards, I argue that the denial of the right to a counsel is justifiable as it facilitates Gacaca’s goals other than prosecution, especially reconciliation, and it is in fact proportionate. Such a serious departure from the fair trial rules was justified by the need to build a direct relation between the accused on one hand and the victim, and the community as a whole on the other. This was supposed to ensure authenticity of the reconciliation process. Gacaca put emphasis on storytelling thus convergng to truth and reconciliation commission. Providing information on the participation of the accused in the atrocities was the essence of the Gacaca proceedings. Personal participation in the process, undistracted by the presence and actions of an intermediary in a form of a legal counsel was supposed to enhance authenticity of the reconciliation process (Clark, 2010, p. 83). Allowing participation of counsels in court sessions would have lead to questioning of sincerity of story told by the accused, making it more susceptible to rejection by the reconciling community. Inclining people (and the victim) to believing in the story of the accused and his guilty plea conditioned reconciliation and forgiveness. Legal assistance was provided to the accused by NGO’s operating in Rwanda and monitoring observation of human rights at Gacaca. For instance Penal Reform International in cooperation with Belgian government and European Commission implemented a program consisting in conducting of awareness-raising sessions by paralegals44 for the detainees awaiting trials. ‘The sessions covered modules such as arrest, pre-trial detention, and trial procedures. Emphasis was placed on preparing detainees to help and represent themselves by role-playing applications for release, cross-examination and pleas in mitigation.’ (Penal Reform International, 2012, p.5)45 On the other hand, what caused Gacaca’s noncompliance with fair trial standards to the extent that it may no longer be considered proportionate was the failure to ensure competent judicial body to hear genocide cases, at least by providing the Gacaca judges with adequate training. It was unproportionate because it triggered an avalange of Gacaca’s failures, as all the remaining fair trial deficiencies, with the exception of denial of the right to legal counsel, were simply consequences of this failure. Thus, entrusting administration of justice to lay judges, who were also not provided with in depth training – unlike denial of the right to legal counsel - resulted in undermining the idea of Gacaca as a fair forum to adjudicate genocide suspects. | 439 6. Conclusions The failure to ensure the fairness of the proceedings before Gacaca results to a large extent from one factor, being in itself a breach of the right to fair trial, i.e. the lack of professionalism or even adequate training of the judges. This shows that the most important issue in designing a judicial system is ensuring appropriate level of competence of the judges. If Rwanda intended to rely on its traditional forms of dispute resolution and delegate administration of justice in serious criminal matters to lay judges, promoting the idea of ‚justice without lawyers’, it should have ensured proper training of the judges (if providing 170.000 professional lawyers was impossible considering scarce financial and staff resources). The state-orchestrated Gacaca differed substantially from its traditional prototype46. Unlike the traditional gacaca which heard civil law cases (including disputes over property and family matters), this was a system regulated in legal provisions and established to deal with criminal liability of the accused and impose severe punishment. This distinction should have caused the authorities to pay more attention to training of individual judges instead of repeatedly revising the number of judges in the Seats47. It may be claimed that if Rwanda was more willing to accept international assistance in shaping its domestic system of transitional justice by allowing broader participation of international or non-governmental actors in preparation of judicial staff, which could result in better application of law and fair trial standards, Gacaca would be more likely to gain international recognition. This argument may be seen in a broader context of judiciary: better trained judges are inclined to deliver better quality of justice. This brings us to the conclusion that delegation of judiciary powers to competent professionals is a condition sine qua non of real implementation of the remaining fair trial standards. It indicates the importance of ensuring well prepared staff for administration of justice not only in case of transitional justice mechanisms but also conventional justice systems. It shows that no matter how well fair trial rights are safeguarded in provisions of law, poorly trained judges will impair the fairness of any proceedings. Finally, critical analysis of the data provided by international NGO’s referring to incidents of violations of fair trial rights during Gacaca proceedings should also consider that there were 1,127,706 cases adjudicated by Gacaca in the period of 12 years48. To compare, in Poland, during a period of 10 years (2002-2011) less then 24,000 of criminal cases were brought to courts (including delinquencies).49 It may thus be argued that the high frequency of incidents of violation of fair trial standards in Gacaca proceedings may to some extent result from the large number of cases adjudicated by these courts in a short period of time. Nevertheless, it is questionable whether fair trial standards could provide a sole perspective of Gacaca’s assessment and non-compliance could result in denial of its role in transition of the Rwandan society. Analysis of Gacaca only from the perspective of a criminal justice and fair trial standards is one-sided and incomplete. ‘While most commentators – especially those from human-rights groups such as Amnesty International and Human Rights Watch (…) - consider justice and the protection of human rights as the primary lens through which to interpret and analyse gacaca, they define justice in a very particular fashion. The form of justice that most commentators employ when analysing gacaca is formal in method and deterrent in outcome. Regarding the formal nature of this version of justice, the dominant discourse on gacaca draws on a long-standing tradition in Western philosophy that holds that justice should be a neutrally determined, universal virtue and free from all value-laden claims made by specific individuals and groups. The only way to achieve this neutrally-determined justice, according to this view, is to follow predetermined principles and procedures. In the con- 440 | text of gacaca, formal justice required that the modalities of the institution adhere to commonly accepted percepts of due process, such as requiring defendants to have access to legal counsel of their choosing and for cases to be heard by a neutral, disinterested judiciary.’ And later he points out: ‘The dominant discourse [focusing on Gacaca’s objective to pursue retributive justice] fails to account for the hybrid nature of gacaca and the hybrid methods and objectives it embodies.’ (Clark, 2010, pp. 92 – 97). Gacaca was designed to administer justice, but as P. Clark argues, its ultimate aim was restorative justice (Clark, 2010, p. 238), thus allowing victims and perpetrators to rebuild relationships (Clark, 2010, p. 38)50. He points out that: ‘through most of its phases, gacaca has not functioned exclusively ‘according to the logic of criminal trials’ but rather has displayed a hybridity of the retributive and restorative functions and has contributed to rebuilding fractured bonds.’ (Clark, 2010, p. 255) References Apuuli, K. P. (2009) Procedural due process and the prosecution of genocide suspects in Rwanda. Journal of Genocide Research (2009), 11 (1), March, pp. 11-30; Clark, P. (2010). The Gacaca Courts. Post Genocide Justice and Reconciliation in Rwanda. Justice without Lawyers. New York. Cambridge University Press; Drumbl, M.A. (2010) Prosecution of Genocide v. the Fair Trial Principle. Comments on Brown and others v. The Government of Rwanda and the UK Secretary of State for the Home Department. Journal of International Criminal Justice. 8 (2010), pp. 289-309; McBride, J. (1999) Proportionality and European Convention on Human Rights. [in:] Ellis, E. The Principle of Proportionality in the Laws of Europe. Hart Publishing, 1999; Mibenge, C. (2004). Enforcing International Humanitarian Law at the National Level: The Gacaca Jurisdiction of Rwanda. Yearbook of International Humanitarian Law vol. 7, 2004, pp. 410-424; Amnesty International (2002) Gacaca: a question of justice. AI Index: AFR 47/007/2002. Available at: < http://www.amnesty.org/en/library/info/AFR47/007/2002 >; Human Rights Watch (2011) Justice Compromised. The Legacy of Rwanda’s Community-Based Gacaca Courts <http://www.hrw.org/sites/default/files/reports/rwanda0511webwcover.pdf >; Penal Reform International (2010) Eight Years On... A Record of Gacaca Monitoring in Rwanda. <http:// www.penalreform.org/publications/eight-years-ona-record-gacaca-monitoring-rwanda >; Penal Reform International (2012) Paralegals in Rwanda. A Case Study by Penal Reform International. < http://www.penalreform.org/publications/paralegals-rwanda-case-study >; United Nations Security Council Resolution 95 (1994) of 8 November 1994 on Establishment of an International Tribunal and Adoption of the Statute of the Tribunal; Organic Law No. 08/96 of 30 August 1996 on the Organization of Prosecutions for Offences constituting the Crime of Genocide or Crimes against Humanity committed since October 1990; Organic Law No. 16/2004 of 19 June 2004 Establishing the Organization, Competence and Functioning of Gacaca Courts Charged with Prosecuting and Trying the Perpetrators of the Crime of Genocide and Other Crimes Against Humanity, Committed Between October 1, 1990 and December 31; Organic Law No. 13/2008 of 19 May 2007 Modifying and Complementing Organic Law No. 16/2004 of 19/6/2004 Establishing the Organization, Competence and Functioning of Gacaca Courts Charged with Prosecuting and Trying the Perpetrators of the Crime of Genocide and other Crimes against Humanity Committed between October 1, 1990 and December 31, 1994 as Modified and Complemented to Date; Organic Law No. 33/2001 of 22 June 2001 Setting Up Gacaca Jurisdiction and Organizing Prosecutions for Offences Constituting the Crime of Genocide or Crimes against Humanity Committed between | 441 October 1, 1990 and December 31, 1994; African Commission on Human and Peoples’ Rights. Dakar Declaration and Recommendations on the Right to a Fair Trial in Africa, 9-10 September 1999; UN Human Rights Committee. Consideration of Reports Submitted by State Parties Under Article 40 of the Covenant, Concluding Observations of the Human Rights Committee. CCPR/C/RWA/CO/2 of 7 May 2009; Law No. 13/2004 22 April 2006 relating to the Code of Criminal Procedure; International Covenant on Civil and Political Rights of 16 December 1966; The 9th and 10th Periodic Report of the Republic of Rwanda under the African Charter on Human and Peoples’ Rights. July 2009, http://www.achpr.org/files/sessions/47th/state-reports/9th10th-2005-2009/staterep9and10_rwanda_2009_eng.pdf; The Ministry of Justice. Statistical Analysis of the Justice System in Years 2002-2011. Warsaw 2012; European Court of Human Rights: Hertel v. Switzerland of 25 August 1998. case No. 59/1997/843/1049; International Criminal Tribunal for Rwanda. Prosecutor v. Jean-Bosco Bayaragwiza, case No. ICTR-97-19; UK High Court of Justice, Brown, Munyaneza, Nteziryyayo, and Ugirashebuja v. The Government of Rwanda and the Secretary of State for the Home Department, case No. CO/8862/2008 [2009] EWHC; http://data.worldbank.org., (Accessed 19 May 2013). (Endnotes) 1 In the retributive sense. 2 In 1994 the gross national income (GNI) in Rwanda amounted to 160 US $, which was twice less than a year before and 166 times less than in Germany at that time and 17 times less than in Poland (source: World Bank databases: http://data.worldbank.org/) (Accessed 19 May 2013). 3 United Nations Security Council Resolution 95 (1994) on Establishment of an International Tribunal and Adoption of the Statute of the Tribunal of 8 November 1994. 4 The Organic Law No. 08/96 of 30 August 30 1996 on the Organization of Prosecutions for Offences constituting the Crime of Genocide or Crimes against Humanity committed since October 1990 (the ‘Organic Law No. 08/96’). The law was later replaced with the Organic Law No. 16/2004 of 19 June 2004 Establishing the Organization, Competence and Functioning of Gacaca Courts Charged with Prosecuting and Trying the Perpetrators of the Crime of Genocide and Other Crimes Against Humanity, Committed Between October 1, 1990 and December 31, 1994 (the ‘Organic Law No. 16/2004’), amended most importantly by the Organic Law No. 13/2008 of 19 May 2007 Modifying and Complementing Organic Law No. 16/2004 of 19/6/2004 Establishing the Organization, Competence and Functioning of Gacaca Courts Charged with Prosecuting and Trying the Perpetrators of the Crime of Genocide and other Crimes against Humanity Committed between October 1, 1990 and December 31, 1994 as Modified and Complemented to Date (the ‘Organic Law No. 13/2008’). 5 The Organic Law No. 33/2001 of 22 June 2001 Setting Up Gacaca Jurisdiction and Organizing Prosecutions for Offences Constituting the Crime of Genocide or Crimes against Humanity Committed between October 1, 1990 and December 31, 1994. 6 Such as prosecution, truth and reconciliation commissions, lustration. 7 Gacaca is thus also classified as a participatory justice system. 8 However, to a great extent adapted to deal with criminal cases on behalf of the state. 9 This description reflects the structure of Gacaca Courts of the Cell. 10 African Commission on Human and Peaoples’ Rights. Dakar Declaration and Recommendations on 442 | 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 29 30 31 32 33 34 35 36 37 38 39 the Right to a Fair Trial in Africa. 9-10 September 1999. UN Human Rights Committee. Consideration of Reports Submitted by State Parties Under Article 40 of the Covenant, Concluding Observations of the Human Rights Committee. CCPR/C/RWA/CO/2. 7 May 2009: ‘While acknowledging the serious problems confronting the State party [Rwanda], the Committee notes that the gacaca system of justice does not operate in accordance with the basic rules pertaining to the right to a fair trial, particularly with regard to the impartiality of judges and the rights of the accused.’, p. 4. There are 167 parties to the Covenant, including Rwanda, which indicates its widespread recognition and makes it the most suitable source of standards for the purpose of assessment of Gacaca. There were, however, individual cases, when the Gacaca court approved participation of a legal counsel in the proceedings. (Human Rights Watch, 2011, p. 28). Art. 82 of the Organic Law No. 16/2004, op.cit. and art. 122 of the Law No. 13/2004 of 22 April 2006 relating to the Code of Criminal Procedure (‘Criminal Procedure Code’). Art. 66 of the Organic Law No. 16/2004. Art. 155 of the Criminal Procedure Code. Art. 144 of the Criminal Procedure Code. Art. 29 of the Organic Law No. 16/2004. State authority supervising operation of Gacaca. The Human Rights Watch also points out to the pressure put on the accused to apply for the plea bargaining procedure. The numerous advantages given to the accused who decided to engage in the procedure, including better prison conditions, were to encourage the detainees to plea guilt. Art. 24 of the Organic Law No. 13/2008. At the beginning there were 19 judges, then 9 and since 2008 – 7 (art. 4 of the Organic Law No. 13/2008). Art. 29 of the Organic Law No. 16/2004. Art. 21 of the Organic Law No. 16/2004. Art. 34 of the Organic Law No. 16/2004. Art. 39 of the Organic Law No. 16/2004. Art. 35 and 36 of the Organic Law No. 16/2004. Art. 14 of the Organic Law No. 16/2004. Art. 15 of the Organic Law No. 16/2004. Art. 26 of the Organic Law No. 16/2004. There were also other causes of infringement of the rights of the accused like extremely limited financial resources. Gacaca Judges. Similarly: Human Rights Watch, 2011, pp.70-71. Referring to the Annual Activity Report 2008 of the Office of the Ombudsman of July 2009. The rape victims were often stigmatized in the past. Similarly: Penal Reform International, 2010, p. 31. The European Convention on Human Rights and Fundamental Freedoms of 4 November 1950. The limitations of which are acceptable on certain conditions. Whereas in the case-law of the European Court of Human Rights the interference with the substance of the right is considered unproportionate (e.g. Case: Hertel v. Switzerland of 25 August 1998). | 443 40 The ruling of the International Criminal Tribunal for Rwanda. Prosecutor v. Jean-Bosco Bayaragwiza, case No. ICTR-97-19; Drumbl, 2010: the UK High Court of Justice. Brown, Munyaneza, Nteziryyayo, and Ugirashebuja v. The Government of Rwanda and the Secretary of State for the Home Department, case No. CO/8862/2008 [2009] EWHC. 41 For example: the Republic of South Africa, Peru, Argentina, East Timor, Maroco. 42 The decision to prosecute the perpetrators of genocide in Rwanda was made with consideration of the historical, political and social circumstances. Although it would be much easier and probably cheaper to establish in Rwanda another reconciliation commission, it has been concluded that in Rwanda reconciliaiton and transition is impossible without prosecution. 43 But the author later concludes: ‘But whether post-mass atrocity societies adopt retributive or restorative mechanisms, it is imperative that the process adhere to due-process rightoves, which are neither excessive for the prepetrators and victims. This is because such societies are fragile and therefore, the perception of justice is often as important as its delivery.’ 44 Paralegal, in this case, is a person possessing basic legal knowledge and legal skills but not a qualified lawyer. 45 The assistance provided was however limited and did not answer to the real needs. The paralegals program described above was conducted for a period of a year, between October 2009 and October 2010, and was operated by only 10 paralegals working in 5 detention centers in Rwanda with app. 3000 detainees. Within that period 7300 brochures were distributed. 46 The formalized Gacaca uses elements of the traditional system present in different historical periods. 47 In accordance with the Organic Law No. 40/2000 there were 19 judges in the Seat. This was later changed to 9 judges and 5 deputies in the Organic Law No. 16/2004, and again to 7 judges and 2 deputies in the Organic Law No. 13/2008. 48 The 9th and 10th Periodic Report of the Republic of Rwanda under the African Charter on Human and Peoples’ Rights, 2009. 49 The Ministry of Justice, 2012, p. 10. 50 Clark further elaborates on this issue saying: ‘In the case of mass crimes such as genocide, restorative justice views the reconciliation of individual perpetrators and survivors and of the entire communities as the ultimate objective.’ 444 | Michał Indan-Pykno Nicolaus Copernicus University Changes of the Polish law and Polish case-law due to implementations of the judgements of the European Court of Human Rights in Strasbourg by Poland Abstract This paper is devoted to the problem of changes of the Polish law and Polish case law as an effect of execution of European Court of Human Rights` judgments. Especially, in human rights law each member of the Convention is responsible to execute the Strasbourg`s verdict as quickly as possible. We are aware of the fact that execution of ECHR`s verdict is not only the payment of just satisfaction for the applicant. The execution of ECHR judgments is much more; it connects with law reform. This aspect of execution of judgments will be in my paper the most important and crucial. European Court of Human Rights issued a thousands of verdicts against Poland, in which Tribunal indicated which domestic legal regulations infringed the Strasbourg`s standards in human rights. In my paper I will focus on the problem of reforms in domestic law, which were conducted in the past as a result of execution of ECHR judgments and also this changes in law which will occur in the near future. Keywords: European Court of Human Rights judgments, execution of ECHR judgments, temporary arrest, father`s rights, European Convention of Human Rights. 1. Introduction This article is to present the amendments of the Polish law, which took part due to implementation of the judgements of the European Court of Human Rights in Strasbourg (further: the Court or ECtHR). When Poland ratified the Convention on Protection of Human Rights and Basic Freedoms1 (further: Convention or European Convention) it undertook to ensure each person being under its jurisdiction to secure its rights and freedoms included in the Convention and Additional Protocols2. Furthermore, Poland undertook to implement the judgements of the Court (which result also from the construction of the liability arising from international law, but also from the content of Art. 46 of Convention, mentioned further). The Convention foresees that the judgement may impose both individual and general measures on the responding state. Whereas individual measures most often are of pecuniary form – it is just satisfaction (so-called restitutio in integrum), regulated in Art. 41 of ECHR. According to the body of Art. 41 of the Convention, if the Court finds that there has been a violation of the Convention or the Protocol, if the internal law of the High Contracting Party concerned allows for only partial reparation to be made, the Court shall, if necessary, afford a just satisfaction to the injured party. General measures are actions taken by public authority to adjust Polish provisions of law to the Strasbourg standards and possible changes of the case-law which shall result in respecting the standards, developed by the Court. In particular, in my article I shall discuss the changes initiated pursuant to the judgements of the European Court of Human Rights in Polish Republic, and shall also present chosen category of cases, in which Polish state does not implement the judgement of ECtHR or it treats the implementation of mentioned judgements of ECtHR conservatively. The issue of implementing of judgment of ECtHR in the last ten years has been the key is- | 445 sue to Strasbourg system. Until Protocol No. 14 has come into force this element of Strasbourg procedure was of crucial importance and it was noticed both by the judges of the Court and by the representative of the sentence. Protocol No. 14 introduced a significant amendment in the scope of implementing of ECtHR judgement. Pursuant to mentioned Protocol, the Article 46 of the Convention was reworded and it currently says: “subparagraph 1) The High Contracting Parties undertake to abide by the final judgment of the Court in any case to which they are parties3”. From the very beginning of creating the Strasbourg system, the authority supervising the implementation of judgements has been the Committee of Ministers of the Council of Europe. Its competences include “the supervision of execution of the final judgements of the Court4”. The execution of judgements by the European Court of Human Rights is more and more frequently present in the judgements of the Constitutional Tribunal, the Supreme Court and the common courts who, in their decisions underline the significance and importance of the ECtHR judgements and standards resulting thereof, for the judgements of Polish Courts. As stated by the Constitutional Tribunal in its judgement of 11th December 2012: „it should be noted here that the necessity to take into consideration the existence of ECtHR judgments in the course of actions of internal authorities obliges the Constitutional Tribunal as well to apply - within constitutional control - the principles and methods of interpretation leading to mitigation of possible collisions between standards resulting from applied Polish law and those shaped by ECtHR (see: judgement by the CT of 18th October 2004, reference no. P 8/04, OTK ZU No. 9/A/2004, item 92, point III 2.4.), as well as adopting such evaluation so as to take into account the standards developed in the ECtHR’s judgements, on the grounds of the Convention for the Protection of Human Rights and Fundamental Freedoms in their fullest scope 5”. It should be indicated that the courts and tribunals in the Republic of Poland should be obliged to implement the judgements of the Court not only in the Polish cases, but also in judgements issued for other states, if they relate to the same legal issue. The above opinion was expressed by the Constitutional Tribunal in its judgement of 19th July 2011: „The Constitutional Tribunal, in this case, shares the opinion from the judgement by CT of 18th October 2004, in the case no. P 8/04, that the necessity to take into consideration the existence of ECtHR judgments in the actions of internal authorities obliges the Constitutional Tribunal as well to apply - within constitutional control - the principles and methods of interpretation leading to mitigation of possible collisions between standards resulting from applied Polish law and those shaped by ECHR (OTK ZU no. 9/A/2004, item 92, point 1II 2.4.). From this perspective, the Court assumes that the judgement in the case Vajnai v. Hungary is significant for the supervision of provisions questioned in the decided case. Although according to art. 46 of ECHR, the judgements by the ECtHR shall bind the state - a party to proceedings in a given case, third party states which are parties to the ECHR shall strive to shape the human rights protection system so as to include to the fullest possible scope the standards developed in the ECtHR’s judgements, on the grounds of ECHR. In the Interlaken declaration of 19th February 2010, which was to sum the High Conference on the Future of the European Court of Human Rights, Members States of the Council of Europe agreed that they shall take into account “the Court’s developing case-law, also with a view to considering the conclusions to be drawn from a judgement finding a violation of the Convention by another State, where the same problem of principle exists within their own legal system” (point B.4.c of the declaration). Therefore, bearing in mind the similarity of the Polish and Hungarian legal provisions, the Court considered the consequences of the ECtHR judgement for the assessment of the Polish regulation. The Court examined in particular whether art. 256 § 2 and 3 of the Penal Code criminalises behaviour related to symbols which may have many meanings, and whether this provision, due to its lack of preciseness is a threat to the freedom of speech6”. In this article, I shall discuss the key, most significant amendment of the Polish law, as well as case-law which took place as a result of judgements by the European Court of Human Rights in the 446 | Polish cases, in which a breach of rights and freedoms included in the Convention and the Additional Protocols was ascertained, and the mentioned cases are (were) crucial problems in the judgments of the Polish courts7. 2. Applying of detention on remand as a preventive measure by the Polish courts Preventive measure – detention on remand – which is regulated by the Code of Penal Procedure and applied by the courts, is one of the most common charges in the claims against Poland8. According to the wording of the Code, “detention on remand, as well as other preventive measures may be applied, is to secure the proper conduct of proceedings or to prevent a serious offence from being committed by the accused; furthermore, this measure is applied when there is a probability of commission of a crime by this accused9”. Among the cases against Poland in which the main charge is detention on remand, the following categories of cases can be distinguished: firstly, cases related to the length of detention on remand, secondly, cases related to applying the measure – detention on remand as a manner to elicit the disposition from the accused (the so called eliciting detention), thirdly, cases related to lack of control by the court of higher instance on the decisions to apply detention on remand towards the accused, and fourthly, cases related to indemnity for excessively long period of detention on remand. As results from the body of art. 258 of the Code of Penal Procedure, detention on remand may take place when: 1) there is good reason to suspect that the accused may run away or go into hiding, particularly, when his identity cannot be established or he has no permanent residence in the country, 2) there is good reason to suspect that the accused will induce others to give false testimony or explanations, or in some other manner attempt to obstruct criminal proceedings. According to art. 258 § 2 of the Code of Penal Procedure, if the accused has been charged with a crime or with an offence subject to a statutory maximum penalty of deprivation of freedom of a minimum of 8 years, or if the court of the first instance sentenced him to a penalty of deprivation of freedom of at least 3 years, the need to apply the detention on remand to secure the proper conduct of proceedings may be justified by the severe penalty threatening the accused. The last situation when detention on remand is admissible is the situation when there is a good reason to suspect that the accused charged with a crime or an intentional offence will commit an act against life, health or public safety, particularly, if he threatens to commit such an offence (§3 art. 258 of the Code of Penal Procedure)10. Many times, practitioners of law and in particular legal counsels – defence counsels of the accused or suspected persons have underlined that the prerequisites to use the detention on remand are interpreted arbitrarily by prosecutors and the court (in particular, the fear of criminal collusion was very rarely properly justified both by the prosecutors and the court). However, the voices and demands of the bar remained unanswered until the European Court of Human Rights underlined that it is difficult for the courts to preserve the correct proportions between the aim and measure in applying detention on remand. Also, both the prosecutors and court were criticised that their manner of reasoning presents a lack of respect for the principle of the assumption of innocence11. In the judgement Ambruszkiewicz v. Poland, the Court justly observed that “for the justification of the decision to arrest and place the applicant in detention on remand, the authorities called the need to guarantee the correct conduct of penal proceeding and in particular, the threat that the applicant will try to avoid the justice. There should be no doubts as to the fact that in particular circumstances, deprivation of freedom may be the only measure to secure the presence of the accused, especially due to his personality, type of committed crime, as well as severity of penalty. However, the reasons indicated by the authorities to justify the decision to apply the measure - deprivation of freedom - should indicate real circumstances related to the suspected person. In this case, however, the Court assessed that it is difficult to identify the circumstances confirming the risk of avoiding the justice, alleged to the accused. The Court notes that the applicant was detained right after the first hearing due to his leaving the court hearing without | 447 permission. However, neither the complexity of the case, nor the severity of the penalty threatening in case of being convicted - basic elements indicated by the Court in the justification to use detention on remand - cannot be the sufficient justification which could be used by the Court. Furthermore, in the applicant’s case, one cannot see any previous actions which could give rise to a suspicion that he would obstruct the conduct of proceedings. The Court notes also that in the discussed case, where the applicant was tried for slandering certain police officers and municipal officers in his residential area, the court dealing with the case had a particular obligation to act in such a way as to avoid any signs of partiality (mutatis mutandis, Kyprianou v. Cyprus [WI], No. 73797/01, § 127, ETPC-2005-…). In particular, the Court should have been particularly cautious in applying the measure - detention on remand - in relation to the applicant so that there would be no suspicions as to the lack of impartiality12. The European Court, in its judgements in the cases, among others: Kauczor13 and Kudła14 underlined that the arguments used to prolong the detention on remand are contrary to the Strasbourg standards. In particular the Court emphasized that there is no threat of obstructing the conduct of justice if the accused “only” does not plead guilty15. A numerous group of claims was related to the problem of lack of immediate recognition of claims related to decisions to apply preventive measure - detention on remand. This group of cases may include judgements in the cases: Baranowski16 and Włoch17. The last group of cases relates to indemnities for the unjust imposing of detention of remand. In most claims, the Court indicated that Poland breaches the standards when the applying of detention on remand is concerned. The effect of the mentioned judgements was an attempt to take up actions aimed at changing of the law. Notifying the widespread problem of the use of detention on remand, the executive authorities took up numerous actions with the aim to change the law, as well as the case-law. For that purpose, several amendments to the Code of Penal Procedure of 2000 and 2007 were made. The 12th January 2007 Act18 changed the wording of §4 art. 263 of the Code of Penal Procedure. This consisted in deleting a prerequisite for extending detention on remand, and which allowed for an extension for reasons of other material obstacles, whose removal was impossible19. The law of 2000 indicated anew maximum time of applying of detention of remand by the court of the first instance proper for hearing the case. This court may extend the detention on remand to a maximum period of 12 months20. Also § 4 art. 263 of the Code of Penal Procedure was changed and it says that only the Appellate Court may prolong the applying of detention on remand to a time longer than the period mentioned in §2 and 3 art. 263 of the Code of Penal Procedure. Lately, the Constitutional Tribunal on 28th November 2012 recognised that art. 263 § 7 of the 6th June 1997 Law on the Code of Penal Procedure (Journal of Laws 89, item 555, as amended) in the scope in which it does not unambiguously define the conditions to prolong the detention on remand after issuing by the Court of first instance the first judgement in the case, is incompliant with art. 41 subparagraph 1 in conjunction with art. 31 subparagraph 3 and art. 40 in conjunction with art. 41 subparagraph 4 of the Constitution21. Public authorities have also made many organisational and procedural changes. One could mention here, for instance, scheduling hearings in advance, excluding the cognition of cases of the individual accused when joint cognition of the case (of all the accused) is difficult or time-consuming. These actions were primarily meant to solve the problem of lengthiness of court proceedings. Crucial actions were also taken by the Minister of Justice who started a series of trainings for judges and prosecutors concerning the Strasbourg standards. Crucial significance for the change of approach from “former standards of justice” in the scope of applying detention on remand has preliminary resolution of 2007 adopted by the Committee of Ministers of Council of Europe which encouraged Polish authorities to change the law as well as the judicial practices22. Asserting from the time perspective, it should be noted that the courts changed their case-law. Currently, both the district and regional courts apply detention on remand in extraordinary situations. It should be noted that judges have started to use more often other preventive measures mentioned in the Code of Penal Procedure, for instance, bail or police surveillance. 448 | 3. Censorship of correspondence of imprisoned persons The Strasbourg case-law devoted a lot of attention to the situation of persons imprisoned in Polish penitentiary units. Among others, the Court has given judgements on the matter of overpopulation in penitentiary institutions, detention centres, the standard of medical care in such units and the question of censorship of correspondence. The conclusion arising from the European Court of Human Rights in Strasbourg decisions is as follows: it is unacceptable for the administration of a penitentiary institution in which the person is imprisoned to monitor the content of correspondence between the prisoner and their legal counsel. In the opinion of the Court, there are no grounds for monitoring one’s correspondence with their legal counsel, and obviously such actions of public officers have no legal basis23. Furthermore, as indicated by the Court in its judgement in the case Matwiejczuk v. Poland, if there is a “censored” stamp on the envelope, then in each case the Court shall consider the letter to have been opened and read24. Matters related to the censorship of correspondence are regulated by the Executive Penal Code25. At the moment when the Convention was introduced into the Polish legal order, the Executive Penal Code of 1698 was in force. However, the Strasbourg standards with reference to censorship of correspondence were not recognised by that legal act. It was the new Executive Penal Code of 1997 that guaranteed in its article 8a§2 that correspondence between the prisoner and their defence counsel or an attorney who is a legal counsel shall not be subject to censorship, monitoring and seizing and shall be immediately transferred to the recipient26. 4. Fathers’ rights – enforcement of contacts with the child Cases related to fathers’ rights have recently gained particular importance. Among the cases cognised by the European Court of Human Rights, one should draw attention to the cases concerning enforcement of contact of fathers and their children. It is a common occurrence in Poland for the mother to hamper the contact between the father and child (for example, by hiding the child). Such actions are aimed at causing nuisance to the father. In cases like those, fathers have been left without the proper legal protection. These occurrences resulted in complaints against Poland being lodged in the European Court of Human Rights. As stated by the Court in the case Nowak v. Poland: “domestic authorities had an obligation to ensure enforcement of contact arrangements, since it was they who exercise public authority and had the means at their disposal to overcome obstacles to execution”27. The Court indicated also that national courts marginalise fathers’ rights, and what is more, they are biased towards the mothers’ argumentations, which clearly calls into question the court’s impartiality. In consequence of the judgements by the European Court for Human Rights, Polish legislator took the initiative based on which the Code of Civil Procedure was amended with chapter 6, entitled “cases concerning fathers’ contact arrangements”. The above-mentioned provisions resulted in a more effective enforcement of contact between the child and one of their parents. Pursuant to the new regulations, two stages can be distinguished. The first consists in the guardianship court imposing a threat of punishment in the form of payment of a specified amount of money on the person who breaches the obligations arising from the judgement or settlement before the court or a mediator, concerning contacts with the child. If such a threat does not have the expected effect, the Court shall enforce the payment of this amount of money which shall be imposed for every breach of contact arrangements with the child. The decision imposing the payment of a specified amount of money after the coming into force shall be the basis for initiating debt enforcement proceedings.28 | 449 5. Summary Over the last few years, public authority has taken several initiatives aimed at amending both the law and the case-law of common courts. The primary manner of implementing the Court’s judgements is reforming the national legal provisions so that they are compliant with the Strasbourg standards. Amendments to the law, initiated by Polish legislature, should be greatly appreciated. Thanks to these changes, it was possible to solve many critical problems. However pleased one might be with these actions, nevertheless, this must not obscure the authorities’ unwillingness to deal with problems that are believed to be inconvenient in Poland, especially for the politicians, and that concern religious faith or the beginning and end of human life. Up to now, no attempts have been made to solve the problem of separating religion from education. In Polish schools, which should endorse a neutral worldview, it is a common practice to start all religious celebrations with a mass in a Catholic church. Moreover, only sporadically does a student who does not wish to attend religious education classes have the possibility to attend ethics classes. Abortion is an important problem that the legislator will have to face. Its legal regulations have been criticised in the judgements by the European Court of Human Rights29, even though the growing number of cases lost by Poland will force the start of a significant public debate that will lead to the necessary changes of the law so that it can be compliant with the Strasbourg standards. To sum up, the current state of implementing the judgements by the European Court of Human Rights is not essentially bad, nonetheless, the authorities’ reluctance to solve problems that are difficult both in the social and ethical sense is clearly visible. Appendix number 1: Number of arrested people in each year – 2001 to 2012: YEAR THE AVERAGE NUMBER OF PERSON WHO WERE TEMPORARY ARRESTED 2012 7588 2011 8540 2010 9030 2009 9660 2008 9913 2007 13324 2006 14189 2005 14405 2004 16546 2003 20383 2002 21850 2001 24275 Source: Służba Więzienna – available through: www.sw.gov.pl (accessed 15.06.2013). References Nowicki, M.A., (2010), Wokół Konwencji Europejskiej, komentarz do art. 1. Warszawa: Wolters Kluwers – LEX ON-LINE, Golsong H., (193) Interpreting the European Convention on Human Rights Beyond the Confines of the 450 | Vienna Declaration on the Law of Treaties (pp.149), Leiden Nijholf Publisher, Garlicki, L. (2010) Konwencja o Ochronie Praw Człowieka i Podstawowych Wolności tom I komentarz do artykułów 1-18 (pp. 21-56), Warszawa: C. H. Beck, P. Bachmat (2010). Uwagi na temat horyzontalnego oddziaływania EKPC. Państwo i Prawo. 10 pp. 79-91, K. Wierczyńska (2008). Odpowiedzialność państwa za eksterytorialne naruszenia prawa międzynarodowego w świetle decyzji i orzeczeń Europejskiego Trybunału Praw Człowieka. Europejski Przegląd Sądowy. 6 (pp. 30-34), Paprzycki L., K., (2010), Kodeks Postępowania Karnego komentarz (pp. 120). Warszawa., Wydawnictwo Wolters Kluwers. (Endnotes) 1 Konwencja o Ochronie Praw Człowieka i Podstawowych Wolności - Dziennik Ustaw z 1993, nr 61, poz. 284. 2 Zob. w szczególności: Nowicki, M.A., (2010), Wokół Konwencji Europejskiej, komentarz do art. 1. Warszawa: Wolters Kluwers – LEX ON-LINE; Golsong H., (193) Interpreting the European Convention on Human Rights Beyond the Confines of the Vienna Declaration on the Law of Treaties (pp.149), Leiden Nijholf Publisher; Garlicki, L. (2010) Konwencja o Ochronie Praw Człowieka i Podstawowych Wolności tom I komentarz do artykułów 1-18 (pp. 21-56), Warszawa: C. H. Beck; P. Bachmat (2010). Uwagi na temat horyzontalnego oddziaływania EKPC. Państwo i Prawo. 10 pp. 79-91; K. Wierczyńska (2008). Odpowiedzialność państwa za eksterytorialne naruszenia prawa międzynarodowego w świetle decyzji i orzeczeń Europejskiego Trybunału Praw Człowieka. Europejski Przegląd Sądowy. 6 (pp. 30-34). 3 Konwencja o Ochronie Praw Człowieka i Podstawowych Wolności - Dziennik Ustaw z 1993, nr 61, poz. 284. 4 Ust. 2 art. 46 Konwencji o Ochronie Praw Człowieka i Podstawowych Wolności - Dziennik Ustaw z 1993, nr 61, poz. 284. 5 Wyrok TK z dnia 11 grudnia 2012 r., sygn. akt K 37/11, Dziennik Ustaw z 2012 r., poz. 1447. 6 Judgement by CT of 19th July 2011 file no. LEX nr; It should be indicated that the judgment by the ECtHR has an inter partes character, therefore it binds only the parties to the proceedings. However, as rightly indicated by the Constitutional Tribunal, while referring to Interlaken Declaration, the judgements in which the Polish State is not a party must also be considered the judgements issued for other European countries, if they relate to the same legal issues which are cognized by the Constitutional Tribunal or Common Courts. 7 The issues mentioned in this article were selected from the perspective of the author who came upon the mentioned cases in the course of his legal training. 8 Statistics see appendix below. 9 Paprzycki L., K., (2010), Kodeks Postępowania Karnego komentarz (pp. 120). Warszawa, Wydawnictwo Wolters Kluwers. 10 Ustawa Kodeks postępowania karnego z dnia 6 czerwca 1997 r. - Dz. U. 1997, nr 89 poz. 555. 11 Par. 46 wyroku w sprawie Kauczor przeciwko Polsce z dnia 3 lutego 2009 r., skarga nr 45219/06 available through: www.ms.gov.pl (accessed 15.06.2013). 12 Par. 70 i 71 wyroku w sprawie Andruszkiewicz przeciwko Polsce z dnia 4 maja 2006 r., skarga nr 38797/03, available through: www.ms.gov.pl (accessed 15.06.2013). 13 Wyrok w sprawie Kauczor przeciwko Polsce z dnia 3 lutego 2009 r., skarga nr 45219/06 available through: www.ms.gov.pl (accessed 15.06.2013). 14 Wyrok w sprawie Kudła przecwiko Polsce z dnia 26 października 2000 r., skarga nr 30210/96, available through: http://hudoc.echr.coe.int/sites/eng/Pages/search.aspx#{„fulltext”:[„kudła”],”ite- | 451 15 16 17 18 19 20 21 22 23 24 25 26 27 28 29 mid”:[„001-99268”]} (accessed 15.06.2013). Par. 48 w wyroku w sprawie Garycki przeciwko Polsce z dnia 6 lutego 2007 r., skarga nr 14348/02, available through: www.ms.gov.pl (accessed 15.06.2013) Wyrok w sprawie Włoch przeciwko Polsce z dnia 10 maja 2011 r., skarga nr 33475/08, www.ms.gov. pl (accessed 15.06.2013) Wyrok w sprawie Włoch przeciwko Polsce z dnia 10 maja 2011 r., skarga nr 33475/08, www.ms.gov. pl (accessed 15.06.2013) Ustawa o zmianie Kodeks postępowania karnego z dnia 12 stycznia 2007 r. - Dz. U. 2007 r., nr 20, poz. 116. Ustawa o zmianie Kodeks postępowania karnego z dnia 12 stycznia 2007 r. - Dz. U. 2007 r., nr 20, poz. 116. The change in the legal provisions was necessary in consequence of a judgement by the Constitutional Tribunal of 24th July 2006 in the case file No. SK 58/03, in which it was adjudicated that 263 § 4 of the 6th June 1997 Law - Code of Penal Procedure (Journal of Laws No. 89, item 555 as amended.), in the part including the wording: “and also due to other crucial hindrances whose removal was not possible” in the scope it which it relates to preparatory proceedings is inconsistent with Art. 41 subparagraph 1 in conjunction with Art. 31 subparagraph 1 and 3 of the Constitution of the Republic of Poland, and it is compliant with Art. 45 subparagraph 1 of the Constitution. (source: LEX OTK-A 2007/2/17) Ustawa z dnia 20 lipca 2000 o zmianie Kodeks postępowania karnego, ustawy – Przepisy wprowadzające Kodeks postępowania karnego oraz ustawy – Kodeks karny skarbowy - Dz. U. 2000 r., nr 62, poz. 717. Wyrok Trybunału Konstytucyjnego z dnia 28 listopada 2012 w sprawie o oznaczeniu SK 3/12, opublikowany w Dz. U. 2012, poz. 1327. Tymczasowa Rezolucja KM/ResDH (2007)75 dotycząca wyroków Europejskiego Trybunału Praw Człowieka w 44 sprawach przeciwko Polsce (patrz Załącznik II) dotyczących nadmiernej długości aresztów tymczasowych www.bip.ms.gov.pl/Data/Files/_public/bip/.../tymczasowa_rezolucja.rtf‎; data dostępu 15 lipiec 2013 r., available through: www.ms.gov.pl (accessed 15.06.2013). Garlicki, L. (2010) Konwencja o Ochronie Praw Człowieka i Podstawowych Wolności tom I komentarz do artykułów 1-18 (pp. 21-56), Warszawa: C. H. Beck. Par. 99 wyroku w sprawie Matwiejczuk przeciwko Polsce z dnia 2 grudnia 2003 r., skarga nr 37641/97, available through: www.ms.gov.pl (accessed 15.06.2013). Ustawa kodeks karny wykonawczy z 1969 r. Article 8a§2 of the Executive Penal Code has been changed pursuant to Law on Amendments to the Executive Penal Code of 16th September 2011 (Journal of Laws of 2012 No. 240 item 1431). Pkt. 49 wyroku w sprawie Nowak przeciwko Polsce z dnia 8 czerwca 2010 r., skarga nr 1118/06, available through: www.ms.gov.pl (accessed 15.06.2013). Dz. U. 2011, nr 144, poz. 854. In particular, pay attention to the cases: A. Tysiąc przeciwko Polsce z dnia 20 marca 2007 r., skarga 5410/03 , wyrok w sprawie R.R. przeciwko Polsce z dnia 26 maja 2011 r., skarga nr 27617/04, available through: www.ms.gov.pl (accessed 15.06.2013). 452 | V. Economic, social, and legal changes in the face of a changing Europe | 453 454 | Branislav Fábry [email protected] Comenius University in Bratislava European Crisis and Legitimacy of Law Abstract The article deals with current issues related to crises of legitimacy and law of the EU. It discusses the different causes for this results and looking for answers, how to legitimize the existing legislation. The work offers an analysis of legitimation theories and the irapplicability to EU law. The article also deals with the relation of thebasic European values​​and the EU law. The article tries to identify possible solutions to current problems and identifies the subjects that can help by the solving of the problems. Keywords: European crisis – European Union - European law – legitimacy of law – influx of legislation - basic values – human dignity – democracy 1. Introducion “L’Europe ne dit pas ceque’lle fait; elle ne fait pas ceque’lledit. Elle ditceque’lle ne fait pas; elle fait ceque’lle ne dit pas.“1(Kirt, 2005, p.7) This phrase highlights the significant ideological shift from past times, when the term “Europe” was a magical word and “integration” or “harmonization” had only positive connotations. Said shift is certainly due to many failures, for example obvious failure of the Lisbon Strategy or debt problems in the EU states. But Europe has some experience with the euro-skepticism: actual legitimation crisis might be a difficult one, but definitely not the first one. In the past the process of European integration made some experience with soaring and decreasing enthusiasm for European ideas. 2. EU in the crisis? It is known, that it were the results of the terrible past, full of national hatred and wars, that made the magical incantation of the term “Europe” in the 1950s. The other charming word “integration” had also positive connotations those days. Generally, the integration process of Europe in the 1950s was a real success that helped to resolve a lot of future threats. (Weidenfeld, 2002, pp.19-20) The success made the acceptation of European integration wide-spread, but created also something like a feeling of “normality” and the “routine” in Europe. Of course, the positive experience of the 1950s could not be conserved forever and by every crisis in Europe the idea of European identity was challenged by opposing movements. Many examples are remembered vividly, e. g. there was a lot of negative feelings in Europe in the early 1980s. As those days German and Italian Foreign Ministers H. D. Gentscher and E. Colombo have searched new ways to make Europe more popular, European public was skeptical. There were deep economic and structural problems, e. g. the famous saga of agricultural policy. (Rosengarten, 2008) But this period of skepticism was replaced with a very optimistic period of 1989 and following years. Such speedy fall of Soviet empire was unexpected in the euroskeptical era of early 1980s, but it was not a first time as a new dynamic, a new impetus for development came very unexpected. There were many peaks and downs in the process of European integration and the contempo- | 455 rary legitimation crisis should be seen as a part of that development. We cannot see many reasons for optimism in the contemporary Europe, but the negative atmosphere can be overturned unexpected as the example of 1989 shows. In the contemporary European public view, there is also a wide-spread feeling, that the EU has something in common with a monster. It is difficult to move ahead of such feelings in the case of huge political body. We can remember there is some similarity between contemporary sentiment about European Union and public sentiment about Romano-German Empire in the past. Romano - German Empire was alsounable to find its political form and its legitimacy for a long period. E.g. Samuel Puffendorf has characterized it as follows: “If we want the German empire to qualify under the rules of science, we shall not remain nothing more than a label for her body of irregularities like monster (irregular aliquod corpus et monstro simile)”. (Pufendorf, 1994, p.198) 3. Is EU the law-making monster? Till now we are not able to find a common definition for the European Union, but such “Puffendorfian” definition would be probably accepted by an immense group of Europeans. Of course, there are a lot of serious reasons to consider EU as a monster. It is the unlimited influx of new legislation that seems to be one of the main reasons for the criticism. (Lammer, 1995, p.91) The influx of new legislation is based on many reasons. Some are inevitable, some not. Of course, the new fields of research like biomedicine ask for huge new legislation, but some other acts are based only on bureaucratic perfectionism. When reporting about causes for density of regulation by the EU, we can divide this phenomenon into several groups. Causes of increased legislation and regulation occur for various reasons, but it is not always easy to identify them. There are areas of life that have not been treated right in the past, respectively there are limitations and these areas are governed by new legal standards. It is an interesting theoretical question of whether some areas of social relations can be also stay untouched of the law, or may be entitled indifferent, but the solution to this question is not the goal of my work. The category of non-regulated areas until now existed mainly because the law has to cover a new area of ​​human activity, that it was newly created and has to be “domesticated” (e. g. gene technology). It can be said that this type of regulation can be an objective cause for the new regulation. Specific approach is to be used in the dynamically growing, often uncontrollably growing areas, which show some ability to self-regulation. (Kenig-Witkowska, 2008, p.88) It is all about computer networks, where it is inevitable to take the various aspects of future development into account. Every regulation here runs the risk, that any legislative work requires further specification whether additional regulation. European regulation in this area is a great challenge, which has so far been achieved only partly, but now gives the impression of extensive regulation. Of course, density regulation could hamper further development areas that could affect its own dynamics, e. g. cyberspace. But even these phenomena lead to a skeptical view of the EU’s role in lawmaking. From a very different reason the increased regulation can be considered as a more exhaustive and detailed form of existing control systems. In other words, if lawmaking once intervened in the area, and continues in the regulation, the regulations are increasing. (See Gerloch, 2005, pp.17-23) Furthermore, regulatory efforts will be increased until the failure to remove any potential legal and factual dispute or until the failure to remove the last ambiguity or contradiction in interpretation. This is an important phenomenon in EU law, since there are major interpretative disputes at different levels of decision making. One of the frequently mentioned reasons for the increase of legislation is the creation of politically motivated regulations. Especially in the field of European legislation, which is characteristic 456 | for the present EU, the political criteria are tough limit for the rationality of the legislative work. Ways to find a politically possible solution is a major challenge in the current law. The political will of legislators is often tending towards unilateral, simplified and possibly fast-acting measures. Place for a balanced, differentiated and a slow-acting arrangement is difficult to find. (Schuett-Wetschky, 2005, pp.489-490) The need for a quick regulation in order to gain important political victory leads to a significant reduction in choice of rational alternatives. This strengthens the influence of political forces in decision-making processes, but the influence of experts is decreasing. On the other hand, the ability to take the reality and experience into account can help to create much better legislative result. In this context, it could be important in the EU to search to make of institutionalized compromises in the legislative process. Compromises can obviously hinder effective innovation of laws, but so-called legistic quality standards are not the only way to make law better. The quality of law is also guaranteed by its political acceptability. A compromise as a result of legislative activity in Brussels should not be underestimated. Subjective perception of laws and their amendments plays also an important role in the law making. It is obvious that the subjective factors are accelerating the production of standards and also subjective loss of orientation in them; evoke a sense of limiting personal freedom and also a sense of legal uncertainty. For many economic entities the feeling of the predictable legal system plays a key for their economic activity. (Lammer, 2005, pp.60-63) But there are also a lot of reasons to evaluate the idea of legislative flood from Brussels more carefully. The Slovak republic is now in the situation, that unpopular legislation will be explained with Brussels will. Sometimes, the national politicians push their unpopular political goals by blaming it on the European Union. In some cases the EU could be blamed, in some cases not, but in general, there is not enough information about the EU legislation in the public, so this excuse for unpopular national legislation seems to be the effective one.This allows to the national politicians to show themselves more innocent because of the soaring legislation, but this tactics ispartially responsible for the decreasing enthusiasm for European ideas. Another famous tactics of national politicians to clean themselves is the transferring of difficult topics to Brussels. E.g. agricultural policy is the leading policy in Brussels until now. Everyone agree that EU should be concentrated on other topics that are more future-orientated. But the transferring of agricultural policy to Brussels helped to national politicians to leave the very “hot” policy and to push the Brussels to the battlefield with unsatisfied farmers. So, since that moment, the EU is also responsible for huge part of unpopular cuts in the sector. That seems to be a clever tactics from point of view of concrete national politicians, but not for Brussels. 4. Why should it be respected? The wide-spread negative sentiments against EU Law have re-opened a very important question: Why should it be respected? That is a difficult question for every legal system, because the essence of Law is based in the limitation of Human Freedom. If there would not be a possibility to act in another way, there would be no reason for existence of Law. In that way, freedom seems to be a pre-condition for any law. And for such limitation of the human freedom the legislator need a very strong explanation. No doubt, we have to ask about Validity and Legitimacy of Law by every regulation. They are some traditional criteria that could be mentioned in this discussion. (Luf, 2002, p.31) There are a lot of others, but I would mention three criteria, that could be applied to the topic. | 457 5. Recognition Let’s start with the theory of recognition. The theory of recognition can be considered as a very interesting theory of legitimation. EU Law is legitimized by the fact that it recognized by the recipients of its rules. But the traditional problem of this theory are the questions: (Bierling, 1973, p.119) - What needs to be recognized? Any rule of law did? - Who recognizes this right? All individuals do? Or only law enforcement authorities? - What actually constitutes acknowledgment itself? With acceptance of this theory in Europe it would clearly be important to accentuate the important position of law enforcement authorities. This theory but raises the risk of decreasing role of the Legislative institutions – the most important is recognition of certain rules by law enforcement organs. One of the key questions that needs to be mentioned in the topic addressed is the question what is the role of the public and what is its place in the process of recognition. The concept of the public is a complicated concept and depends on the theory, which we are applying. Empirically, it is not possible to identify the public even within the nation state. One can even say that in relation to specific themes there are only some fragments of the public. But the concept of the public seems to be certainly crucial for the ideas of participation and recognition. The problem with lack of recognition reflects also the reality in contemporary Europe. We should mention that only small groups of citizens are involved in the European debate. The European public is very limited and most people are not informed what the European institutions do and say. On the other hand, how should the idea of public in Europe be understood? We can understand the public as a space where discussion takes place and which is open to all citizens, although in fact very limited discussion group is participating. We can try to find the so-called European public as asource of legitimation, but even in the most developed states, only few individuals participate in European discussions. The public of the national state has similar legitimation problems by the issue of law and regulation as the public in the European Union, e. g. the influx of new legislation are common for the national and European level both. 6. Grundnorm Quite interesting in the debate is the notion of so-called “Grundnorm” a concept well known in the legal theory. It is questionable whether it is a fiction or a hypothesis. It relies on it but the construction of law. The concept is based on strict division between “to be” and “ought to be”. This Grundnorm has a role of integrator in the legal system, but it stands outside of the system. (Kelsen, 1994, p.135) Agreeing with early Kelsenian theory the Grundnorm could be seen in the principle “Pactasuntservanda”. And because the EU Law is based on treaties this reasoning seems to be suitable. But we have a problem here with the idea of unity of legal system that is as idea by far not accepted. We are expecting some conflicts not only between national Constitutional Courts and the European Court of Justice on that idea. 7. Basic Values Another important reason for the Legitimation of EU Law could be the European Values. (Vaculíková, 2011, p.275) They could be seen as the cause for the existence of EU Law. They are accepted, at least in the theory as a cause, but there is no harmony between the European Legal Regulation 458 | and the celebrated European Values. Even though the European Bodies were primarily assigned to other tasks, they have never been able to avoid value issues. The European integration can be noted as always declaring the aim of democracy, state of law and human rights, etc., values, which have been reflected even in the international relationships of the EU. Basic EU values are defined by Art.2of the UE Treaty: „The Union is founded on the values of respect for human dignity, freedom, democracy, equality, the rule of law and respect for human rights, including the rights of persons belonging to minorities. These values are common to the Member States in a society in which pluralism, non-discrimination, tolerance, justice, solidarity and equality between women and men prevail.“ The significanceof the basic values, especially the human rights and fundamental freedoms protection as a source of common principles is pointed out not only in the Treaties, but also in the Charter of fundamentals Rights. The ideas of human dignity, freedom, equality, human rights, and solidarity are sacred, but also very abstract ones. Similar case is the values of justice, solidarity, etc. The values mentioned in the Treaties and in the Charter are good bases, but are they really present in the EU law? There are some doubts. 8. Human Dignity Such approaches may be felt e.g. in the obviously most important value of the Charter, in the dignity, incorporated apparently under the influence of the German constitutional tradition inspired by I. Kant. (Fábry, 2004, p.60) The idea of human dignity is very important in the times, when biotechnology is changing our thinking about nature, human being and even about law. And because new development in the field of medicine and biology could be regulated much more efficiently on European than on the national level, human dignity seems to have the key role in the European system of human rights protection. How difficult it is to regulate biotechnology on the national level, is shown comparing the legislation on early human embryo in different European states. (Sýkora, 2010, p.150) In the United Kingdom, there is the famous Human Fertilization and Embryology Act. It is based on the utilitarist arguments and seems to be a result of the British scientific optimism. (See Hfea, 2007) But the therapeutic cloning of human stem cells, a routine in the UK, is not the approach to human dignity that most countries in the EU could relate to. We can compare it with well-known German legislation called Embryonenschutzgesetz. The law is based on the Kantian deontological argumentation; it is also a result of techno-skepticism, that is wide-spread in Germany and some others EU states. The idea of M. Heidegger, that the science and technics are neither innocent nor neutral as thought in the past, has a lot of support in the public. (See Heidegger, 1954) E. g. the approach to so-called therapeutic cloning of human embryonic stem cell is very restrictive in Germany and the scientific practice, so common in the United Kingdom seems to be a grave crime against human dignity. This is seen not only in Germany, but also in Slovakia, Poland or other EU states. 9. Democracy and Rule of Law We should also note heated discussions on democracy in the EU, but we should be very skeptical about the reality. Official declaration of democracy in the EU is obvious (Art. 10 Treaty on EU): „Citizens are directly represented at Union level in the European Parliament.“Or: „MemberStates are represented in theEuropeanCouncil by theirHeadsof State or Government and in theCouncil by | 459 theirgovernments, themselvesdemocraticallyaccountableeither to theirnationalParliaments, or to theircitizens” Numerous “Euro-democracy” drawbacks are well known, I will name only some of them, but we should ask why the democracy deficit arose in the EU? The core of the problem is structural. Europe took over competences from national parliaments, but it failed to legitimize itself sufficiently democratic. There is only one body relying on the institute of democratic elections in the EU. The power Passover is not faultless in this case. First of the famous deficits is, that the European Parliament as the only authority relying on the voters consent has no decisive influence upon decision making processes in European legislation. There are critical opinions that its participation in legislation process is insufficient. The position of the European Parliament differs significantly from that of the member countries national parliaments. Of course, we know historical examples where parliament did not fulfilled the tasks attributed to it by contemporary theory of state but such a position could hardly lead to democratic principles enhancement. And to describe the European Parliament we can also use a famous German proverb that describe the „importance“ of its MPs: „Hast du einenOpa, schickihmnach Europa.“ 2 Other essential drawbacks are elections to the European Parliament, where the principle of equality is violated. Instead of the classical principle “one man, one vote” mandate contingents for the particular member states are produced, which by no means correspond to the number of population of the particular states. The vote of citizens of the smallest EU states Luxembourg or Malta are many times “heavier” than the vote of the citizens in the biggest EU states like Germany, Italy or France. European Union should be more sensitive to these issues, because it is preaching the „democracy and rule of law throughout the world. For that reason EU should be governed more democratic. There is lot of countries in the world, that are declaring their „democratic“values in constitutional documents, but the reality seem to be very different. E. g. in Art. 1 of the Ukrainian Constitution we can read: „Ukraine shall be a sovereign, democratic, social, law-based state. “ Then Art. 3: „An individual, his life and health, honor and dignity, shall be recognized ... as the highest social value. Human rights and freedoms, and guarantees thereoff shall determine ...“(See CONSTITUTION OF UKRAINE)Verysimilar declarations to those are also in the European documents... 10. Freedom, Equality, Solidarity The three values are mentioned in the Charter of Fundamental Rightsof the EU where the Chapters II, III and IV bear the names Freedom, Equality and Solidarity. Although new classification of basic rights and duties in the Charter is not quite according to human rights classification into three of four generations, it may be assumed that the Chapter IV (Solidarity) contain second generation rights and duties, especially those concerning the issues of work and employment. In the text of Charter freedom and equality, the components of the French revolution classical trichotomic structure (liberté, egalité, fraternité), are listed among the values that would give basis to the Values Union. The next important value, fraternity was declared as solidarity. This traditional structure was created to recommend the constitutional tradition of some EU states and to increase the legitimity on that way. In my view, when discussing human rights freedom as an obligation according to Kant is a more suitable concept than Hobbes’ concept of freedom. The key problem in this field is the ownership right. It was also one of the key problems in the discussion in Convention of Herzog. (Bossi, 2001, p.223) The ownership right earns a more detailed view and in Art. 17 of the Charter begins as follows: „Every person has right to own his/her legally acquired property, use it, deal with it and devise or bequeath it.” 460 | From the classical Roman law quartet “iuspossidendi, iusutendi, iusfruendi, iusdisponendi” specifically mentioned are iusdisponendi (“give up and dispose”) and iusutendi (“use”). It is the part of the classical ownership rightiusutendi that is the most risky category. Iusutendi may be only hardly distinguished from the term iusabutendi. In the Chapter VII, especially in the Art. 53 and 54 of the Charter try to eliminate negative influences of Art. 17, but defining the scope of iusabutendi in the constitutional treaty proposal failed. Therefore it cannot be expected that Chapter VII of the Charter will be able sufficiently to limit the negative impact of the Art. 17. The provision “Using property may be governed by law...” neither will serve the purpose as it is natural for a legal rule as a normative act of law that thanks to its normative function it may omit some important case of property abuse. Here perhaps the ordinary “ownership binds” would be more impressive. And the problem how far the „ownership binds“is also one of the deviding points in the European legal and political discourse. Another problem is that within the ownership right issue the notion of link of property or ownership with work has not been resolved. This problem may at first seem to be of no significance, but property basically may arise solely in two ways: by work of by an acquisition from another. Only work is sufficiently legitimizing cause making property and its ownership a natural institute, a good and a just institute. The expression equality denotes not only equality, but it is a basic part of the idea of justice. Equality and non-discrimination complement one another, too. Ban of discrimination is presented mainly in cases when formal equality of chances does not meet the requirement of real equality of chances as a result of certain specific obstacles (sex). Listing these two values in the Head III of the Charter may haw its drawbacks, but it basically points to indivisibility of the values protected by the system of basic firths and freedoms. 11. What should be done? Known German political scientist W. Weidenfeld sees three main European constructs in the European Union: (Weidenfeld, 2006, p.38) 1. Europe of daily pragmatism (e. g. represent Mobility, the four freedoms) 2. Europe infinite horizons (it constitute on basic principles and ideals, but also expansion of its borders) 3. Europe with its own mission and vision tasks (represented by a strategic outlook, leadership) We should ask, how far is possible to involve the common European vision into the daily pragmatism. European Law is everywhere; it is spreading its regulative role. But the ideas behind are not as present as expected. Partially, they are very “routine”, partially they are not very present. And that could be a risk. W. Weidenfeld thinks there is a dangerous lack in the third paragraph above: Europe lacks a particular strategic thinking and goal. Another opinion could be that there are too many strategic visions in Europe. The “old Europe” and the “new Europe”, the special relationship of the United Kingdom and the USA, the federalist movements throughout the Europe and the emphasis on sovereignty in many countries on other hand are some of the examples. There are many reasons for more skepticism about future of the European law. 12. Who could help? No doubts, Europe needs a new dynamism, a new impetus for development. European Union needs also more legal security because of immense influx of legislation that makes any application of law difficult. And perhaps it needs to define itself more precious. | 461 The legitimatory crisis could be better overcame if there will be more legal security, more common goals and more relevant subjects, who can help to legitimate the law of the European Union. There are some groups who should be involved more into this process. The traditional groups, which can help to legitimize European law, are lawyers and especially judges of the European Court of Justice. However, neither judges were too compelling to solve the problem till now. ECJ was very active in the past and helped to resolve many questions, but nowadays the situation seems to be more complicated. ECJ could e. g. overcame the eternal legitimatory problem with the definition of the European Union itself. Until now constantly used part of definition of the EU like “sui generis” does not simplify the legitimization of European law, but creates a lot of misunderstanding and suspicions. Of course, here could be the ECJ efficient, Luxemburg has the authority, but there also deep problems. One of them is disagreement among some judges and this is often even greater than disagreement between the politicians. On the one hand the passive attitude of judges is correct, because in each definition are hidden many dangers and uncertainties that cautious attitude can avoid contradictions. On the other hand, excessive caution could be rather harmful. Lawyers in fact actually move the entire professional life in speculation and could have more courage in this case. Another group, which could contribute to better resolving of the legitimatory problems in the European Law may be the politicians. However, they are not able to find a solution, because there is little chance for sufficient consensus among them. There is also a lack of charismatic politicians that would lead the integration process. The Europe of these days is also much bigger than in the past, so every proposed solution can bring a considerable amount of opponents, much more than in the former EU of 12 or 15 members. We must also ask how helpful is the compromise making across the political spectrum. Such compromise may become stable, but full of untouched points. Unresolved and untouched problems will cause more instability and are not the best way for more legitimacy of law. The very important group, which can help to legitimize the Law of the European Union, is the public. As said, the public is usually not enough involved in the key European debate. In the past public discussion was not connected at all or only marginally with the decision making process. The example of ideas with more open decision making procedure through so-called convention method has ended with a disaster. The consent requirement to the public, like referendum on the European Constitutional Treaty in France and the Netherlands made not much hope for more opening of the decision process. 13. The way as a goal In the above context it should be mentioned that solutions for the difficult question of the legitimatory questions of the European Law are difficult to reach. We can conclude that there are subject who should participate in the move: European citizens, Member States and European institutions, judges, etc. On the other hand, we should not expect neither quick nor perfect results. So at the end, perhaps only few words of Jean Monnet are to be said: “Nothing is possible without people, nothing is durable without institutions.” References BIERLING, E. R.: Der Begriff des Rechts. In: Maihofer, W.: BegriffundWesen des Rechts. Darmstadt: WissenschaftlicheBuchgesellschaft, 1973, 510 p., 97-131 ISBN: 3-534-03369-8 BOSSI, T.: DieGrundrechtschartafürdie EU. In: Weidenfeld, Werner (Hrsg.): Nizza in der Analyse. Gütersloh: BertelsmannStiftung 2001, p.. 203 – 263. 352, ISBN: 3-89204-569-0 462 | CONSTITUTION OF UKRAINE ofUkraine, see: http://www.president.gov.ua/en/content/chapter01. html FÁBRY, B.: Kantovské základy biomedicínskeho práva. In: MACHALOVÁ, T. (red.): Právně filosofický odkaz I. Kanta a současné právní myšlení. Brno: Masarykova Univerzita, 2004, s. 59 – 67. ISBN: 80-210-3508-0 GERLOCH, A.: K možnostem stabilizace právního řádu ČR a zvýšení efektivnosti legislativního procesu. In: Vostrá, L., Čermáková, J. (Eds.): Otázky tvorby práva v České republice, Polské republice a Slovenské republice. Plzeň: A. Čeněk, 2005, 312 p., 17-23 HEIDEGGER, M.: Die Frage nach der Technik. In: Heidegger, M.: VorträgeundAufsätze. Pfullingen :GüntherNeske, 1954. HFEA: Hybrids and Chimeras. A report on theFindings on theConsultation. London: HFEA (October 2007) http://www.hfea.gov.uk/519.html KELSEN, H.: ReineRechtslehre. Aalen: ScientiaVerlag, 1994, 236 p. ISBN: 3.511.09255.8 KENIG-WITKOWSKA, M. M.: Zagadnenia prawnomiedzynarodowej regulacji zarzadzania cyberprestrzenia w świetle prac WGIG. In: Girdwoyn, P.: Prawo wobec nowoczesnych technologii. Warszawa: Liber, 2008. 256 p., 81-92. ISBN: 978-83-7206-148-5 KIRT, R.: Die Europäische Union und ihre Nicht-Verfassung. Editions Le Phare, 2005, 60 p. ISBN: 2-87964-083-0 LAMMER, M.: Grundfragen der Gesetzgebungslehre. In: Mantl, W. (Hg.): Effizienz der Gesetzesproduktion. Wien: Signum, 1995, 59-92 LUF, G.: Grundfragen der RechtsphilosophieundRechtsethik. Wien: Manz 2002, PUFENDORF, S.:DieVerfassung des deutschenReiches. Lateinisch – deutsch, Frankfurt a. M.: InselVerlag, 1994, 259 p. ISBN 3-15-000966-9 ROSENGARTEN, U.: Die Genscher-Colombo Iniziative. Nomos, 2008, 219 p. ISBN-13: 9783832933647 SCHUETT-WETSCHKY, E.: Regierung, Parlament oder Parteien: Werentscheidet, werbeschliesst? In: ZeitschriftfürParlamentsfragen, 36, September 2005, Heft 3, 489-507 SÝKORA, P.: Etické aspekty raných ľudských embryí. Trnava: Univerzita sv. Cyrila a Metoda, 2010, 266 p. ISBN: 978-80-8105-156-2 VACULÍKOVÁ, N.: Právo ako hodnota a garant ľudských práv. In: Historické právne systémy a integráciaEurópy. Hodotový základ práva. Bratislava: Univerzita Komenského v Bratislave, Právnická fakulta, 2011. 612 p., 275-278.ISBN: 978-80-7160-314-6 WEIDENFELD, W.:Europa – aberwoliegt es? In: Weidenfeld, W. (Hrsg.): Europa – Handbuch. Bonn: Bundeszentrale fürpolitischeBildung, 2002, 936 p., 15-40. ISBN: 3-89331-435-0 p. 19-20 WEIDENFELD, W.: Europa:IdentitätundstrategischePerspektive, In: EuropäischeRundschau, 1/2006, s.37-46. (Endnotes) 1 „Europe does not say what she does; she does not do what she says. She says what she does not and does what she not says.” The phrase is known, probably originating from Pierre Bourdieu. See: KIRT, 2005, p. 7. 2 If you have a grandfather, send him to Europe. | 463 464 | Maria Królikowska-Olczak University of Warmia and Mazury in Olsztyn University of Lodz [email protected] Permissible restrictions on the freedom to provide services in European Union law Abstract The present paper discusses the legal aspects of permissible restrictions on the freedom to provide services in the internal market. The market freedoms guaranteed under the Treaty on the Functioning of the European Union (TFEU) are not of absolute nature. Articles 56–65 TFEU establish the legal basis for the freedom to provide services and deal with the cross-border movement of services rendered by entities conducting business activity in one of the Member States. This cross-border paradigm constitutes the basis for obtaining protection under European Union law, especially in respect of restrictions imposed by institutions in the host countries over the period of service provision and consumption. The provisions of primary law concerning the freedom to provide services grant derogations for restrictions on grounds of public health, public security, public policy, and exercise of official authority. These derogations are given a narrow interpretation by the Court of Justice as exceptions from one of the four basic freedoms of the internal market. Besides presenting reasons for the introduction of domestic measures, the Member States must also prove that they have considered all circumstances and undertaken activity aimed at attaining the desired objectives by using the least restrictive measures possible. Keywords: services, economic freedom, internal market, public authority, public policy, public health, professional qualifications 1. Introducion The freedoms guaranteed under the Treaty on the Functioning of the European Union (TFEU) are not of absolute nature. The freedom to provide services, set forth in the provisions of primary law, is not absolute, either. The present paper discusses the legal aspects of permissible restrictions on the freedom to provide services in the internal market. It should be noted that the Treaty itself grants derogations for restrictions on grounds of public health, public security, public policy, and exercise of official authority. These derogations are given a narrow interpretation by the Court of Justice as exceptions from one of the four basic freedoms of the internal market. The Court of Justice also permits restricting particular freedoms of the internal market on grounds of fundamental laws, which include laws derived from the common constitutional traditions of the Member States and international treaties on human rights. If they conflict with the freedoms of the internal market, the Court of Justice evaluates their mutual relationship and makes a decision as to which of them should prevail in a given situation. | 465 2. Freedom to provide services under European Union law The freedom to provide services is one of the fundamental freedoms constituting the internal market. Pursuant to the provisions of Article 26.2 of the Treaty on the Functioning of the European Union (TFEU), the internal market is an area without internal borders that ensures the free movement of goods, persons, services, and capital in accordance with the relevant provisions of the Treaties.1 The Lisbon treaty added to the Treaties establishing the European Union a number of protocols, of which Protocol 26, concerning services of general interest is of particular relevance to the subject matter of this paper.2 Articles 56–65 TFEU set forth the legal basis for the freedom to provide services and deal with the cross-border movement of services rendered by entities conducting business activity in one of the Member States. This cross-border paradigm constitutes the basis for obtaining protection under European Union law, especially in respect of restrictions imposed by institutions in the host countries. In its decision in the case of Debauve,3 the Court of Justice ruled that the provisions of the Treaty concerning the freedom to provide services do not apply to such activity which is located within one Member State only, in all its elements. The movement of services is a category that is essentially based on the objective element – the market availability of services.4 Pursuant to Article 57.1 TFEU, services are defined as “services normally provided for remuneration, in so far as they are not governed by the provisions relating to freedom of movement for goods, capital and persons.” According to court rulings, a crucial characteristic of remuneration is that it constitutes an economic equivalent of a given service as agreed by the service provider and the service user. A service maintains its pecuniary interest even if the remuneration is fixed by the state in the form of a set fee. From the point of view of the commercial nature of services, it does not matter whether payment is made by the service user or a third party. The costs of a service may also be subsequently reimbursed.5 Thus, from the point of view of the service user, the service may be free because its costs may be borne by the state or other entities. This is true in the case of medical services provided free of charge under mandatory insurance. Although the patients pay a contribution, which is deducted from their pay, there is no direct relationship between the amount of that contribution and the cost of treatment. Furthermore, such insurance also covers some persons who do not pay the contributions. Despite the above, according to the Court of Justice, medical services fall under Article 57 TFEU. In line with the case law of the Court of Justice, services provided at remuneration do not include activity conducted by the state or on behalf of the state in the context of its duties in the fields of social protection, culture, judiciary system, education provided under a national educational system, or management of a social security system, which are not linked to business activity. In such cases, payments made by the service users, e.g., tuition or enrolment fees payable by students, do not constitute remuneration, because the services in questions are still essentially financed by public funds.6 Considering the above, this freedom is of subsidiary nature, as subsuming the actual and legal state of affairs, one should first of all reject the possibility to apply the provisions of the Treaty concerning other freedoms. The legal regime of the freedom to provide services is separate and excludes the simultaneous use of regulations concerning other freedoms. It should be noted that the freedom to provide services, despite being defined negatively, is an independent element integrating the internal market. Article 57 TFEU enumerates various types of services, including activities of industrial and commercial nature as well as activities of craftsmen and of the professions. This should be treated only as a sample list rather than a criterion for classifying a given type of activity as a service. For instance, the same sort of professional activity, e.g., that of a lawyer, may be classified both as a service activity and as an establishment. 466 | In contrast to the freedom of establishment, which consists of conducting business activity in another Member State on a permanent basis, provision of services is supposed to be of transitory nature. Activity falling under the freedom to provide services may be performed on the territory of another Member State only temporarily. Thus, the activity performed by an entity should be assessed in terms of duration, frequency, regularity, and continuity of the service provided. In the latest rulings concerning the distinction between the freedom to provide services and the freedom of establishment, the Court of Justice has gradually departed from complicated analysis of the temporal nature of economic activity, and has mainly applied the criterion of place of establishment. If the service provider has its primary or secondary place of establishment in a given Member State, then its activity is considered in terms of freedom of establishment, while if it does not have such a place, then regulations on the freedom to provide services are applicable.7 The Court of Justice has admitted that it is not possible to definitively determine the frequency or regularity that would qualify a given activity as permanent or temporary. It seems that in this respect the decisive factor is the will of the entrepreneur to get permanently involved in the economic life of this or that Member State, thus also making a choice as to the legal regime of one of the freedoms. An act of secondary law regulating the free movement of services in which the element of time does not play a role is Directive 2000/31/EC of the Parliament and of the Council of 8 June 2000 on certain legal aspects of information society services, in particular electronic commerce, in the internal market (the Directive on electronic commerce).8 Due to the introduction of the principle of the country of origin and the specific nature of information society services which are provided without the concurrent presence of the parties involved, the directive focuses on how the service provider’s country of establishment. In accordance with Article 2.c of the directive, it is defined as the country in which a service provider effectively pursues an economic activity using a fixed establishment for an indefinite period of time. It should be emphasized that modern communications techniques based on electronic data storage and exchange have eroded those foundations of law and communication which have hitherto focused on personal contact. Electronic commerce has become an important part of present-day economic and cultural life. In this context, a major role is played by services (information society services) provided via the electronic channel.9 Thus, it is necessary to create a legal framework for electronic commerce, while also maintaining the existing normative achievements in the field of freedoms of the internal market. Due to the above, comprehensive legislative work in this area ought to be undertaken. It should also be stressed that the Court of Justice now emphasizes not so much the right of the service provider to render a service or the right of the service user to consume it, but perceives the freedom to provide services as the right of the service itself to be provided.10 Thus, the focus has been shifted from the protection of parties to a service relationship to the protection of the service itself. The right to provide a service or have access to it also includes the right to perform activities linked to the preparation of the performance of services, such as: advertising; market research; transport of machinery, technical equipment, and raw materials from the country of origin; office rental; or even acquisition of a property.11 Considering service providers, one should bear in mind that they do not necessarily render services in person. Personal provision of services takes place only in the case of self-employment and civil law contracts concluded with a specific provider. In other cases, services are performed by the service provider’s workers delegated to the country of service performance. Such workers are not service providers in light of the Treaty. Therefore, they do not fall under the requirement of being citizens of a Member State. However, any restrictions imposed on them are treated as restrictions on the freedom to provide services. | 467 3. Exercise of official authority Article 51 in conjunction with Article 62 of the Treaty on the Functioning of the European Union (TFEU) allows the possibility for the Member States to depart from the rules set forth in the chapter on the provision of services in the case of activity linked, even occasionally, with the exercise of official authority. In practice, this regulation allows the Member States to reserve certain types of activity, or even whole professions, for their own citizens. As a result, service providers from other Member States must not provide services reserved for a given profession in the country which has applied the derogation specified in Article 51 TFEU. In accordance with the ruling of the Court of Justice, the notion of exercise of official authority is given a narrow interpretation in order to prevent the Member States from abusing the derogation granted under Article 51 TFEU. For example, the profession of expert witness will not be regarded as exercise of official authority because opinions issued by an expert witness are not binding for courts of law.12 The Court of Justice has stressed on many occasions that the derogation arising out of Article 51 TFEU must be limited to activities that are connected to the exercise of official authority in a direct and specific way.13 Article 51 TFEU is actually associated with concrete functions or activities linked to the exercise of official authority rather than with particular professions. As no list of such professions or functions exists, the Member States use their discretion to decide in what cases they should apply Article 51 TFEU. However, their decisions are subject to judicial review by the Court of Justice. I would like to draw attention to the latest rulings of the Court of Justice concerning the profession of notary, in which the Court of Justice conducted in-depth analysis of domestic regulations. Ultimately, the Court of Justice came to the conclusion that in no Member State whose regulations had been challenged by the Commission the profession of notary was directly connected with the exercise of official authority. For many years, the profession of the notary had enjoyed a privileged position, which was reflected in the fact that the Commission had ignored a variety of domestic restrictions. Also acts of secondary law treated this profession in a privileged manner. 4. Public policy, security and health Article 52.1 TFEU allows the Member States to adopt regulations that treat foreigners differently from nationals as long as such legislation is justified by public policy, public health, or public security issues. This is also applicable to the freedom to provide services, pursuant to Article 62 TFEU. The specific wording used in Article 52 TFEU, that is, “special treatment for foreign nationals,” is an explicit form of discrimination whereby domestic regulations clearly differentiate the status of foreigners from that of nationals to the detriment of the former. The notions of public policy, security, and health have not been defined in EU law and it is up to individual Member States to interpret them. Domestic regulations, which are most often of casuist nature, are subject to judicial review by the Court of Justice in terms of their compliance with the guidelines for applicability of Article 52 TFEU. Despite the fact that considerations linked to public policy, security, and health have been frequently cited as reasons for introducing restrictions by the Member States, the Court of Justice has accepted them only in a few cases. For instance, prevention of serious accidents in ports has been found to be justified by public security. Furthermore, the Court of Justice has allowed some restrictions on gambling establishments for public health and policy considerations. Directive 2004/38/EC of the European Parliament and of the Council of 29 April 2004 on the right of citizens of the Union and their family members to move and reside freely within the ter- 468 | ritory of the Member States permits restrictions on the rights of EU citizens and their families for reasons linked to public policy, security, or health as long as the rationale behind such restrictions is not economic in nature. The measures undertaken must be proportionate and based solely on the behavior of the person concerned. Previous convictions are not sufficient to implement such measures. Only behavior that constitutes a genuine, present, and sufficiently serious threat to one of the basic interests of society may be qualified as justifying restrictive measures, which has been reflected in the rulings of the Court of Justice. It should be stressed that such a threat may be linked to a particular person, e.g., a service provider, service recipient, or the service itself. Then, sanctions will not be deemed directed against individuals; instead, they will impose restrictions on a given kind of activity. In accordance with Article 27 of Directive 2004/38/EC of 29 April 2004 on the right of citizens of the Union and their family members to move and reside freely within the territory of the Member States,14 in order to ascertain whether a person poses a threat to public policy or security, the host Member State may request the Member State of origin to provide information concerning any previous police record of that person. The Member State consulted is obligated to respond within two months. As regards public health considerations, Directive 2004/38/EC permits restrictions on free movement due to epidemic diseases as defined by the World Health Organization, as well as other infectious diseases and contagious parasitic diseases if they are the subject of health protection provisions applicable to citizens of the host Member State. At the same time, it is clearly stated that diseases revealed after 3 months from arrival are not a valid reason for expulsion. Articles 56 and 57 TFEU state that the freedom to provide services is granted to service providers, that is, persons who render services. Even though the Treaty does not make a distinction between service providers in terms of physical and legal persons, acts of secondary law define certain groups of service providers that render their services pursuant to certain specific regimes. One of such groups are representatives of the regulated professions.15 As far as the regulated professions involving public health or security are concerned, Directive 2005/36/EC of the European Parliament and of the Council of 7 September 2005 on the recognition of professional qualifications allows exceptions from the general rule of freedom to provide services. Member States may check the qualifications of such a service provider prior to the first provision of services in the host country, as long as such verification is proportionate and is meant to prevent serious damage to the health or security of the service recipient. It should be emphasized that the Member States are not allowed to routinely verify the professional qualifications of representatives of a given profession, but only of individual persons. According to the guidelines of the Commission, the Member States should publish a list of professions in respect of which they intend to use this derogation. In Poland, such professions are specified in the Directive of the Chairman of the Council of Ministers of 5 March 2008 on regulated professions for which qualification procedures may be initiated. The annex to this Directive lists about 150 professions, including speech therapists, underground traffic control equipment fitters, and construction engineers specializing in demolition works. The exemption of such a large number of professions is controversial and reveals a continuing tendency to place trust in national standards. In principle, the qualifications of service providers are not verified in host Member States. It is only the qualifications and professional experience of persons who intend to practice their profession in a continuous way that are subject to verification. Article 24 of Directive 2006/123/EC of the European Parliament and of the Council of 12 December 2006 on services in the internal market requires that all prohibitions on commercial communications produced by the regulated professions should be abolished.16 At the same time, the | 469 Member States should ensure that such commercial communications comply with the professional rules. A total ban on advertising, or of its selected forms, constitutes a restriction on the free movement of services. 5. Restrictions on grounds of overriding general interest Overriding general interest (so-called imperative requirements) may be invoked only in situations that have hot been comprehensively regulated in EU law. If a service standard or principles of service provision are defined by acts of secondary law, then the Member States may not apply more restrictive requirements based on premises resulting from rulings of the Court of Justice. The doctrine of imperative requirements, derived from the decisions of the Court of Justice, allows for applying restrictions that are non-discriminatory and justified by overriding general interest. The use of the overriding public interest clause is motivated by so-called imperative requirements, whose list is being continually expanded as a result of new court rulings. Examples include consumer or service recipient protection, intellectual property protection, maintenance of a cohesive tax system, traffic safety, and protection of cultural and historical heritage. By introducing the doctrine of imperative requirements, the Court of Justice subjected all restrictions on the freedom to provide services to review, while at the same time giving the Member States the possibility to implement legal solutions aimed at securing significant public interests. In contrast to discriminatory measures, which are permissible only in exceptional situations explicitly stated in the Treaty, non-discriminatory regulations are much easier to justify, and the catalog of imperative requirements is still being extended. In assessing the Member States’ justifications for introducing restrictions on the free movement of services, the Court of Justice takes into consideration the specific characteristics of a given country and its legal system. This is consistent with the guarantee to respect the national identity of the Member States contained in the Treaty on the functioning of the European Union (Article 4.2). In the area of free movement of services, recognition of national regulations is visible in respect of gambling. Importantly, the Court of Justice’s ruling in the case of Schindler stresses that it is national authorities that should decide what measures to undertake in order to maintain public policy in the area of the functioning of lotteries, considering the specific social and cultural characteristics of a given Member State. 6. Summary It seems that due to the extension of the scope of rights granted to beneficiaries of the freedom to provide services, it has also become necessary to expand the catalog of permissible restrictions. This has been done through rulings of the Court of Justice, which has developed the doctrine of imperative requirements justifying restrictions of non-discriminatory nature. The Court of Justice accepts a long list of imperative requirements, and also permits its further extension. However, it generally refuses to protect interests that are administrative or economic in nature. Besides presenting reasons for the introduction of domestic measures, the Member States must also prove that they have considered all circumstances and undertaken activity aimed at attaining the desired objectives by using the least restrictive measures possible. Domestic measures are evaluated with the proportionality test, developed especially for that purpose by the Court of Justice. (Endnotes) 1 Consolidated version according to the Official Journal of the European Union 2010 C/47. 470 | 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 Barcz, J. (2010). Podstawy prawne Unii Europejskiej Traktat z Lizbony, Wprowadzenie, wybór i opracowanie (pp. 371–372). Warsaw: Instytut Wydawniczy Euro Prawo. Case 52/79, Procureur du Roi v. Debauve, Reports of cases 1980, p. 883. Kożuch, M. (2012). Zasady ogólne swobody świadczenia usług w prawie Unii Europejskiej (in:) Prawo materialne Unii Europejskiej, A. Zawidzka-Łojek, R. Grzeszczak (eds.) (pp. 189–195). Warsaw: Instytut Wydawniczy Euro Prawo. Judgment in the case C-352/85 Bond van Adverteerders; judgment in the case C-157/99 Geraets-Smits v. Stichting Ziekenfonds VGZ and h.t.m. Peerbooms v. Stichting CZ Groep Zorgverzekeringe, Reports of cases 2001, p. I-05473. Preamble to Directive 2006/123/EC of the European Parliament and of the Council of 12 December 2006 on services in the internal market. The Official Journal of the European Union L 376 of 27.12.2006, p. 36. C-514/03 Commission of the European Communities v. Kingdom of Spain, Reports of cases 2005, p. I-03761. Official Journal of the European Union L 178/1. Królikowska-Olczak, M. (2013). Legal regulations in the information society (in:) Digital Governance: From local data to European policies (pp. 97–104). Prague: AGAMA. Strzelbicki, M. (2008). Publicznoprawne gwarancje swobody świadczenia usług przez podmioty wspólnotowe w Polsce. Poznań: Wydawnictwo Naukowe; in the judgment in the case C-381/93 Commission v. France the Court of Justice emphasized that all restrictions on the movement of services should be abolished in the internal market, Reports of cases 1994, p. I-5145. Skrzydło-Tefalska, E. (2004). Swoboda świadczenia usług (in:) Prawo Unii Europejskiej. Zagadnienia systemowe. Prawo materialne i polityki. Barcz, J. (ed.) (p. 622). Warsaw: Prawo i Praktyka Gospodarcza. Judgment in the case C-306/89 Commission v. Greece. Judgment in the case C-114/97 Commission v. Spain. Official Journal of the European Union L 158. A regulated profession is a professional activity access to which or the pursuit of which is subject to the possession of specific professional qualifications (Article 3.1 of Directive 2005/36). Another form of defining regulated professions is to acknowledge that members of the professional organizations and associations specified in the Annex to Directive 2005/36 pursue a regulated profession. Official Journal of the European Communities L 376 of 27.12.2006, p. 36. “Commercial communication” means any form of communication designed to promote, directly or indirectly, goods, services or an image. | 471 472 | Jakub J. Szczerbowski University of Warmia and Mazury in Olsztyn [email protected] Complexity of Private Law as an Argument Against Unification. A Law and Economics Study Abstract The concept of European Union as an economic entity is being brought forward as an argument for the unification of many branches of law. This article relates to the unification of private law, however, some of the observations might apply to public law as well. Unification does not equal a simplification per se, but in practice it is hard to imagine unification without simplification. The article deals with the problem of forcibly simplifying complex systems, such as the private law, and the connected topic of access to information in law making process. In view of the author, it is extremely hard to unify law and a unifying law reform is more likely to produce harm than benefit. Keywords: law reform, access to information, unification, law as a complex system 1. Introduction The field of law and economics is much preoccupied with the, so called, principal-agent problem. Simply stated, the problem consists of a disparity of motivations between the one who owns and the on who manages. The principal lends his trust to the agent, but the agent is motivated to act in his own interest and not in the interest of the principal. Many regulations and rules came to be as a response to information asymmetry, and the incompatibility of incentives between the agent and the principal. Those norms affect the social life at all levels, from limiting the politicians to imposing information duties on firms dealing with consumers. Agent has the possibility to use his power to gain at the cost of the principal, however, the principal is not defenseless. It is, usually, in power of the principal to substitute the agent with another one. Especially when it comes to lawmaking, the principal (society) is able to completely exchange the group-agent for another group. This, in theory, should prevent the agent from creating laws intended only to the benefit of the agent. Still, lawmaking is challenged with problems which cannot be solved by changing the agent alone. It is the view of this paper, that the complexity of law makes it impossible to rationally pursue some modes of lawmaking, even for the best prepared agent. Those modes assume, that social change can be created and foreseen by the lawmaker. If we view the law as a complex system, such assumption is clearly naïve. One of the most comprehensive and innovative treatises on the problem of complexity was presented by Taleb (2012). He introduces the idea of anti-fragility, which is a feature of complex systems allowing them to gain from disorder. Taleb proposes, that systems can be divided into two categories. First category, exemplified by mechanical system, does not gain from disorder. Those systems finally erode and break. The other group of systems, exemplified by organic system, gain from a certain amount of stress. He does not mean, that all stress is beneficial, but that a certain amount of stress is beneficial, and oftentimes necessary for a system to function properly (N. N. Taleb, 2012, Chapter 3) From this, a very important question arises: Is law more like a mechanical system or like an organic one? The organic systems are characterized by self-reproduction, unpredictability and constant change, among other features. | 473 2. Features of a legal system Do legal systems self-reproduce? This question precludes a certain amount of anthropomorphizing of a legal system. Legal system should be understood in this context as a sum of written law, decisions, legal culture, legal customs and legal usages. From this elements form legal institutions – structures of interest to lawyers and legal scholars. The “reproduction” of legal institutions is a subject of comparative law. A model for reproduction was proposed by Watson, and popularized by him as “legal transplants” (Watson, 1974). The reality of legal evolution cannot be simplified down to the idea of legal transplants understood as borrowing of legal institutions from one system to another. Although Watson did not mean this plain understanding of legal evolution, coining of such a phrase brings danger of simplifications. The self-reproduction process of legal systems consists not only on legal transplants, but also from various other forms of intellectual influence. The problem of self-reproduction was extensively written about at the occasion of researching the receptions of Roman law (Giaro, 2008, p. 15). Another feature, which brings legal systems closer to organic ones is unpredictability. It is easily visible in the field of private law. One example is provided by the process of legal transplants. Institutions transplanted into various legal systems develop unpredictable solutions. The general clause of liability in delict (art. 1382 of French Civil Code) was transplanted in various legal systems (Works, 1966, p. 599). However, many hard cases, which require a large degree of interpretation, are solved completely differently. Pure economics loss is a good example of a group of cases, which could not have been thought of in depth by the creators of the general clause of liability in delict. This group of cases is growing in importance as the complexity of the economy grows, therefore, the state of economy in the 18th century did not force the lawmakers to think about pure economic loss. On the other hand, the wording of the article clearly allows damages for pure economics losses, the extent of damages is subject to interpretation (Omodei-Sale & Zaccaria, 2004, p. 49). The assessment of the character of legal system is important in the context of the Talebian notion of antifragility. Taleb uses a metaphor of a cat and a washing machine to illustrate the difference between mechanical and organic system. Fixing problems in those distinct types of systems requires a different approach. Mechanical systems are fixed by replacing parts. Organic systems heal themselves. It is not uncommon, however, that cats are being (incompetently) treated with methods suitable for washing machine repair (N. N. Taleb, 2012, Chapter 3). Classification of a legal system to one of those categories allows us to theorize about the proper methodology of law reform. It is tempting to intuitively conclude the law is a organic-like system, however, considerations on this matter seem to be system-dependent. Various legal systems seem to present various mixes of features allowing to categorize them. Modern legal systems are a mix of judicial decisions and statutory law (Ponzetto & Fernandez, 2008, p. 379). Historically, Roman law was developed mainly as jurisprudential law. Jurisprudential law is similar to judge-made law in respect of being developed case-by-case and by legal professionals. 3. Legal families and complexity Common law, with its case-by-case creation of legal rules seems to indicate similarities with the evolutionary model of lawmaking. Judges solve cases based on their own feel of justice, but are constrained by the stare decisis principle. Judge-made law is thought to be very unpredictable by its opponents and as very predictable by its proponents. In reality, the question is, whether this mode of lawmaking is more efficient than statutory law. Cardozo stated, that judicial decisions offset each other in an evolutionary process which results in deletion of bad decisions from the body of law (Ponzetto & Fernandez, 2008, p. 381). This view of judge-made law as a gradual process 474 | of refining more and more efficient rules is interesting, however, efficiency does not necessarily follow from gradual change. Jurisprudential law according to Giaro is an intermediate state between case law and statutory law (2008, p. 17). Roman jurists did work on abstract cases, but they were not directly involved in the administration of justice. They perfected the legal method by stripping it from arguments of personal and religious nature (Giaro, 2011, p. 215). The abstractions of Roman jurists not only allowed the creation of effective rules of substantive law, but also created a model of thinking about legal problems. Statutory law is a broad term which encompasses many various styles of legislation. It is very misleading that one term is used for laws which differ vastly in character. Roman law itself was home to a couple of types of legislation. Roman statutes were legislations passed by means of direct participation of the people. Those laws were usually very short, according to modern standards, and aimed to regulate a single issue. Constitutions, on the other hand, were the result of the power of the princeps. Legislation, therefore, might come as a result of a democratic (or quasi-democratic) process or as a result of force. There is as well another, more important feature of legislation – the drafting process, and in particular the approach of the law-maker to the role of legislation. Some laws are a result of cautious observation of social customs and previous judicial decisions; civil codes usually follow the path of intellectualization of customs and court practice. Other kind of legislation is aimed to create new social reality, with no regard for customs. Those two types are just extreme points of a continuous spectrum of possible legislation. The unification efforts, taking place in the European Union, are in fact a mix of legislation, case law and jurisprudential law. This article comments only the Draft Common Frame of Reference, henceforth DCFR (von Bar, Clive, & Schulte-Nölke, 2009a), which has proven to be the most successful unification attempt in recent history. Unification is a difficult endeavor for it is intended to create a new law, but one which would satisfy, at least partially, the intuitions of lawyers of various legal systems. To achieve this goal, the makers of the DCFR used various approaches. This method allows to classify the DCFR as an act, which has features of legislation, jurisprudential law and case law. 4. Unification of contract law The law of contract has been built around the idea of people exchanging promises of certain future behaviors. The first issue that every system of contract law has to decide is which categories of promises are legally relevant. In other words, what kinds of agreements would be enforceable in the judicial system. This problem leads to various dogmatics. French contract law, which is based on philosophical reflexion on the Roman law uses the institution of causa to determine whether the exchange of promises constitutes a contract (Van Vliet, 2003, p. 342). English common law uses the institution of consideration to achieve a similar results (Gamage & Kedem, 2006, p. 1299). The DCFR frowns at both legal devices as one of the underlying principles: “The absence of any need for consideration or causa for the conclusion of an effective contract, the recognition that there can be binding unilateral undertakings and the recognition that contracts can confer rights on third parties all promote efficiency (and freedom!) by making it easier for parties to achieve the legal results they want in the way they want without the need to resort to legal devices or distortions (von Bar, Clive, & Schulte-Nölke, 2009b, p. 95).” It is an interesting question, whether causa and consideration are the source of problem, or are they a solution (possibly imperfect) to some other problem of factual nature. If the second proposition is true, then the deletion of the institutions would lead to creation of a new one. Both causa and consideration are simple at first glance, but complex in detail. This allows to speculate, that whatever legal device would be created to substitute them, the result of application by courts is unpredictable. | 475 Another feature of contract law is the interplay between the dogmatics and the custom. Many systems of contract law developed on customary basis. Before there were contracts in legal sense, people exchanged promises and there existed customary methods of executing those promises. The institutionalization in customary law is a gradual process. With rise of legal science, lawmakers stood before the problem of describing social reality with dogmatic concepts. This process lead to diverging institutions in various legal families. For example, to describe the process discussion between potential business partners Polish law introduces the institution of negotiations, while the common law thinks of it as and exchange of offers and counter-offers. This seemingly superficial difference has deep consequences for the negotiators. If we treat the “discussion on terms of a future contract” as a negotiation, it brings this phase of business dealings from the sphere of fact to the sphere of law. If the “discussion” is treated as an exchange of offers and counter-offers it remains in the sphere of fact, as each counter-offer invalidates the previous offer and does not lead to a pre-contractual obligation. The complexity of contract law comes from the interplay between the parties of contract and the norms. Legislative change of contract law does not automatically provide the outcome desired by the lawmaker. Market actors will adapt and change might lead even in a direction reverse to that designed by the lawmaker. 5. Unification of tort law Tort law, viewed from comparative perspective, shows how legal evolution leads to different dogmatic solutions while working on very similar problems. Tort law in this sense is a great example of the limits of functional method as the legal system is not only dealing with reality of accidents, but also has to deal with itself. Despite the dogmatic variety within the borders of the European Union, tort law provides economically similar solution in a vast majority of cases (Wagner, 2009, p. 3). Ideally, tort law is intended to minimize the social cost of accidents, however, there are differences between some categories of cases solved on grounds of various legal systems. One such category is pure economic loss, where different systems provide different outcomes. Another such category is liability for emotional distress. Those two categories prove, that the task of minimizing the social cost of accidents in a hard one. A difficult problem, from the point of view of law and economics, is the lack of information on the real social cost of an accident in a given institutional setting. For example, pure economic losses are not considered to constitute a social cost directly, however, allowing recovery of pure economic loss creates incentives to take precautions and to insure. This incentives might lead to inefficient outcomes, i.e. the aggregate cost of precautions might be higher than the value of the loss. This problem is not only present in pure economic loss cases, but undoubtedly it is a category in which criticism of allowing claims is well founded. The discussion is challenging to conclude because of the insufficient information about the economic behaviors in certain categories of cases. It is unfeasible to create one general rule of pure economic loss, as in each group of cases the economic model is different. In, so called, cable cases the economic analysis is leading us in direction of the exclusionary rule, i.e. to deny damages for pure economic loss (Bishop, 1982, p. 1). The category of transferred loss (see Palmer & Bussani, 2007, p. 12), on the other hand, leads us to conclude that some cases of pure economic losses should be compensated. French law and other legal systems which borrow its general clause of liability in delict approach the problem of pure economic loss from a very general perspective. This reduces the problem to dogmatic interpretation of the concept of causation and the concept of relevant damage. This reduction does come with a price of not forcing judges to think about the economic outcomes of decisions. No economic analysis is implied in the code. Common law uses a piecemeal approach forming exceptions to the general exclusionary rule. Ibbetson argues, that the 476 | law of tort is in “a mess”, however, he admits that it might be a natural state for tort law (2003, p. 475). The reason for this is gradual and reactionary development of torts. “Messiness” of tort law should not be seen as an error one needs to correct. Law is not there to provide a viewing pleasure for a legal scholar; it is there to solve social problems. It a complex tort law provides the society with most effective solutions, then the proper choice is to live with the “mess”. The afore-mentioned pure economic loss provides a good example for analysis of tort law with respect to the methods of lawmaking. DCFR differs here from the common law. Common law approaches the problem with the exclusionary rule. A person, who used an opinion of a profession with whom he does not have a contract could not seek protection under common law. Under the DCFR such liability can be interpreted from Art. VI . – 2:207: “Loss caused to a person as a result of making a decision in reasonable reliance on incorrect advice or information is legally relevant damage if: (a) the advice or information is provided by a person in pursuit of a profession or in the course of trade; and (b) the provider knew or could reasonably be expected to have known that the recipient would rely on the advice or information in making a decision of the kind made” (von Bar et al., 2009b, p. 398). At first glance, the choice between the a priori and dogmatic exclusionary rule, and the self explanatory rule of the DCFR seem to be obviously simple to the benefit of the latter rule. On closer examination there appear many arguments for the exclusionary rule. A professional who provides information without contract has no possibility of internalizing the benefits of use of the information, neither he has any control about the size of potential loss. Allowing recovery of such a loss would distort the incentives of the professional and encourage him to share information only as performance of a contract, or to insure while sharing without contract. Both behaviors are not socially beneficial. 6. Conclusions The idea of anti-fragility which can be applied to complex systems seems, at least partially applicable to law. If private law is antifragile then some amount of “stress” is beneficial for the system. Where would this stress come from? Stress in legal context might be described as an evolutionary (as opposed to revolutionary) social change. The method of Roman jurisprudence shows a degree of antifragility. Jurists found solutions to legal problems by reasoning based on abstracting the law from facts. They isolated a set of circumstances relevant for a concrete case and created a solution. The jurist’s answer to a legal problem was not final. In course of history competing answers would arise and the community of jurists decided on the “true” solution. This method is similar to the one used in empirical sciences. This process allowed to gradual change and broad access to information. This is a method of lawmaking remarkably different from legislation, although many civil codes based their substantive law on the solutions provided by Roman jurists, but would not share their working method. The jurisprudential mode of lawmaking is not used in modern legal systems. But a legal system does not have to incorporate the Roman method of lawmaking as a whole to have benefits of its antifragility. The first method, which should be incorporated into modern legal systems, is to abstract norms from customs and not the other way around. Customs contain information, which is not accessible by analysis of literature. Especially if the literature was written by a person sharing the culture which he describes. Secondly, legal systems should abandon the illusion, that a clear and simple legal text is a source of simple law. Complex dogmatics will emerge if they are necessary. Forcible simplifications may just move the problem from the legal text to judicial decision, where it is harder to see. Not seeing the problem is not the same as not having a problem. Thirdly, legal systems should not strive for universalism. Small legal systems, which share the same legal culture, might produce costs in transactions occurring between the system, but the cost is not neces- | 477 sarily higher than the cost of having one huge unified system. References Bishop, W. (1982). Economic Loss in Tort. Oxford Journal of Legal Studies, 2, 1. Gamage, D., & Kedem, A. (2006). Commodification and Contract Formation: Placing the Consideration Doctrine on Stronger Foundations. University of Chicago Law Review, 73, 1299. Giaro, T. (2008). Roman Law always dies with a codification. In A. Dębiński & M. Jońca (Eds.), Roman Law and European Legal Culture. Lublin. Giaro, T. (2011). Knowledge of Law as Knowledge of Facts. The Roman Experience. In T. Giaro (Ed.), Roman Law and Legal Knowledge. Studies in Memory of Henryk Kupiszewski (pp. 215–241). Warszawa: University of Warsaw. Ibbetson, D. (2003). How the Romans Did for Us: Ancient Roots of the Tort of Negligence. University of New South Wales Law Journal, 26, 475. Omodei-Sale, R., & Zaccaria, A. (2004). Compensation for Pure Economic Loss Under Italian Law. In W. H. van Boom, H. Koziol, & C. A. Witting (Eds.), Pure Economic Loss. Wien: Springer. Palmer, V. V., & Bussani, M. (2007). Pure Economic Loss: The Ways to Recovery. Electronic Journal of Comparative Law, 11.3. Retrieved from http://www.ejcl.org/113/article113-9.pdf Ponzetto, G. A. M., & Fernandez, P. A. (2008). Case Law versus Statute Law: An Evolutionary Comparison. The Journal of Legal Studies, 37(2), 379–430. doi:10.1086/533421 Taleb, N., & Douady, R. (2012). Mathematical Definition, Mapping, and Detection of (Anti)Fragility (SSRN Scholarly Paper No. ID 2124595). Rochester, NY: Social Science Research Network. Retrieved from http://papers.ssrn.com/abstract=2124595 Taleb, N. N. (2012). Antifragile: Things That Gain from Disorder. New York: Random House. Van Vliet, L. P. W. (2003). Iusta Causa Traditionis and its History in European Private Law. European Review of Private Law, 3-2003, 342. Von Bar, C., Clive, E., & Schulte-Nölke, H. (Eds.). (2009a). Principles, Definitions and Model Rules of European Private Law. Draft Common Frame of Reference (DCFR). Munich. Retrieved from http://ec.europa.eu/justice/contract/files/european-private-law_en.pdf Von Bar, C., Clive, E., & Schulte-Nölke, H. (Eds.). (2009b). Principles, Definitions and Model Rules of European Private Law. Draft Common Frame of Reference (DCFR) . Outline Edition. München: Sellier, European Law Publ. Wagner, G. (2009). The Law of Torts in the Draft Common Frame of Reference. SSRN eLibrary. Retrieved from http://ssrn.com/paper=1394343 Watson, A. (1974). Legal Transplants: An Approach to Comparative Law. Edinburgh. Works, R. (1966). Comparative Approaches to Delictual Responsibility: The French and the American Perspectives. Saint Louis University Law Journal, 11, 587. 478 | Róbert Jáger Michal Turošík University of Matej Bel in Banská Bystrica The Act empowered to change the Constitutional Charter and constitutional laws of the Republic of Czechoslovakia and its implications for the treatment of fundamental human rights and freedoms Abstract The period preceding World War II is in Europe‘s history and in the history of Slovakia very serious and breakthrough period. At that time, the international-political scene experienced many very serious changes in the distribution of political forces, which caused the significant intervention in many areas of life. Such changes also occurred in the pre-war Czechoslovakia. However, it was strange that about the fate of Czechoslovakia was decided without its participation. After the Munich Conference and the Vienna Arbitrage certain changes were dictated to our state that had to be done. (Those serious social changes must be seen in terms of spreading the Nazism, and preparation of Europe for a possible military conflict.) Czechoslovak public authority responded to the social and political changes. A certain reaction can be considered the adoption of several laws that essentially disrupted the mechanism of functioning of a democratic state (and along with it the potential interference with the fundamental rights and freedoms). At the beginning, however, it is necessary to say that these changes did not only occurred in the pre-war Czechoslovakia, but also in other European countries, and in many instances Czechoslovakia just copied the rules of Western Europe Key words: Fundamental rights and freedoms. Empowering law. Public power. Government. Parliament. Constitutional system. Munich Conference. Vienna Arbitrage 1. General characteristics of Czechoslovakia during the interwar period Since our ancestors focused on the own national, political and cultural autonomy in 1939s, they went through complex political, national and social development. First attempts to acquire own autonomy through fighting in the revolutionary years 1848-1849 were not successful. Even the other attempts in the stopgap years (1860 – 1868) did not bring any satisfactory results. On the contrary, the Austria-Hungarian settlement in 1867 triggered national and social oppression of Slovaks, which caused the struggles for the own national survival. Slovaks desperately needed an ally who would help them to defend against oppression and to obtain their own autonomy enabling the nation to survive. Czechs, who after domestic and foreign revolt were able to create the common state, became the Slovak allies. The situation of the Slovak nation after the First World War was not easy and they could not dictate the rules and conditions of their future life together. At the end of this war conflict, the representatives of our nation wanted to create one state of Czechs and Slovaks supposing any other existence than existence in Austria-Hungary will be definitely better. We should understand in same way the attitudes of Slovak representatives who wanted Czechoslovakia without any specified political terms but thinking Slovaks will have better conditions for national development. Czech political representatives were not willing to accept Slovakian requirements and that is why Slovak representatives were disappointed. The both nations remained in the centralized model of the relationships in the time when Czechoslovakia was getting into political isolation as a result of a rise of | 479 Hitler’s strength. Events from September 1938 meant not only foreign political collapse of Czechoslovakia but also its inner politics (Mosný - Hubenák, 2005, pp.266 and Mosný, 2013, pp.33). At that time the Czech part could not deny dealing with Slovaks, but when the government decided to solve ‘Slovak matters’ it was already too late. The declaration of the Slovak autonomy from 6th October 1938 was influenced by political relationship. The Slovak side did not want to remain at the background and they started promoting their interests. The famous representative of the Enlightenment Louis Montesquieu is author of the following statement: ‘Everyone who has got the power has also inclination to abuse it.’ (Broestl, 1991, pp.79). It closely explains the principle of sharing the power control. The use of this principle, which was used first time in American constitution of the state Virginia in 1776, should prevent gathering the powerand its misuse. The bodies of democratic states have to be arranged so no one will dominate. How to share power and prevent gathering of the power is one of the oldest, but also current question (Schneiderová, 2001, pp.135). Contemporary and also past Government Studies explains further that the state authority should be divided into legislative, executive and judicial when all these components have to meet following requirements: separateness, incompatibility (of the power in one’s hands), creative independence (one system of the bodies is not dependent on the other system of the bodies) and mutual independence (political irresponsibility-body of a state cannot dismiss a representative of the body). We need to mention triple division of the power, principle of power sharing but when every component of the power is equal to other components. The triple division principle was at the turn of 18th and 19th century supplemented with a principle of mutual holdouts and counterweights. Its author is probably Thomas Jefferson who in his work Notes on the state of Virginia states: the power in the state should be divided between several authorities so they cannot contravene the rules given by the law without other authorities restrictions. There is not any strict division of the legislative, executive and judicial authority in the contemporary practical democracies. It is possible to see some marginal intervention of one component to another. This is not considered as breaking the principles of the law state. This minimal intervention does not mean an absolute dismissal of legislative authority of legislative body and its division in between executive power bodies. This happened in Czechoslovakia at the end of the year 1938 (Mosný - Hubenák, 2005, pp.266 and Mosný, 2013, pp.33). 2. Undemocratic change in the law of Czechoslovakia after the Munich Conference The aim of this work is to point out some events in Czechoslovakia which after Munich events seriously changed constitutional system of this state so the new model of the state function resembles dictator form of government. These changes happened after an adoption of Constitutional Act No. 330/1938 Coll. Authority to change the Constitutional Charter and the constitutional laws of the Republic of Czechoslovak and prescriptive authority. This law points out the position of the highest state representatives was similar to the position of special clerks in ancient Rome. Political affairs after Munich conference and following Vienna arbitrage in Czechoslovakia caused negative impact on the society. The authorities have to do some changes to prevent ‘another losses’ It was necessary to do some legal steps that would be authorized by the government. The presentation of proposal of the government of an enabling act was one of the first moves of Beran government. There were more enabling acts in the short history of Czechoslovakian history of state and law. Constitutional Act No. 330/1938 Coll. Authority to change the Constitutional Charter and the constitu- 480 | tional laws of the Republic of Czechoslovak and prescriptive authority was different. Constitutional Act No. 330/1938 Coll. which was ratified by National Assembly had in its final form four articles (This happened on 157th meeting of Chamber of deputies 14. December 1938, when Constitutional Act No. 330/1938 Coll. was published). The Constitutional Act derogated part of legislative power of National Assembly and it was divided in between the President and the Government. These authorities are usually considered as the executive powers. This is how a new model of the state was created. This norm broke the principle mentioned before. The 1st article of Constitutional Act No. 330/1938 Coll. the President was empowered after the unanimous proposal of the government to make the changes which would otherwise require approval of a majority of the body of legislation . The position of the National assembly was changed to formal existing organ without a real legislative power. This President empowering was linked with the Constitutional Act No. 299/1939 Coll. about Autonomy of the Slovak republic only if the Congress of Slovak republic had approved it. Whereas the Congress of Slovak republic was not formed when the Constitutional Act No. 330/1938 Coll. was adopted. For that reason this empowering could not happen unless the Congress had been formed. Authorization under paragraph 1 shall become effective on the date established and lasts two years. According to the art II of Constitutional Act No. 330/1938 Coll. Government is empowered to two years after the beginning of this Act Regulation did all the necessary steps, even if they were not the necessary laws. The regulations in the cases mentioned in § 4 of the Constitutional Law no. 299/1938 Coll. requiring the consent of the majority of the Slovak regional government. All these regulations require the consent of the president, who signed them together. And even in their similar validity for Ruthenia - it is relevant to these Regulations. The authors of this constitutional act were trying to create the system of mutual holdouts and counterweights. This had to be removed after closer study. It was considered to be as an attempt of the authorities to obtain the power. Article III of Constitutional Act No. 330/1938 Coll. legalised all the regulations which were passed on the basis of the previous enabling acts and also according to § 138 law about the defence of the country. The aim of this change was to eliminate all doubts about constitutionality of these regulations which could happen at the court that had the right to inspect legality of the statutory orders. The article was retroactive which was not in accordance with the basic human rights, a principle of human security or parliament democracy. The final article IV of Constitutional Act No. 330/1938 Coll. contained clause by which the law became effective- with an exception of the article I of Constitutional Act No. 330/1938 Coll. This rule of law became effective in two different ways: the article I of Constitutional Act No. 330/1938 Coll. became effective 18. January 1939, the day of the Slovak Assembly meeting, other regulations of Constitutional Act No. 330/1938 Coll. became effective already on 17. December 1938, at the day of publishing. This final version of Constitutional Act No. 330/1938 Coll. was not in accordance with the original proposal of the government, which was presented to National assembly on 12. December 1938. The original text of the proposal of the norm, which was later published into Constitutional Act No. 330/1938 Coll. and which drastically influenced the society, was significantly different from its definitive form. Its definitive form uses the name: ‘the authority to change the constitutional documents and constitutional laws of the Republic of Czecho-Slovak and the enacting of exceptional power’ whereas the previous title was: ‘the change of constitution of Czecho-Slovak republic and the enacting of exceptional power’. According to Minister Dr. Sokol it should have been obvious that the President was not | 481 empowered to publish a new constitution. The norm can be named differently but its content with anti democratic effects remains the same for the whole society. Not only the name was different. Several clauses, which Constitutional Affairs Committee had suggested to incorporate, were missing. The original proposal did not take into account the fact that there were present also members of the Government Ruthenia, not only Slovak regional government members on the government meeting . Therefore the Constitutional Affairs Committee suggested adding into the text the words: ‘as well as at least one member of the Government Ruthenia’. It meant the government could not do any important proposal with the consent of at least one member of the Government. The Constitutional Affairs Committee suggested integrating into the changes of a society also representatives of the public authority in the Government Ruthenia which was considered to be undemocratic. While there was expected to be present at least a majority of Slovak regional government, therefore at least one member of the Government Ruthenia was not proportionally representing of minorities of the society. The Constitutional Affairs Committee proposed another change to the legal status of Ruthenia. There was third sentence added to the first paragraph of the I. Article: ‘Provision of the preceding sentence shall apply mutatis mutandis to Ruthenia respect to the law on autonomy for Ruthenia, until it is established dream Ruthenia, the agreement replaces the agreement of the Government Ruthenia.’ This addition was rationalized by status of Ruthenia as an autonomous country of Czechoslovakia. It also gave it the same legal status as Slovakia had had. Another changes suggested by The Constitutional Affairs Committee were about the article II. In front of the word ‘These’ was added another word ‘All’. It was necessary so approval and signature of the President would be required not only for the governmental issues which according to § 11, para. 2 of Constitutional Act No. 299/1938 Coll. belong to the National Assembly, but also for the other regulations legislated according to article II of this Act. It was proposed that the article number III. would be supplemented with this new sentence: ‘The Art. III refers to the government regulations issued statements to this Act.’ (It would mean another retroactive effect of the law). This suggestion was not accepted by The Constitutional Affairs Committee because previous regulation acts were not valid so the government could not pass any new regulations. Not only was the passing of the legal rule very interesting but also the essay in Chamber of Deputies of National Assembly. Fact that debating of this proposal in the Chamber of Deputies of National Assembly was connected with debating about declaration of Prime Minister Beran on 156th meeting became very important for passing the enabling act. It meant that the ministers focused more on declaration of the Prime Minister Beran than on the actual enabling act and its possible consequences on the society. This step is not considered as very suitable. The debate did not discuss the proposal of the government very much. It might have had its reason-to distract the attention from the serious problem to the general political problem. No one indicated any serious risks that this norm could bring. It is necessary to mention that the discussion was very vivid and the ministers expressed their opinions and emotions. They were often asked to calm down and some passages had to be deleted from stenography record. Czechoslovakian government did not come with the proposal for power of attorney in December 1938 for the first time. In the article number 3 of the proposed proposal was mentioned the enacting of exceptional power. What was important was the difference between these enabling acts and proposal of the government which was presented in year 1938. While the previous enabling acts were only ordinary acts, the government asked for power of attorney in the form of the constitutional law. 482 | The correspondent of Constitutional Affairs Committee Dr. Sokol declared that this removed doubts which could be done to previous enabling from constitutional acceptability. In order to eliminate the doubts about the Constitutional Act No. 330/1938 Coll. Authority to change the Constitutional Charter and the constitutional laws of the Republic of Czechoslovak and prescriptive authority about enabling acts, the presented proposal contained a clause in the article number III. which corrects all governmental clauses which had been so far published on the basis of there mentioned enabling acts. The argument that explained the necessity of passing this law was that the President was given an authorisation where he had been selected by National Assembly. Another argument was that the authorisation was given to the government who had been trusted to and it was all in the interest of the state. All these changes in the Czech and Slovak society had a negative impact on the state and therefore the top representatives were asking to increase their power. Even this serious action into the parliament democracy did not bring the desired results. 3. Summary In order to eliminate the doubts about the Constitutional Act No. 330/1938 Coll. Authority to change the Constitutional Charter and the constitutional laws of the Republic of Czechoslovak and prescriptive authority about enabling acts, the presented proposal contained a clause in the article number III. which corrects all governmental clauses which had been so far published on the basis of there mentioned enabling acts. The argument that explained the necessity of passing this law was that the President was given an authorisation where he had been selected by National Assembly. Another argument was that the authorisation was given to the government who had been trusted to and it was all in the interest of the state. All these changes in the Czech and Slovak society had a negative impact on the state and therefore the top representatives were asking to increase their power. Even this serious action into the parliament democracy did not bring the desired results. References BEŇKO, J. et all. Dokumenty slovenskej národnej identity a štátnosti I. (Documents of Slovak national identity and statehood I.) Bratislava: National literary centre - House of Slovak literature, 1998. p. 514. ISBN 80-88878-43-8. BEŇKO, J. et all. Dokumenty slovenskej národnej identity a štátnosti II. (Documents of Slovak national identity and statehood II.) Bratislava: National literary centre - House of Slovak literature, 1998. p. 524.ISBN 80-88878-48-9. BROESTL, A., DOBROVIČOVÁ, G., KANÁRIK, I.: Základy štátovedy.(Fundamentals of political science) Košice: UPJŠ. 250s. 2004 BENDER, J. et al. Dejiny Európy (The history of Europe). Bratislava: Mladé letá, 1998, p. 395. ISBN 8006-00605-9. KOVÁČ, D. et al. Kronika Slovenska 1 – od najstarších čias do konca 19.storočia (Chronicle of Slovakia 1 –from the earliest times to the end of the 19th century). Bratislava: Fortuna Print and Adox, 1998, p.616. ISBN 80-7153-174-X. KOVÁČ, D. Dejiny Slovenska (History of Slovakia). Prague: Publishing Lidové noviny, 1998, p. 401. ISBN 80-7106-268-5. KRŠÁK, P. Ottov historický atlas Slovensko (Otto’s historical atlas of Slovakia). Prague: Otto Publishing. 2009, p.559. ISBN 9788073608347. MALÝ,K. , SOUKUP,L. Czechoslovak law and jurisprudence in the interwar period (1918-1938) and their place in Central Europe (Československé právo a právní věda v meziválečném období /1918-1938/ a jejich místo ve střední Evropě). Prague: Karolinum. 2010. p.1184. ISBN 9788024617183. | 483 MATLÁK, J. Právo sociálneho zabezpečenia. (Social security law). Plzeň: Aleš Čeněk Publishing, s.r.o., 2009. P.377. ISBN 978-80-7380-212-7. MOSNÝ, P., HUBENÁK, L. Dejiny štátu a práva na Slovenku (History of State and Law in Slovakia). Košice: Pavol Jozef Šafárik University in Košice, 2005, p.362. ISBN 80-7097-600-4. MOSNÝ, P. Východiská sociálnej doktríny Slovenskej republiky 1949-1945 (Background The social doctrine of the Slovak Republic 1949-1945). In MOSNÝ and col.: Právnohistorická realita sociálnej doktríny 20. Storočia (Low - historical reality of the social doctrine of the 20th centuries) 2013, p. 288. ISBN 978-83-7490-587-9. RÁKOSNÍK, J. Odvrácená tvář meziválečné prosperity - Nezaměstnanost v Československu v letech 1918-1938 (The Dark Face of Inter-war Prosperity - Unemployment in Czechoslovakia in 19181938). Prague: Karolinum, 2008, p.461. ISBN 978-80-246-1429-8. RUSSEL, K. Atlas lidské migrace (Atlas of human migration), Prague: Mladá fronta. 2008, p.192. ISBN 978-80-204-1706-0. SCHNEIDEROVÁ, A.: Reflexia moci v preklade (Reflection of Power in Translation). In: Zborník mladých filológov Univerzity Mateja Bela II, Materiály z II. konferencie mladých filológov. Banská Bystrica: Fakulta humanitných vied UMB, 2001, pp. 135 – 139. ISBN 80-8055-570-2 SCHOT, H. et al. Kronika medicíny (Chronicle of medicine). Bratislava: Fortuna Print, 1994. p.647. ISBN 80-7153-081-6. SKALOŠ, M. Historické aspekty slovensko – českých vzťahov (Historical aspects of Slovak-Czech relations). Banská Bystrica: UMB, 2008, p. 292. ISBN 978-80-8083-610-8. STEVENSON, J. Dejiny Európy – od najstarších civilizácií po začiatok tretieho tisícročia (History of Europe - from the earliest civilizations to the beginning of the third millennium). Prague: Otto Publishing, 2003, p. 510. ISBN 80-7181-132-7. STODOLA, E. Štatistika Slovenska (Statistics of Slovakia). Turčiansky St. Martin: published on the author‘s own cost. 1912, p.158. VLČEK, E. Vznik sovietského štátu a práva v rokoch 1917-1918. (Formation of the Soviet State and Law 1917-1918). In: Kadlecová, M. et al. Legal history. Prague: Eurolex Bohemia, 2005, p.579. ISBN 97880-7380-161-9. ŽILOVÁ, A. Chudoba a jej prejavy na Slovensku (Poverty and its manifestations in Slovakia). Badin: MENTOR, 2005, p.161. ISBN 80-968932-2-X. Shorthand report about 157th meeting of Chamber of Deputies of National Assembly from 14. December 1938 Constitutional Act No. 330/1938 Coll. Authority to change the Constitutional Charter and the constitutional laws of the Republic Constitutional Law no. 299/1938 Coll. about autonomy of Slovak republic. This article is published with the support of grant project titled: KEGA no. 003TU-4/2012 “Formácia podnikateľských schopností študentov spojená s reformnou optimalizáciou výučby dejín štátu, prameňov práva a právnych inštitútov” (The formation of entrepreneurial skills of students associated with optimizing the Reform of teaching history of law, sources of law and legal institutions.) Principal Investigator: prof. JUDr. Dr.h.c. Peter Mosný, PhD. 484 | Srdjan Djordjevic [email protected] Milan Rapajic [email protected] University of Kragujevac The Infuence of Populism on the Constitutionality of European countries Abstract Problem statement: Fulfilling the vision of European countries with rich democratic tradition is not an easy task. One of the problems that should be noted on this journey is a random occurrence of the increase of populism within some nationalistic political systems and its influence on constitutions. At the global constitutional level, particularly in the regions of Latin America, Africa and Asia,   we can note some constitutional systems with an expressive influence of populist ideology on the creation of constitution. However, even European constitutional area is not immune to this phenomenon, the Balkan countries being a good example of it, but also it is the case with the   contemporary Hungarian situation with constitution. Methods&Procedure: Comparative, theoretical, historical, legal, normative methods. Results&Findings: In this work authors present the theoretical analysis of the conditions that favor the appearance of populism , as well as the way in which it affects the formation of constitutional provisions. Besides pointing to the common elements that help us recognize that a constitution   has been created under the influence of populism , the author also directs his research efforts towards proving the hypothesis that populism destabilizes a constitutional democracy. Conclusion: Such a situation can, at the same time,   represent a threat to the fulfillment of an idea of a human European democratic society and therefore it is necessary to duly dedicate “creative efforts corresponding to the amount of the actual threat” in the context of Schuman’s vision that ” Europe cannot be created overnight.” Keywords: constitution, populism, Europa, constitution preamble, human rights. 1. Introduction In the agenda of continuous topics that characterize a state with a rule of law, the constitutionality issue is unavoidable and reaches the very top of its legal and political architecture, leaving the impression of the principle which is tightly knit into the foundation of the conceptual structure of the idea of a state and its existence. Constitutionality originates from the formulated idea of constitution, but, at the same time, it complements it, thus ensuring the effectiveness and functionality of the existing set of constitutional norms. Constitution without constitutionality is logical contradiction in terms which degrades the application of constitution and questions the justification of its existence. Hence, it could be said that constitutionality represents a precondition for the existence of constitutional norms in any state and, therefore, is entitled to be qualified as the fundamental principle for the realization and regulation of vital relations within the state. Of course, we are aware that there are differences in understanding the concept of constitutionality1 (Hamilton, Madison, Jay, 1981.p.3) where a set of ideas and experiences treating it as, either a legal, or a political principle have been distinguished. It is interesting to note that | 485 previously stated principle remarks can be equally applied to both conceptual observations of constitutionality, so that they seem to be interconnected in a logical symbiosis. Our approach to the issue of constitutionality in the context of the central theme of this work is based on the introductory course that we have taken – to sublime constitution as a political and as a legal principle. Our intention is supported by our plan to link constitutionality with populism,that is to explore the methods and extent of its influence on constitutionality. Since populism is the result of the political streaming of a state, it would seem right to research constitution primarily as a political principle in the context of populism. Yet, on the other hand it would be inappropriate to neglect the significance of legal categorization of constitutionality which might, at the same time, represent a rigid restrictiveness in researching such an important issue. These are the starting, as well as principal reasons that have motivated us to recognize, for the purpose of this work, both the legal and political form of the constitutionality, thus satisfying our creative intentions to explore this issue in a more comprehensive way. The importance of the task we have chosen to pursue here is shown by a number of historical and contemporary examples of the significant influence of populism on the course, development and status of constitutionality on a global map. We can almost speak of the phenomena of continental dimensions, so that each period of the development of constitutionality2 on a global level is marked with the cases of expansive impact of populism on constitutionality. Even if we have a dilemma related to the areas with stabilized constitutions, such as USA3, Great Britain4 and Australia5, the dynamics of the constitution development on European, South-American, Asian and African continents lead us to different conclusions in regards to this matter. Let us attach intellectual reservation to our previous remarks which is related to our understanding of populism for the purpose of researching its influence on constitutionality. Speaking about populism on the basis of available literature, our observations will be confined to democratic political systems, even with a minimum form of democracy. This means that we will not indulge in analyzing the influence of populism on the constitutionality in formally recognized nondemocratic regimes void of elementary characteristics of democratic life. 2. The meaning of populism Multidisciplinarity in the research of populism points out to the fact that it is a term with a complex content and in order to unerstand it, we have to go back to its principal determination. This concept is primarily located within the frames of politicology and sociology, which does not mean that it cannot be found in other social disciplines. Believing that law is also entitled to an interest to absolve the problem of populism within its own theoretical discourse and normative order, the authors of this work at the same time emphasize the need to recognize how the researches from other scientific disciplines, politicology for example, understand this concept. Since populism is mostly explored in this area of social thought, the authors have been unavoidably faced with an opulent literary opus leading them to acquire a prejudicial level of expected underastanding of populism.6 Having aligned our thoughts on populism, bringing it to the level of an acceptable concept, then, we have found it justifiable to explore populism in the context of its relation to classic legal terms, such as constitution, constitutionality and constitutional order. Probably we are not going to dispute the fact that in political lexicon of contemporary democracy, populism has a negative conotation, since it is a term with a pejorative meaning. Such a context, where the concept has already been singled out as negative, creates an atmosphere in which political subjects resolutely, almost with panic, refuse to have their political activities labelled as populism. To be a populist today means to be against democrarcy. Yet, the origin of this word does not lead us a priori to comit ourselves to this impression. Namely, the term populis (people) is a linguistic basis for the formation of the word populism, so, bearing in mind this 486 | derivation, we cannot easily accept and conclude without reservation that populism is something negative. In relation to the essence of political life, the ethimological introduction of populism through the word „people“ should be promising, a rather legitimate form of exercising political power compared to other words derived from the basis such as „dictator“, „auto“ or „totality“. Of course, in order to fully grasp the meaning of certain concepts it is not enough to play with words, but is rather necessary to understand the historical path of ethimological bases in the light of social life. Therefore, it seems interesting to remind us of the period of Roman Republic when the term populus was a terminological model for desribing a political movement7 which represented the interests of common citizens. In those days the term populis did not assume the concept that could be treated as unacceptable in relation to existing political order. It seems interesting to note that in the course of two milennia of social history, the term populus has changed reaching its pejorative conotation in contemorary vocabulary, whhich can be considered as an opposite outcome in relation to the term democracy and its political journey through history (from the Aristotel’s belief that it is not a good form of political order to the contemporary widely expressed belief that it is an utmost positive and almost irreplacable form of political life). It was not before the 20th century that modern political theory started to show its interest in the concept of populism including it into its research efforts as a way to respond to the challanges of active political life. The apperance of the People’s party in USA marked the beginning of populism, as it was evidented and emphasized by politicological theory. „This party won a several dozens of seats in the House of Representatives and several seats in Senate in the elections from 1890 to 1900, but an attempt to firmly establish populists as a third political option failed. Yet, the term populism has survived as a symbol of political movement which defends the intrests of common people as opposed to the interests of political and business elite.8 (Salaj, 2012, pp.23-24) The introduction of populism into American political practice9 and the reaction of political theory thereof, represent, so to speak, pioneering endeavours, since such theoretical concept started to establish itself as a recipe for an accaptable way of understanding the same phenomenum in other parts of the world. The tendency to theoretically elaborate the topic of populism continued after the World War II, which was the result of a gradual stabilization of this theoretical concept, but also of some notable practical examples of populism in political practice. Political theory has not been unanimous in relation to the problem of populism as a political ideology, and different opinions have been noted thereof ranging from denying the justification of treating populism as a political ideology to insisting on giving populism a characteristic of political ideology. This latter opinion is further elaborated by beliefs that allow us to speak of an acceptable populism and a radical populism. In addition, there have been some notable efforts to establish populism as a political ideology and introduce a populist style in political activities, regardless the ideological determinant. A general, summed, but, at the same time, simplified approach to classification of populism in the context of political ideology shows that it is even today possible to minimize pejorative meaning of populism. For the purpose of our work, as we pointed out at the beginning of this paper, we will explore the theme of populism in the cotext of its final influence on constitutionality. That is, we will not consider relevant what is for political theory of crucial importance when discussing the issue of populism – we will discuss the possibility of interweaving it into the structure of constitution and constitutionality allowing it to influence even the mere course of constitutional development of some state and legal systems. Bearing this in mind, we will pursue the prism of contemporary examples of populism that are present in political life with the power to impose the pattern of constitutional texts and ideas. Therefore, to view populism as a political ideology is of particular importance, since in this way we can show that populism can have far reaching consequences on a state’s constitutionality. To discuss populism as a type of conduct of a political subject is not relevant for our assigned topic since such a form of populism is not particularly interesting to analyze in the context of constitution an constitutionality. | 487 Thus, we will consider populism as a political ideology, bearing in mind different variables of this dimension of populism. Namely, populism as a political ideology can be insufficient to be vowen into the political structure of a society, and therefore, in such situations, it tends to link with other, more coherent political ideologies. In such a form of alliance, populism seeks to position itself on a political map attracting or being attracted to left or right wings, depending on the concrete opportunities offered by a certain political system. In any case, populism tends to emhasize unjustified distribution of power and goods within a social community, making a sharp distinction between people and elite, with a critical approach to contemporary models of representative democracy, considering them as the source of weakness of the majority represented by people. Therefore, populism constantly strives to revise and change the principles which lay the grounds for modern representative democracy expressively criticizing the partisan systems identified as partocracy, which turns to a rule of a very small group of people – an elite. In addition to the above said, the outer contours of democratic forms of governance remian the same even in the conditions of ruling populism, which is the reason why we are trying to focus our attention on the existing examples of populism in the conditions of modern constitutional systems Thus, at the region of Latin America there are notable populistic movements of Hugo Chavez in Venezuela, Rafael Corree in Ecuador and Evo Morales in Bolivia.10 In Western Europe, we would like to mention an interesting case of Charles de Gaulle’s populism in France and in the present day Austria11, while from the cluster of former Eastern European countries, we believe that populism in Hungary is of distinguished character. Going south, we arrive at the Balkans where we will find the example of Serbia, one of former Yugoslavia’s republic. Finally, we will direct our efforts to finding the common elements that may, in a legally and theoretically acceptable way, reveal general rules on the methods, forms and the results of the influence of populism on constitutionality. Populism is preceded and spurred by nonfunctional and ineffective constitutional order with a nominal and semantic type of constitution. At the level of society, an inefficient model of state governance and excessive injustice in the distribution of economic wealth is notable. There is also an obvious difference in economic power between minority and majority, while the increasing poverty of the majority of population creates the ambient for irrational beliefs that accumulated problems can be easily and promptly solved. Populism is usually generated by the incapability of political regime to maintain its authority within existing principles and rules. This ideology, politically, „feeds on“ the dissatisfaction and disillusion of masses, but it does not offer a rational solution how to overcome the crisis. On the contrary, it insists on irrationalities using the unrealistic expectations of the population. Social and economic anxiety is then coupled by other forms of mass dissatisfaction, where ethnical injustices may also play a significant role. Here, an opportunity has been created to satisfy the need to correct old injustices and to collect old debts through a form of political ideology. The growth of populism is also spurred by a cultural milieu with insufficient level of participative political culture. Moreover, an appearance of charismatic individual – a populistic torchbearer (with the characteristics of a true leader) quenches the people’s primal need to believe in a man, a distinguished individual in the absence God, thus bringing the irrationality into the full light and submitting the majority to the cult of the leader. In order to strengthen the legal and political position of leadership, born on the the wave of populism, particular attention is paid to constitution since it can stabilize a new type of social and political system in which a caesaristic12 achivement of the national leader should be legally validated so that „the strongest could be safe enough“. Leaders of the populist movements are often said to be „masters of great rhetorical quotes“. Easily remembered, frequently useful, these quotes are brilliantly ambiguous – untruthful as much as truthful, banal, yet profound, meaningless, but also full of significance“13 ( Susman, 1987, p. 41). 488 | Populism destabilizes constitutional democracy – we believe this to be a proven hypothesis and the leading idea of research endeavours. It is obvious that in some countries populism appears as a kind of social pathology. It is an example of negative discrepancy between constitutional practice and constitutional norm. Its negative trait is reflected in formal constitutional proclamations of human rights and liberties and in t political speeches on the accountability (political, civil and criminal) of the most prominent state officials. The real life shows that populist officials do not respect human rights and are not held politically accountable for their actions. Populism is a regressive element in constitutional democracy and it is difficult to imagine it can take roots in a country with strong civil society institutions. Populism does not like polyarcy. Constitutional democracy is essentially a polyarchy „(which means that power is not concentrated in the hands of one person, such as in a monarchy, or in the hands of a few, as in an oligarchy) in which the power is decentralized, deconcentrated and dispersed among several organs and groups. It always assumes a strong civil society and week government accountable to society.“14 (Stanovcic,1996,p.28). 3. Populism and new Hungarian constitution The constitutional issue in Hungary seems interesting to discuss from various aspects of the theme that we are exploring in this work. Besides the fact that Hungary is a EU member state, it should be noted that it was under the communist political system for several decades followed by a transitional period leading to a democratic form of political system. Therefore, selecting the Hungarian constitution to be discussed in relation to populism serves our purposes very well since in this case populism is identified in the conditions of transitional processes, but also in the state which is the member of EU15. This, objectively, and as a principle, points out to the possibility that such situations can also be encountered in other parts of European integrated map of democracy. Here, we also bear in mind the specific traits of Hungarian state and legal system. In addition, Hungary had a specific historical development during the 19th and 20th century and it should be noted that the Treaty of Trianon16 left deep painful feelings in collective national memory of many Hungarians. Namely, this Treaty was marked as a symbol of historical injustice and damage inflicted to Hungarian national interests since a large number of ethnic-Hungarian population was left outside the borders of new Hungarian state. Moreover, the literature dedicated to political history states that Hungarian political elite was traditionally divided by religious and state-diplomatic issues. Catholicism or Protestantism, self-sufficiency of Budapest or turning to Vienna – these awere some of the most significant divisions which were symbolically termed by “kuruc-labanc”17 – the phrase that reflects the differences of Hungarian political system and political elite. Today it is possible to trace this old divisions18 in the contemporary political life in Hungary in the form of a dilemma between maintaining a good relationship with Brussels (European Union) and guarding its national interests. That this dilemma exists and persists is seen in the different foreign-policy orientations of the main actors of Hungarian political scene still waging a political battle all the way from the period of leaving a monolith party system to the period of entering into a multiparty democracy. At the elections that took place in the 1990s and the first decade of this century, the final results were in favor of the right-wing political orientations (Fidesz19 - a national conservative party headed by its renown leader Viktor Orban20 won 2010 elections). Stating the data relevant for the understanding of the central theme of this work, we would like to underline some basic facts on the social situation in Hungary that preceded Viktor Orban’s government. These facts are interesting since they will help us create the notion of the social conditions that favor the appearance of populism with the power to influence constitution and constitutionality. Besides that, the comparative analysis in the conclusion of this work will reveal | 489 the common elements that are present in similar societies with similar results related to the influence of populism on constitutions of the states from various geographical regions. As we have already noted, Hungary is interesting for research because it satisfies our hypothetical intention that can be articulated through the following theoretical formula:” favorable social conditions lead to the appearance of populism that has influence on the constitution” (social conditions populism – constitution). All these three segments of the mentioned formula are present in the case of Hungary, particularly taking into consideration the new phase of constitutional development occurring in this state as a result of populist activities of Viktor Orban and his nationalistic right-wing party – Fidesz). Big economic difficulties that Hungary has faced in the course of its social development in last two decades culminated in enormous debt and unresolved social problems 21 (Simon,2010, p. 209). Since all the attempts to solve these problems had failed, an opportunity for a new course in politics arose based on the justifiable criticism of the incapability and incorrectness of the previous government. In order to illustrate how the previous left-wing government was blurring the truth succumbing the country to the economic dependence of foreign partners, we will mention the sentence that the former Prime Minister uttered at a secret meeting with the high-level party officials, that was eventually disclosed to public in a cunning political game by the opponents from Fidesz: “We do not dare to touch a pile of evident social lies since we are afraid of political consequences that may hit us” 22 (Djurkovic,2011,p.302). It seems that this sentence represents an example of concealed honesty unwillingly provoked since the truth was cruel. The helplessness and political capitulation of a political party that cherished and exercised democratic political options in resolving the problems in seemingly justified way proves that it was an impossible mission in the conditions of multitude of accumulated problems generated by incapable politicians. Their politics suffered a major defeat and led to the economic capitulation of the state. The government led by the Prime Minister Viktor Orban decided to reform Hungarian society and, in the peak of reforms, proposed to adopt a new constitution. Since the government has a two-third majority in Hungarian Parliament, this legislative body passed a new constitution on April 17, 2011. According to the constitution, it required the signature of the President to become effective of January 1, 2012. Analyzing Hungarian constitution, we could find significant data relevant for our research on the influence of populism on constitution. In this case, we could discern the presence of populism just by reviewing certain constitutional provisions. Prima facie, the text of the constitution preamble cannot leave us indifferent since it is sufficiently inspirational for our expectations what can be found in the classic, normative section of the constitutional text. Firstly, the preamble is rather lengthy reflecting the legislator’s desire to emphasize several ideas that led him design the normative structure of the system to be regulated by this constitution. Yet, a brief review of the preamble leaves us with the impression of over accentuated “national self-importance” supported by linguistic structures. For example, it can be discerned that the adjective Hungarian was used dozens of time when speaking about the nation, state, citizens, country, ancestors, etc. Such linguistic context is further underlined by frequent use of the possessive adjective ”our” in relation to the adjective Hungarian, so it can be justifiably concluded that the this preamble reflects the principal idea of the legislator - the Hungarian state, the Hungarian nation, the Hungarian ancestors and the Hungarian descendants. It is certainly expected that most of constitutional preambles should underline some symbols showing which ideas the legislator considers the most significant to be elaborated in the constitution. It is the legislator’s right and cannot be questioned by evoking the prescribed standards that guide the structure of classic constitutional texts. Preambles constitute emotional visions of the past, present and future times, while rationalism is left for the normative provisions. Of course, 490 | we are offering this opinion with the remark that a more comprehensive evaluation of the quality of a preamble depends on how it is connected to the normative text of the constitution. However, this is why we would like to draw your attention to the preamble of Hungarian constitution, since it represents a true introduction to its normative part. It seems that the leak of emotions was not just confined to the preamble, but was considerably notable in some principal constitutional provisions. In this way the importance of the preamble was raised to a higher level, turning it into a real introduction to the normative section. In this case the normative text becomes the outcome of the preamble. Our impressions on the preamble of Hungarian constitution are further supported by the fact that it is conspicuous how little space is dedicated to the values beyond ethnic-Hungarian value system. Yet, some “supranational” values are modestly included, which, in the epoch of advanced civilization may be considered as misexperienced and politically misused (eg. exclusiveness of family, nation, Christianity). If we add deliberate overlooking of one part of the history of Hungarian state, in which it existed as a communist and colonized country, then this may represent a sign of not accepting the responsibility to face your own past, in the sense of ignoring a half century of your state’s continuation. Bearing in mind our previous remarks related to linguistic and logical interpretation of the preamble of Hungarian constitution, we believe that from the over exaggerated legislator’s orientation towards Hungarian ethnical element in constituting Hungarian state, we may expect that such a state is less civic and democratic. Such preambles, actually, represent the introduction to the destabilization of a state’s rational constitutional structure which is the result of populist impact on constitution. In order to keep a reasonable length of this work, we will limit our discussion to a few solutions foreseen in this constitution. As for the issue of discrimination, the constitution lists all forms of prohibited discrimination, among which there are no discrimination based on sexual orientation and age.23 Not enlisting the former form discrimination in the constitutional text in this modern age is the proof of a conservative course of the constitution which, at some other sections, protects the traditional concepts of family and marriage. Thus, the constitution states: “Hungary shall protect the institution of marriage as the union of a man and a woman established by voluntary decision, and the family as the basis of the nation’s survival”. In the elaboration of the Constitution Draft, it was underlined that in this way Hungary will respect the practice that has been regulated in Polish, Latvian, Lithuanian and Bulgarian constitutions, as well as confirmed in several decisions adopted by Hungarian Constitutional Court in 1985, 2007 and 2008. According to these decisions the same sex marriages are not allowed24. The traditionalism in the constitution supports the wishes of general populace and therefore regulates the family issue in a traditional way – family with both parents. This does not discriminate single parents or the partners in a common-law marriage. The constitution is not quite clear as for the protection of fetus. It clearly states that the fetus has a right to live and has to be protected from the very conception. Yet, in the elaboration of the Draft Constitution it was stated that this is not the preparation for the possible ban of abortion. The goal of the constitution is to define the tasks of the state in creating a situation that will support the birth and raising of children. The question of democracy in a society is also the question of the position and authority of the its constitutional court. Since the beginning of the mandate of the second Orban government, there has been a tendency to decrease the authority of the Constitutional Court which was also confirmed by the constitution. Thus, Hungarian Constitutional Court can no longer rule on the constitutionality of the Law on budget and public debt which was explained by the stand that the financial crisis calls for special measures that require a free hand for a complete reform of financial and fiscal system, so the state cannot allow the Constitutional Court to meddle and limit the government’s scope of work. | 491 The legislators in the Republic of Croatia drafted the preamble of its constitution with over exaggerated national and ethnic issues even before their Hungarian counterparts. Namely, having reviewed the structure of this preamble, we got the impression that the text is filled with historical facts exclusively emphasizing Croatian nation. Thus, it was underlined that the Republic of Croatia is established as the national state of the Croatian people and the members of other national minorities. In this way, the constitution, within an ethnic context, regulates the position of the major nation and minorities, in a way which allows us to discern a nationalistic and ethnic concept as the basis of the preamble. At the very end of the preamble, it is said that Croatia is organized and shall develop as a sovereign and democratic state in which the equality of Croatian citizens and human freedoms and rights are guaranteed and ensured. Thus, it is quite justified to draw a conclusion on the similarity between these two constitutions. Yet, researching the assigned topic of this work, the authors also feel that a distinction can be made related to the influence of populism on these two constitutions. Namely, the Republic of Croatia passed its existing constitution in 1991 in the conditions of significant pre-war tensions resulting into a war conflict that was waged on its territory within the scope of the disintegration of former communist federation - Yugoslavia. Therefore, it could be said that the excessiveness and pretentiousness related to Croatian ethnic idea originated from war affected social conditions. However, the facts related to the conditions in which the preamble of Croatian constitution was created will not deny us a right to an intellectual criticism related to the absence of civic and anational themes from this preamble. Yet, we should take into consideration that Hungary did not face such extreme conditions when its new constitution was being drafted. It is obvious that nationalistic and ethnical populism had a big influence on these two constitutions, with the distinction that in the case of Croatia, it was generated by war conditions, while in Hungary it appeared in peaceful time. The current constitutional situation in Hungary is additionally interesting since it represents a major constitutional reform which took place two decades after the liberation from the non democratic communist regime and Soviet domination. This raises the question of locating the source and causes of Hungarian version of populism, which, we believe, can be found in huge economic and social problems that threatened to lead the country towards economic bankruptcy. This case was an adequate example enabling us to reach a conclusion that insufficient economic stability and development coupled with the problems of the social existence of the population represent the most favorable ambient for the appearance of populism. Depending how harsh are the conditions in such an ambient, populism may develop to the extent of a special, coherent ideology existing by itself in a political life or to the extent to just support the other dominant ideologies. Of course, the question remains why the population in these countries accepts to be lured by irrational populist illusions and why the psychological complex of particular social community is not capable to consciously defend itself from the populist attempts to play an important role in political life. Leaving the answers to these (and similar) questions to more competent researchers from other scientific disciplines, we believe that it is necessary to underline the need for the institutional action of modern Europe aimed at eliminating the preconditions that may sow the seed that will grow into populism. 4. Constitutional indicators and barriers to populism Some populist attempts have been encountered in recent Slovakian history, but developments in this country have shown that with devoted attention and support of relevant civic bodies they can be mitigated or neutralized. The citizens of Slovakia faced two options – the populism embodied in the government of Vladimir Meciar and the road to European integrations. The citizens opted for the latter, a more rational option. During his populist rule, Vladimir Maciar was 492 | often criticized for his nationalistic style, mostly expressed in relation to Hungarian minority and Romani population. Revealing who were “the enemies” of Slovakian people, spreading fear and insecurity, etc. were convenient manipulative tools for the promotion of populism. Then, when two different sets of values were presented before Slovakian people, that is to choose between a retrograde or prospective life, they decided to defeat populisms and opt for freedom and better life. Meciar’s regime25 lost 1998 elections and the new government headed by Mikulas Dzurinda accelerated the reforms in order to catch up with neighboring countries. The Slovakian example can help us to better understand what are the efficient methods for preventing populism – a good balance between qualitative democratic system, respect of basic freedoms and decent social and economic conditions. In the conditions of insufficiently stable social order, populism may appear as a potential and latent danger capable of destroying the existence of that order and redirecting the public attention to irrational and retrograde concepts. Sovereign rulers of social orders (that is, citizens), should create their awareness within the participative form of political culture in order to defend themselves from the aggressive effects of populist ideology or populist style on the community’s emotional and psychological complex. In order to accomplish this, it is necessary to create, maintain and safeguard the notion of equality and justice between people, regardless their physical and social distinctions that naturally exist between the individuals and the groups they belong to. In this sense, we believe that a constitution appears as a convenient means of a legal system for creating a tolerant civil society capable of limiting the power of state by insisting on human rights. In this work we have already underlined the social conditions that favored the appearance of populism that were, as we have also emphasized, followed by corresponding redefinition of constitutional solutions in order to additionally strengthen its position. Therefore, it would be useful to identify the indicators of such legislators’ endeavors in order to be able to timely recognize populist tendencies within a certain state and legal system. We have selected the following potential indicators of populism: a) character and context of constitution preamble, b) concept of human rights in the context of the rights of minorities, c) quality of antidiscrimination concept, d) well developed spirit of tolerance, e) depersonalization of the key positions in the state administration, f) form of political pluralism, g) openness of the national legal system towards the integration processes. Let’s translate the above stated indicators to the language of constitution designers and their “suspicious” intentions: a) over exaggeration of mono-national theme that excludes the members of other ethnical groups and civil society from the preamble’s conceptual architecture, b) reconstruction of the concept of human rights restricting the rights of national minorities, c) poor quality of antidiscrimination norms that should ensure the principle of equality, d) tolerating of intolerant social conducts, that is not preventing extreme bigotry and homophobia in the society, e) increasing the legal capacity of political power of the individuals holding the highest positions in the state administration, such as the head of state or the head of government, f) legal support to for the promotion of partocratic elements in the constitutional system, g) creating constitutional barriers for wider integration of the state into solid forms of interstate alliances. The method that we have applied here for presenting the evidence of constitutional issues the populists pay particular attention to, should be accompanied by certain remarks: Firstly, we should always bear in mind that we are on the territory of formal democratic constitutional systems within which populists will attempt to achieve their goals and legitimatize them by reshaping the constitutional provisions. Thus, if we are on the territory of the system regulated by a nominal constitution, it may not even be interesting for populists’ ideology since they can treat it as “a dead letter” which leaves us helpless since we cannot discuss it the way we can | 493 analyze real constitutional changes made for populist purposes. Moreover, it should be noted that the above stated indicators may not be enough to allow us to draw certain conclusions related to possible identifications of populism. Yet , we are almost certain that the mosaic of populists’ rule will unavoidably consist of elements of the state’s constitutional structure that we qualified as the indicators of populism. Therefore, we believe that European Union should pay special attention not to allow the appearance of more than two of seven key points that we indicated as threats for the stability of constitutional democracy – they are “signal lamps” that should warn every responsible member of European democratic society. 5. Summary A way out from these extremely tense situations generated by overburdening a constitution with populist ideas in the conditions when the ruling populist government uses constitution for achieving non-democratic goals may have several directions. One is a determined action of responsible democratic forces that will empower the constitution to apply adequate legal mechanism to prevent the violation of human rights or to punish such violations committed by populist groups. Finally, bearing in mind the meaning and negative influence of populism on democracy, it is quite justifiable to link it to the constitution. The analysis of populism in the context of constitution is based on the understanding of constitution as an act of democracy, that is as the act defending the values it promotes. Populism at the same time threatens both constitution and constitutional values and, therefore, it is necessary to see in what way populists abuse constitution in order to achieve their political interests and goals. On the other hand, it is also necessary to check if it is just enough to identify in the constitution general concepts and ideas that will permeate the constitutional sub-context in order to protect it from populism, or is it also necessary to find the place in the text of the constitution for more expressive and closer regulation of the reaction of democratic and legal bodies to populism. Remaining within the boundaries of a European type of democratic state, we believe that positive outcome of the reactions of European countries to the risks of populist tendencies may be found in insisting on democratic standards in the field of human rights and the rule of law and embodying them in the constitution. This idea also assumes further stabilization and strengthening of the principles that promote democratic constitutional values that can be achieved by continuous widening of the scope of freedoms and firm insurance that the violation of the achieved level of individual and collective human rights and liberties will not be tolerated. Listing seven constitutional points where it is possible to jeopardize, but also to protect democratic constitutional system reflects our motivation to discover the essence of a desirable conceptual structure of a constitution that will enable a stable development of democratic state. Thus, Europe, as the civilization source and sanctuary of contemporary democratic values has a great responsibility on a global map in the sense of securing democratic prospects for not only European countries, but also those from other parts of the world. References Canovan, Margaret. (1981). Populism. New York-London: Harcourt Brace Jovanovich. Canovan, Margaret. (1984). People, Politicians and Populism, Government and Opposition. Canovan, Margaret. (1999). Trust the People! Populism and the Two Faces of Democracy. Political Studies. Canovan, Margaret. (2004). Populism for Political Theorists? Journal of Political Ideologies. 494 | Canovan, Margaret. (2005). The People. Cambridge: Polity Press. Djurkovic, Misa. (2011). Hungary: Orban’s atypical attempt to solve the crisis. Medjunarodni problemi. Goodwyn, Lawrence. (1976). Democratic Promise: The Populist Movement in America, Oxford University Press. Cambridge. Goodwyn, Lawrence. (1978). The Populist Moment: A Short History of the Agrarian Revolution in America. Cambridge: Oxford University Press. Hamilton, Alexander. Madison, John. Jay, John. (1981). Federalist no. 1. Federalist Papers, Belgrade, Radnička štampa. Holland, Tom (2003). Rubicon: The Last Years of Roman Republic.London: Abacus. The Hungarian constitution of 2011, Article XV, paragraph 2. Kazin, Michael. (1998). The Populist Persuasion: An American History. Cornell University Press. Salaj, Berto. (2012) Contemporary Populism. Anali hrvatskog politikoloskog društva. (1) Simon, Gyorgy. (2010). Factors and Problems of Economic Growth in Hungary, Russia and Serbia. Međunarodni problemi, ( 2) Susman, W. (1987). Culture as History. Belgrade. Stanovcic, Vojislav. (1996). Democracy in multi-ethnical societies: populism, bonapartism, the rule of majority, or constitutional poliarchy. Zbornik Matice srpske za društvene nauke, (100). (Endnotes) 1. Constitutionality is the synonym for the restriction of power and for the creation of effective legal mechanisms for preventing “tyranny of the majority”. During the debates related to American constitution, one of the Founding Fathers, Alexander Hamilton wrote: ”Of those men who have overturned the liberties of republics, the greatest number have begun their career by paying an obsequious court to the people; commencing demagogues, and ending tyrants”, Hamilton, A. Madison, J. Jay, J. (1981). Federalist no. 1. Federalist Papers, Belgrade, Radnička štampa. 2. Here we understand constitutionality as the sign and the measure of the constitutional development through its stages and phases. 3. American professional literature is full of works that focus on the beginning and development of populism in USA., such as the book of the renown American professor of history, Lawrence Goodwyn, (1976) Democratic Promise: The Populist Movement in America, Oxford University Press, Cambridge and an abridged version of that book, The Populist Moment: A Short History of the Agrarian Revolution in America, Cambridge. Oxford University Press. 1978, and the book of Michael Kazin, also the historian. Kazin, M. (1998). The Populist Persuasion: An American History. Cornell University Press. There was a strong populistic movement in USA in the 1990s headed by Ross Perot, an Independent Party Presidential Candidate in 1992 and 1996. 4. In the United Kingdom, the most eminent scientific papers in the area of politicology were written by a British scientist, Margaret Canovan. (1981). Populism. New York-London: Harcourt Brace Jovanovich. Canovan, M. (1984). People, Politicians and Populism, Government and Opposition. Canovan, M. (1999). Trust the People! Populism and the Two Faces of Democracy.Political Studies. Canovan, M. (2004). Populism for Political Theorists? Journal of Political Ideologies. Canovan, M. (2005). The People. Cambridge: Polity Press. 5. Writing her first book on populism, Margaret Canovan stated that Great Britain was not immune from populist politicians such as Enoch Powell who gained popularity among the gen- | 495 eral public on immigration issues and his negative stand on immigrants in Great Britain that cost him losing his position in the Shadow Cabinet of Conservative Party. 6. The populist movement in Australia attracted the attention of the general public because of its controversial politician Pauline Lee Hanson, a former leader of the populist party “One Nation” (1997-2003), and the founder of “Pauline’s United Australia Party” (2007-2010), who was also known as a politician frequently changing political parties and ideological concepts. 7. In this sense, reading the work “Contemporary Populism” of our colleague Berto Salaj from the University of Zagreb Faculty of Political Sciences was of great help. This work was published in the journal Anali hrvatskog politikoloskog društva, Vol. 9 No. 1, 2012. We used this concept of the footnote on purpose in order to underline our opinion of Berto Salaj’s work when describing populism for the purpose of our work. 8. Historians note that Gaius Julius Caesar was one of the most prominent populists in time of Roman Republic. As a politician and a conqueror he often spoke of people and their interests to whom he served as their authentic representative. Read more in Tom Holland’s (2003). Rubicon: The Last Years of Roman Republic.London: Abacus. 9. Salaj, B.(2012) Contemporary Populism. Anali hrvatskog politikoloskog društva. (1) pp.23-24. 10. American political practice abounds with the attempts of politicians to win a stable position for the third party in American political life. Since the establishing of the Populist Party of the 1890s (in American political history so called third parties are often marked by the year of their establishment, since some of them had the same name in different periods of history), we have witnessed a rather successful attempt of the former president Theodore Roosevelt who ran for the presidency as the founder of the Progressive Party of 1912 winning the second place and leaving behind his former party colleague and the US president William Howard Taft, who won the third place. 11. The mentioned populist movements headed by three Latin American presidents were leftwing movements as their names tell (ex. the leading political party headed by Evo Morales is called “The Movement of Socialism – the political instrument for the people’s sovereignty”) 12. The recent research on populism in Europe reveals that this political phenomenon is related to the right-wing spectrum. The parties that are in Europe marked as “right-wing populism” direct their political activities towards the criticism of liberal and democratic ideologies and intolerance of minority groups. Thus, there is the Freedom Party of Austria headed by Jorg Haider (1986-2000) which made a sharp turn from a liberal party to an extreme right-wing party. Namely, while Jorg Haider was its leader this Party insisted on anti-immigration policy with the elements of anti-Semitism. Because of the participation of this Party in the Austrian federal government (2000-2005), Austria, although a EU member state, was for a period of time under EU sanctions. 13. Plebiscitary Caesarism is a type of quasi-democracy, frequently resorted to by populist leaders. Legitimacy of plebiscitary democracy (plebiscitary Caesarism in this case), is derived from the will of the submissive population and remains in power thanks to this will. A populist ruler, a demagogue, rules using the affection of his political followers and the trust they had in him. Plebiscite that verifies the rule of a populist leader can be used before or after coming into power. After plebiscitary expression of opinion by acclamation, a leader has a feeling that he is a legal representative of masses that accepted and recognized him. Therefore, a populist leader uses every opportunity to emphasize the will of people taking no regard of the institutions, procedures and arguments. 14. Susman, Warren. (1987). Culture as History. Belgrade. p. 41. 15. Stanovčić, Vojislav. (1996). Democracy in multi-ethnical societies: populism, bonapartism, 496 | the rule of majority, or constitutional poliarchy. Zbornik Matice srpske za društvene nauke, (100). p. 28 16. Hungary has been a EU member state since 2004 enlargement of EU when the following countries entered EU: Cyprus, Czech Republic, Estonia, Hungary, Latvia, Lithuania, Malta, Poland, Slovakia and Slovenia. 17. The Treaty of Trianon was signed on June 4, 1920 at the Grand Trianon Palace in Versailles (France) between the Allies of World War I and Kingdom of Hungary. The treaty regulated the status of an independent Hungarian state and defined its borders. This was one of the treaties that the Allied victors from the World War I signed at the Paris Peace Conference with each defeated country separately (from January 18, 1919 to June 28, 1919). 18. Historiography notes different opinions related to this Treaty. For non-ethnic Hungarians, who had lived under the Austrian-Hungarian domination until 1918, the new borders defined by this Treaty represented the fulfillment of their national and state-related aspirations, while the majority of Hungarian population believed 19. that it was a great injustice. Even the Hungarians had divided opinions towards this issue – some had regrets why some territories with predominantly Hungarian population were not inside the borders of the independent Hungarian state, while the most extreme opinions regretted the new country not including the entire territory of the former Hungarian Empire, regardless its ethnical composition. The Treaty of Trianon left Hungary with one third of the former territory of Hungarian Empire where, although being the largest nation, they constituted less than half of the population. Although the majority of Hungarians have negative feelings regarding this Treaty, the fact is that it represented the formal legal recognition of the independent Hungarian state which, by 1918, was under the domination of the Habsburg family. Even today, a part of Hungarian society asks for the revision of the Treaty of Trianon. (ex. Hungarian right-wing, neo-fascist party – Jobbik). Also, there are still some tensions between Hungary and Romania regarding 1.4 million Hungarians living in Transylvania (Erdely in Hungarian) and between Hungary and Slovakia because of the ethnic-Hungarians living in the south of this state. 20. More to read: Djurkovic, M. (2011). Hungary: Orban’s atypical attempt to solve the crisis. Medjunarodni problemi. (2).pp. 297-319 21. The term kuruc was used to denote the armed anti-Habsburg rebels. The most prominent supporters of the kuruc movement were the members of Rakoczi family in the 17th and 18th century and Lajos Kossuth, a leader of Hungarian revolution of 1848. The Count Istvan Szechenyi was his greatest opponent who supported labanc (from the Hungarian word “lobonc”, literally “long hair”, referring to the wig worn by the Austrian soldiers), denoting Austrians and their supporters who strongly stood by Vienna. 22. Fidesz (Magyar Polgári Szövetség) in a coalition with Christian Democratic People’s Party (Keresztény demokrata Néppárt, KDNP) won 53% of votes in 2010 election. Due to the election system that favours the majoity of votes, this coalition won 263 out of 386 seats in the Parliament, that is a two-third majority. 23. Victor Orban was the first Prime Minister who headed the Fidesz coalition in 1998. Due to large pressures coming from the outside, this coalition lost 2002 elections. In the period from 2003 to 2010 Viktor Orban was the leader of the opposition in Hungary. 24. As Gyorgy Simon states: „With generally well established market-based institutions, reasonable stability of macroeconomy and adequate privatization, Hungary was probably among the first of former socialist countries that completed the transitional process before the accession to EU in 2004” – Simon, G. (2010). Factors and Problems of Economic Growth in Hungary, | 497 Russia and Serbia. Međunarodni problemi, ( 2) p. 209. 25. It should be noted that the model that Gyorgy Simon describes here received the formal recognition and foreign support, but, as for the Hungarian national interests, it caused a lot of problems. Of course, we should not neglect the fact that Orban’s government inherited foreign debt in the amount of 80 billion euros. 26. Djurkovic, M. (2011). Hungary: Orban’s atypical attempt to solve the crisis. Medjunarodni problemi. (2) p.304 27. Thus, the Article XV, paragraph 2 of Hungarian constitution of 2011 states: “Hungary shall ensure fundamental rights to every person without any discrimination on the grounds of race, colour, gender, disability, language, religion, political or other views, national or social origin, financial, birth or other circumstances whatsoever.” 28. Traditional institution of marriage is in this way protected by the constitution, but, on the other side, there is a possibility of, so called, registered partnership that regulates the status of these couples. 498 | Wiesław Breński University of Warmia and Mazury in Olsztyn Problems of discrimination and inequality on a job market in the EU members states Abstract All kinds of conflicts, war and in particular the effects of the Second World War prompted the international community to develop standards that will protect the future of humanity from the disastrous effects of the dissemination of ideology based on the idea of ​​the superiority of man over man. One of the problems of today, not only in Europe but also in the world is discrimination based on age not only in the values ​​around which are organized into society, expressed in the standards of constitutional and legal provisions, but also has a specific socio-economic impact. Discrimination based on age mostly affects older people. Phenomenon related to the elderly is often associated with the term “ageismu” which means discrimination based on belonging to a particular age group. Another problem is the problem of discrimination against people of unemployment and migration in order to search. It should be noted that one of the problems today in the integration of immigrants into the societies of the Member States of the European Union are cultural factors. Another problem people migrating for work is the separation from family, and thus very often leads to the breakdown of marriages. In terms of the relationship between human between immigrants and local communities lived for years and representing a majority believe there is a group of people of their own superiority against immigrants, whom they consider less intelligent or uncivilized. If immigrants are inferior to their discrimination is justified as part of the struggle for socially desirable goods such as jobs. Extra-legal discrimination against immigrants in the EU Member States is widespread. As a result, immigrants occupy the holes of the social ladder, and do not feel full members of society. This situation poses a serious threat in the EU, as Member States will need in the future, tens of millions of immigrants in order to secure economic growth. Keep in mind that the public in the Member States of the EU are continuously getting old and many countries it is now a serious problem such as eg in Germany, the Netherlands, Belgium, etc. Keywords: European Union, discrimination, migration, labor market, particular age group. 1. Introduction Any war conflicts, and especially the effects of the WW2, made international society work out standards that protect mankind from catastrophic results of spreading ideologies basing on the concept of superiority one man over another in future. One of the contemporary problems not only in Europe but also around the world is age discrimination not only in the value dimension, around which a social life is arranged described in constitution norms and legal regulations, but it also has a particular social economic dimension. Age discrimination usually concerns the elderly. The phenomenon referring to the elderly is often associated with the notion of ageism which means discrimination against belonging to certain age group [Szatur-Jaworska, 2005, p. 8]. Another problem of discrimination is unemployment and migration in order to find a job. Here, it is necessary to claim that one of the contemporary problems in integration among immigrants and the EU member state societies are cultural conditions. Another problem of those migration to search for a job is separation from their families which often leads to divorce. As regards relationships between immigrants | 499 and native society being longer residents and remaining in majority, there is a belief in own superiority according to immigrants who are found less intelligent or uncivilized. Since immigrant are inferior, the discrimination against them within the struggle for socially demanded goods, e.g. work places, is excused. Out-law discrimination against immigrants in the EU member states is a common phenomenon. As a result, immigrant occupy the lowest levels of a social ladder and do not feel lawful members of a society. Such a situation is a serious threat in the EU range because the member states will need several dozen million immigrants in future in order to provide themselves economic increase. It should be remembered that the EU member states’ society is constantly getting older and it is a serious problem now in many countries, e.g. in Germany, the Netherlands or Belgium. 2. Discrimination in a scientific comprehension Discrimination means different treatment of a human if it is not objective, against the law or not excused, and such action may hurt the person whom the action is directed to[Directive 2000/43/WE, par. 5]. Discrimination may be direct or indirect. Direct discrimination is when a person is or could be treated less favorably in a comparable situation than another person in the same situation[Report, 2004, p.6]. Indirect discrimination is when seeming and natural action or used practice put given persons in a particularly unfavorable situation comparing to others, unless such a decision, criterion or practice are excused by a reasonable aim, and the means to reach such an aim are proportional and necessary [Directive 2000/43/WE]. Discrimination also means an action of encouraging a person to infringe the principle to equal treatment of a given person [Directive 2000/43/WE, art. 183a]. Discrimination means such a behavior that leads to a person’s dignity violation and the actions create the atmosphere of intimidation, hostility or humiliation [Directive 2000/43/WE, art. 183a]. Sexual molesting is another commonly used kind of discrimination nowadays, which means any unacceptable behavior of a sexual character of referring to sex, aiming at dignity infringement or humiliation. Such behavior may include physical, verbal or non verbal elements [Report, 2004, p. 6]. However, maintaining or implementing temporary solutions and legal measures equaling opportunities of those of different origins, religion, beliefs or sexual orientation and the handicapped in order to decrease real inequality cannot be understood as discrimination. It is so called positive discrimination [Report, 2004, p. 6]. Discrimination as a phenomenon is not unanimous notion since it can occur with different power and forms and may be quite sharp and aggressive. A discrimination symptom may be a person’s gesture or words towards another person or group. As regards a group, discrimination is very often spread in mass media. As regards an individual, a simple gossip putting a person in an unfavorable light is a common discrimination. Such a gossip discrimination often occurs in a work or residence place. Scientific publications include the notion of remuneration discrimination. It means unequal salary for the same work. All such actions are rules of an equal treatment infringement and violation of basic human and freedom rights. Discrimination infringes a human dignity. According to the Polish Constitution, an inherent, inalienable human dignity is a source of freedom and citizen’s rights. It is inviolable and respecting and protecting it is a public government duty [Szarfenberg, 2011, p. 7]. One of the basic democratic rules is equality in human treatment not only as an individual but also a group or a society regardless their place of living and kind or work they do. In the past, discrimination was understood differently and it was of different range. It concerns e.g. equality of men and women in a social, cultural, economic and family life and that equality belongs to the main foundations of the EU. The policy of sex equality aims at promoting economic growth, competitiveness, improvement of work conditions and strengthening a citizens society. Discrimination, however, does not concern exclusively inequality between men and women. There are many other possibilities of discriminating behaviors also among the persons of the same sex [Tomaszewska, 2004, p. 7]. Moreover, discrimination concerning equality towards the law is also noticed. It means unequal treatment of persons who appeared in the same factual and legal situation. It influences the basic value of the contemporary world, principle of shaping the position of an individual towards the state and the rule indicating 500 | relations between particular individuals. The contemporary legal state in Poland is quite laconic. The Polish Constitution describes the prohibition of discrimination in a general way without clear legal criteria according to which discrimination is prohibited, it says that discrimination is not generally allowed. The Polish law does not include categorized criteria according to which discrimination may be recognized or named. Scientific comprehension includes discrimination of many kinds. Social scientific authors have drawn up criteria of discrimination division according to a society division into social classes and limits connected with them. P. Sztompka claims there are behaviors in a society aiming at depriving some social group the opportunity to advancement. In this case, this is a partial discrimination which may occur through creation of any traps of “potential opportunities” which are beyond the reach of some social groups. There are some persons or groups that will never reach a higher position in a society of company no matter how hard they try. It happens e.g. while implementing some restrictions to an occupation which often concern the handicapped or women. B. Wagner makes another division into the negative and positive discrimination. The negative discrimination means the right and obligations are used according to the prohibited, unreasonable criterion. The positive discrimination allows creating regulations more favorable for those whose situation demands equaling opportunities on a job market. J. Wojtyła, in his dissertations on discrimination and inequality among employees, arouses a question: “Are we speaking about discrimination or dignity?”, the author indicates that in this situation we should speak about legal protection to an employee’s privacy. S. Kowalik writes about five types of discriminating practices: • outdistancing – the weakest form of discrimination, namely psychological straying away from certain social groups or individuals; • devaluation – spreading beliefs and opinions on negative features of individuals or social groups reflecting social stereotypes; • delegitimization – excluding persons or social groups from a social life with the use of legal regulations, moving them into the category of sub-humans; • segregation - overwhelms a larger social group. It means limiting the access to a normal life or complete isolation; • extermination – the strongest form of discrimination, biological destroying people who belong to a certain social group. It can be of two kinds: fast and brutal destruction, which took place during the WW2, or more sophisticated, slow one, namely devastation of Native Americans. Each kind of discrimination mentioned above infringes dignity of a human as an individual or a group. Literature also includes the division into the legal and factual discrimination. 3. Contemporary Problems of discrimination and inequality on a job market in the EU members states Unemployment, social inequality, discrimination, threats in employment connected with fast IT and telecommunication development, those are only several problems of the European job market. There are additional problems, specific for each state, in the characteristic of job markets in the particular EU countries. Some EU member states, e.g. Romania, Bulgaria or several voivodships of the Eastern Poland we can notice such phenomena as poverty, high rate of unemployment, especially in the country, low level of education, life clumsiness or numerous families. The above phenomena result in social exclusion of those directly touched by them. Another phenomenon is unequal employment opportunity of the handicapped, discrimination against women on a job market and difficulties to return to work after maternity leaves. Therefore, the EU states worked out directions separated, within the EU social policy, a new kind of actions known as employment policy with its | 501 main slogan: creation new and better work places and equality of opportunities. The undertaken activities aim at proper providing the EU citizens with such skills that would allow them follow the changes in economy, now strongly based on knowledge. The new EU strategy, Europe 2020 claims that in order to limit poverty and social exclusion, there are three main statistic indicators: relative poverty, multidimensional depravation and households with employment difficulties. Primary and secondary law regulate the ban of discrimination. The Roman Treaty is a basic act that regulates discrimination and inequality problems. The Treat put the ban of discrimination into the legal and social order foundations of the EU. As regards employment the member states focused on two criteria, namely anti-discriminating – the criterion of origin (art. 12 of the Roman Treaty) and the criterion of sex (art. 2 and 141 of the Roman Treaty). Another act regulating not allowed methods in diversifying people according to their personal features was the Treaty of Amsterdam. The problem of discrimination are widely presented in the EU Directives concerning employment of men and women. Those are as follow: - the Council directive 2000/78/WE of November 27, 2000 establishing a general framework for equal treatment in employment and occupation; - the Council directive 75/117/EWG of February 10, 1975 on the approximation of the laws of the Member States relating to the application of the principle of equal pay for men and women; - the Council directive 76/207/EWG of February 9, 1976 on the implementation of the principle of equal treatment for men and women as regards access to employment, vocational training and promotion, and working conditions; - the directive 2002/73/WE of the European Parliament and of the Council of September 23, 2002 amending Council Directive 76/207/EEC on the implementation of the principle of equal treatment for men and women as regards access to employment, vocational training and promotion, and; - the Council directive 97/80/WE of December 15, 1997 on the burden of proof in cases of discrimination based on sex. Those directives were integrated into one directive 2006/54/WE of the European Parliament and of the Council of July 5, 2006 on the implementation of the principle of equal opportunities and equal treatment of men and women in matters of employment and occupation. Despite so wide legal regulations, cited by the author of the article, there were and there still are cases of unequal treatment and employees’ exploitation in the UE state. It particularly concerns migrating persons to other EU states in order to search for work. The best example are so called “labor camps” discovered at the beginning of the 21st century in Italy. Those employed there reported that they were forced by beating to hard work with no food or water in severe conditions offending against a human dignity. Moreover, they did not received any, or symbolic, remuneration for their work. During the interview between Agnieszka Zakrzewska – the author of the article titled “Tomatoes instead of coconuts” for the Pronto Reporter and Jerzy Adamczyk – the manager of the Consular Department of the Polish Embassy in Rome, in the year 2002-2006 there were four murderers of three immigrants from Poland, one from Lithuania and 119 people were missing, thirty five of them lived and did not keep any contacts with their families. Citing that case aims at making aware of the serious problem of discrimination and human exploitation in the contemporary world. In the Polish law, discrimination is regulated by the Polish Constitution1 but also Labor Code2. Simultaneously, Poland is obliged to respect the legal regulations included in the EU acts. 4. Discrimination and social inequality concerning age on the job market 502 | The age discrimination is a significant problem not only in the context of human values but also in a social economic, cultural and family life. Despite the legal regulations, cited above, protecting a human against discrimination and unequal treatment, we can notice that the problem is common. Unequal treatment on a job market also concerns young persons from whom a potential employer demands professional experiences regardless their young age. Unequal, inferior treatment of people according to their age brings damage to individuals and economy and society as a whole system they live in. Therefore, age discrimination may touch persons of all ages, also young ones, but it particularly concerns the elderly people. The reason of such activity lies in several aspects: contemporary economic life based on innovativeness and technology advance, high unemployment rate, especially among young people, work places dependant to politics, organization or parties. Inequality on the job market occurs not only in the private sector but mostly among the public and self-government entities. For several dozen years. we have been observing that the employed person does not need knowledge or experience but so called “arrangements” and “connections”. Age and sex discrimination often occurs on the level of publishing job advertisements. There are limits concerning age sex and experience of a potential applicant. One of the latest activities of the EU Commission was announcing the year 2012 the European Year of the Elderly Activity and Intergeneration Solidarity, aiming at increase of awareness of a general society, decision=makers and other interested sides in the significance of activity of the elderly, and for governments, the important task was the change of social attitudes towards elderly people. P. Szukalski discusses several theories and concepts that allow us approach to shaping attitudes towards elderly age or attitudes of those living in elderly age. Those are as follow: - theory of exclusiveness – assumes that the elderly have weakened emotional ties with an external world due to weakening their vital power; - theory of activity – assumes that the elderly perceive themselves through the prism of what they have been doing so far, however, with the time, the roles change; - theory of continuation – assumes that a human during the life develops constant norms and habits, building own personality and simultaneously possess knowledge and experience gathered throughout their lives; - theory of exchange – assumes that with reaching the old age, the value of possessed human resources from the health to the material ones decreases; - theory of selectiveness, optimalization and compensation – assumes that together with reaching old age, a human chooses activities worth devoting time and energy, which allow to act effectively in new conditions. Focusing on the situation of the elderly on the job market results from the fact that the European society is getting older and soon there will be a problem of the lack of work forces on the job market. The increase of professional activity among elderly employees is an important priority of a social economic policy. According to the author, the decision on prolonging the retirement age made by the Polish government as a factor to combat unemployment and the society getting older, since as we observe in Greece, Italy or Spain, the unemployment rate has grown rapidly among young people under 25. It is reasonable for employers to enable work for the persons who reached retirement age according to their power and willingness for further work. And unemployment among young people can be decreased by flexible forms of employment which turned out to be an effective measure to lower unemployment in many EU state of the USA. Concentration on the situation of the elderly on the job market also results from the fact that the European society is getting older and the near future there will be a problem of insufficient resources of labor power. Increase of professional activity of the elderly workers is an important priority of social economic policy. On the one hand it is necessary to prolong professional activity and use of labor resources more fully of those over fifty, and the notion of age discrimination makes it difficult to reach | 503 those aims. On the other hand, in such high unemployment, it is unlikely for the elderly to continue their professional work. The notion of age discrimination is reaching the social consciousness and has not been fully researched in the Polish or EU’s conditions, but it has become the subject of more lively interest of officials, non-governmental organizations and researchers after Poland and other nine countries had joined the EU. One of the reasons influencing employing the elderly is a dynamic development of new technologies where employers often make persons over fifty, who are not familiar with those technologies, redundant. Moreover, it is worth noticing, that the use of anti-discrimination regulations is connected with the threat of the lack of possibility to find employment due to the fact that the employee may submit the claim against the employer. The EU policy heads for increase of professional activity of those over fifty because in the nearest future many countries will face the problem of insufficient labor power. The EU make a big priority to mechanisms encouraging employees to later, partial retirement, promotion of long lasting education, particularly “updating” knowledge and competences of elderly employees and for caring of health and safety in the work place. The particular phenomenon we can observe in the countries of the old Fifteen of the EU is realization of social policy for employees over fifty. It means the use of extra specialist research by them. It is a common phenomenon, in Poland and other EU countries, to “push” elderly employees to “obligatory retirement” since their employers claim they have reached their retirement age. It is a common phenomenon, however, it does not contribute to employment younger employees for the place of those retired. The post after the retired employees remain empty. In many EU countries, there are programs of earlier retirement. In Poland, the common phenomenon was “the bridge retirement” during the age of economy transformation after 1990. However, that situation was forced by liquidation of many Polish enterprises. But those which run their activity, focused on technical and technology development or changed their contemporary profile. The statistical analysis clearly show that the situation is more and more difficult after the age of fifty and it is particularly hard among those after the age over fifty-five. 5. Summary Summing up the above assumptions, discrimination is claimed to be a form of unreasonable unequal treatment of a person or group, often done in a long term and purposely. On the work market, the most discriminated groups are those who just enter the market and persons above fifty, and recently the age limit has lowered to forty, forty-five. Those who are about fifty years old have small chances to find a new job or often maintain their place of work, and their knowledge, experience and availability are not their advantages to get or keep the job. Discrimination is simultaneously a systematic unfair activity aiming at maintenance a privileged position by a dominating group. Moreover, the discrimination phenomenon is still a problem in the EU. Its founders did not assume that the problem of discrimination and social inequality will be stronger and stronger despite numerous measure undertaken in order to stopping it. We can still observe the phenomena of discrimination, e.g. the mentioned above “labor camps”. Obviously, the discrimination phenomenon occurs in wider range in the states with weaker democracy and economy which influence its spreading. The age discrimination has been also noticed in Poland as a social problem and the problem of protection of an individual rights, mainly in accordance with the membership in the EU. The Polish legal regulations within prevention of employment discrimination have been adjusted to the EU standards – there were definitions and mechanisms implemented. The evaluation of the scale and character of the age discrimination phenomenon in Poland is more difficult because there are no sufficient data collected by the public institutions, there are few researches and the analysis are not full. 504 | In order to monitor and evaluate the anti-discrimination policy properly, it is necessary to work out the system of collecting data concerning the age discrimination. Such reports are necessary to evaluating the scale of the problem and efficiency of activity measures put to victims’ disposal. However, it must be noticed that the range of the phenomenon, measured by formal complaints and claims is based on the consciousness of “being discriminated” and the knowledge of legal regulations as well as social economy situation which is more or less favorable of discriminating behaviors from the side of employers and approving them by employees in order not to lose their job. The available researches prove the fat that the age discrimination is noticeable in the Polish society – “discrimination is flying in the air” – regardless the number of confirmed cases of breaking the anti-discrimination legal regulations. Combating the age discrimination within employment reaches importance thanks to the significant element in the job market focused on professional activity of the elderly. Unfavorable changes in the productive age population between those in a mobility and immobility age may result a significant decrease the number of those in a productive age, causing decrease of labor resources and in the consequence, the supply of the labor power in the Polish job market will be getting worse. Good economy in the years 2005-2008 favored the increase of professional activity of the elderly. Recently, there has been a phenomenon that employer do not make the elderly redundant but they do not employ the younger as well. It is difficult to evaluate the efficiency of the governmental program “Solidarity of generations” – it surely has not improved the situation of the unemployed in older age. The success of the anti-discrimination policy and professional activity of the elderly depend on three factors: state policy, employees’ attitude and the elderly attitude. The source of the age discrimination may be system solutions (e.g. legal regulations concerning the protection period, insufficient allocation of funds from the Labor Fund for professional activity). On the other hand, employers have insufficient knowledge and tradition to use so called age management in their companies, namely conscious policy concerning the use of human resources, particularly of employees over fifty. The elderly employees are expected to change their attitude to more active one. As regards preventing age discrimination, non-governmental organizations, supported by the EU funds, realizing programs promoting the rule of equality regardless the age, play a significant role. Thanks to those actions, the consciousness of the discrimination problem is increasing and there is stereotype breaking and the change of attitude among the elderly. References Szatur-Jaworska B., Stop dyskryminacji ze względu na wiek, Wydawnictwo: Akademia Rozwoju Filantropii w Polsce, Warszawa 2005. Comp. Opinion of the European Court of Human Rights on draft Protocol 12 to the European Convention on Human Rights, Doc 8606, 5 January 2000, par. 5. Report: Counteracting discrimination in Poland. Legal and institutional aspects, Chancellery of the Prime Minister, Secretary Office of the Government Plenipotentiary for Equal Treatment, Warsaw 2004. Art. 2 p. 2b the Directive 2000/43/WE. Comp. art. 2 p. 4 the Directive 2000/43/WE, art. 183a § 5 Labor Code (Journal of Laws on 1998, Nr 21, pos. 94 with later amendments ). Comp. art. 2 pkt. 3 the Directive 2000/43/WE, art. 183a § 5 Labor Code (Journal of Laws on 1998, Nr 21, pos. 94 with later amendments). Comp. art. 18³a § 6 Labor Code (Journal of Laws on 1998, Nr 21, pos. 94 with later amendments), | 505 [in:] Report: Counteracting discrimination in Poland. Legal and institutional aspects, Chancellery of the Prime Minister, Secretary Office of the Government Plenipotentiary for Equal Treatment, Warszawa 2004. Comp. art. 141 par. 4 the Trety of Amsterdam and art. 183b par. 3 Labor Code, [in:] Report: Counteracting discrimination in Poland. Legal and institutional aspects, Chancellery of the Prime Minister, Secretary Office of the Government Plenipotentiary for Equal Treatment, Warsaw 2004, p. 6. Szarfenberg R., Ubóstwo i wykluczenie społeczne w Polsce, Polish Report Social Watch 2010, Published by Polska Koalicja Social Watch and Polski Komitet European Anti-Poverty Network, Wydawnictwo: Kampania przeciw homofonii, Warszawa 2011, p. 7. Tomaszewska J., Dyskryminacja ze względu na płeć, [in:] Sex discrimination and its counteracting, The publication of Secretary Office of the Government Plenipotentiary for Equal Treatment, Wydawnictwo: Virgo Poligrafia Radom, Warsaw 2004, p. 7. Sztompka P., Socjologia. Analiza społeczeństwa, Wydawnictwo Znak, Kraków 2002. Wagner B., Zasada równego traktowania i niedyskryminacji pracowników, [in:] Praca i Zabezpieczenie Społeczne Nr 3/2002, Wydawnictwo Polskie Wydawnictwo Ekonomiczne, Warszawa 2002. Wojtyła J., Conference materials, 2007 – Europejski Rok Równych Szans dla Wszystkich, Upowszechnienie norm prawa dotyczących dyskryminacji a kształtowanie prawidłowych relacji międzyludzkich w stosunkach pracy, Wydawnictwo Regionu Śląsko-Dąbrowskiego NSZZ „Solidarność”, Katowice 6 lipca 2007. Kowalik S., Praktyki dyskryminacyjne a uprzedzenia społeczne, „Ruch Prawniczy, Ekonomiczny i Socjologiczny” 1992, No 1. The Roman Treaties (the Treaty establishing the European Economy Union and the Treaty establishing European Nuclear Power Union - Euratom) were signed on March 25, 1957 by Belgium, France, the Netherlands, Western Germany, Luxemburg and Italy. They came into force on January 1, 1958 on unidentified time. The both documents, together with the Treaty of Paris are the foundations of the European integration. In the preamble, the signators obliged to common actions aiming at eliminating the barriers within Europe. The reason was improvement of life level and working conditions of the EU citizens. The Treaty of Amsterdam amending the Treaty of the United Europe, Treaties establishing the EU a several acts of 1997connected with them. Official Journal UE L 303 z 2.12.2000, p. 16; Official Journal UE The Polish special issue, chap. 5, vol. 4, p. 79. Official Journal UE L 39 of 14.2.1976, p. 40; Official Journal UE The Polish special issue, chap. 5,vol. 1, p. 187, Official Journal UE L 269 of 5.10.2002, p. 15; Official Journal UE The Polish special issue, chap. 5,vol. 4, p. 255. Official Journal UE L 14 of 20.1.1998, p. 6; Official Journal UE The Polish special issue, chap. 5, vol. 3, p. 264. Official Journal UE L 204 of 26.7.2006. p. 23. Zakrzewska A., – the author of the article titled „Tomatoes instead of coconuts” for the Pronot Reporter, interview with Jerzy Adamczyk - the manager of the Consular Department of the Polish Embassy in Rome,, access: http://www.bezgranic.net.pl, on 11.06.2013. The Polish Constitution, Chapter II the Freedoms, Rights and Obligations of persons and citizens. General principles art. 30 The inherent and inalienable dignity of the person shall constitute a source of freedoms and rights of persons and citizens. It shall be inviolable. The respect and protection thereof shall be the obligation of public authorities. art. 32 1. Freedom of the person shall receive legal protection. 2. Everyone shall respect the freedoms and rights of others. No one shall be 506 | compelled to do that which is not required by law. art. 33 1. Men and women shall have equal rights in family, political, social and economic life in the Republic of Poland. Men and women shall have equal rights, in particular, regarding education, employment and promotion, and shall have the right to equal compensation for work of similar value, to social security, to hold offices, and to receive public honors and decorations. The Labor Code Chapter II General provisions of the Labor Code. Szukalski P. (red.), Plany zawodowe i przewidywania odnośnie do wieku przechodzenia na emeryturę [in:] Przygotowanie do starości. Polacy wobec starzenia się, Wydawnictwo Instytut Spraw Publicznych, Warszawa 2009. (Endnotes) 1 The Polish Constitution, Chapter II the Freedoms, Rights and Obligations of persons and citizens. General principles art. 30 The inherent and inalienable dignity of the person shall constitute a source of freedoms and rights of persons and citizens. It shall be inviolable. The respect and protection thereof shall be the obligation of public authorities. art. 32 1. Freedom of the person shall receive legal protection. 2. Everyone shall respect the freedoms and rights of others. No one shall be compelled to do that which is not required by law. art. 33 1. Men and women shall have equal rights in family, political, social and economic life in the Republic of Poland. Men and women shall have equal rights, in particular, regarding education, employment and promotion, and shall have the right to equal compensation for work of similar value, to social security, to hold offices, and to receive public honors and decorations. 2 The Labor Code Chapter II General provisions of the Labor Code, art. 11¹- The employer is obliged to respect dignity and other personal goods of the employee; art. 11²- The employees are equal due to identical fulfillment of the same duties, it particularly concerns equal treatment of men and women in employment; art. 11³- The employee Has the Wright to decent remuneration for work. The conditions of that righ are described by the regulations of the Labor Code and the state policy on remuneration, particularly through stating minima rate of remuneration for work; Art. 183a. § 1. Employees should be treated equally while establishment and ending employment relationship, employment conditions, promotion and access to vocational trainings, especially regardless sex, age, disability, race, religion, nationality, political ideology, union identity, ethnic origin, religion, sexual orientation and the condition of employment – defined or undefined period, full or part time. § 2. Equal treatment in employment means not discriminating in any way, directly or indirectly, from the reasons described in § 1. § 3. Direct discrimination means treatment of the employee from one or several reasons described in §1 less favorably than others in comparable situation. § 4. Direct discrimination occurs when the use of the criterion, being a result of potentially neutral decision, or undertaken action appear or Gould appear unfavorable disproportions or particularly unfavorable situation Chile establishing or ending employment relationship, employment conditions, promotion or the Access to vocational trainings towards all those or noticeable number or employees belonging to a distinguished group according to one or several reasons described in §1, unless the regulation, criterion or action is objectively reasonable according to the lawful aim to be reached, and the measure necessary to reach the aim are proper and necessary. § 5. The discrimination symptom in the comprehension of §2 also means: 1) action of enhancing another person to infringe the rule of equal treatment in employment or forcing the person to infringe the rule, 2) unwanted behavior with the aim or result is infringement of the employee’s dignity and creation towards the person intimidating, hostile, humiliating atmosphere (molesting). § 6. Sex discrimination also means any unwanted sexual behavior or relating to the employee’s sex with the aim or result is infringement of the employee’s dignity, particularly creation towards the | 507 person intimidating, hostile, humiliating atmosphere, such behavior may include physical, verbal or non-verbal elements (sexual molesting). § 7. The employee’s subordination to molesting or sexual molesting and undertaking activities against such moleskin or sexual molesting May no cause any negative consequences towards the employer. Art. 183b. § 1. Equal treatment infringement in employment, with the restriction of §2-4, means the employer’s diversifying the situations of the employee from one or several reasons described in art. 183a §1, with the particular result in: 1) rejection of establishment or ending the employment relationship, 2) unfavorable rate of remuneration for work or other working conditions, or omitting in promotion or giving other benefits connected with the work., 3) omitting while selection to vocational trainings, unless the employer proves that the causes were reasonable. § 2. The rules of equal treatment while employment do not infringe the activity proportionally to the lawfully achieved aim of the employee’s situation diversification, namely: 1) not employing the employee due to one or several reasons described in art. 183a §1, if the kind or the conditions of the work cause that the reason or reasons mentioned in his regulation are Real and deciding Professional demand put to the employee; 2) giving the employee employment conditions concerning the working time fit is reasonable with the reasons not concerning employees without referring to another reason or reasons described in art. 183a § 1, 3) using the measures the diversify the legal situation of the employee according to the protection of parenthood or disability, 4) using the criterion of the work record while establishment of employment and dismissing employees, rules of remuneration and promotion and the access to vocational trainings, which justifies different treatment of employees according to their age. § 3. The actions undertaken for an identified time aiming at equaling the opportunities of chances of all or noticeable number of employees distinguished for one or several reasons described in art. 183a §1 by decrease in favor for such employees real inequality in the range described in this article, do not infringe the rule of equal treatment in employment. § 4. Employees’ diversity according to their religion or faith does not infringe the rule of equal treatment in employment if the employee’s faith or religion means significant, reasonable and justified professional requirement due to the kind and character of the activity performer within churches and other faith unions and organizations remaining with direct connection with religion or faith. Art. 183c. § 1. Employees hale the Wright to identical remuneration for identical work or for work of identical value. § 2. The remuneration described in §1, overwhelms all components of the remuneration regardless their names and character and other benefits connected with the work admitted to the employees in the form of money or other forms. § 3. The works of identical value means the works that performance requires comparable professional skills confirmed with the documents included in separated regulations or practice and professional experience and comparable responsibility and effort. Art. 183d. The person towards whom the employer infringed the rule of equal treatment in employment has the right to damages not lower than the minimal remuneration for work established in separated regulations. Art. 183e. § 1. The employee’s use of the entitled rights from the rule of equal treatment in employment Carnot be the basis for unfavorable treatment and cannot cause any negative consequences towards the employee, particularly, it cannot be the reason justifying terminating the work contract by the employer or dismissing the employer without a notice. § 2. The rule in §1 is applied relatively to the employer who supported, in any form, the employee using the rights on account of infringement of the rule in equal treatment in employment. 508 | Marek Salamonowicz University of Warmia and Mazury in Olsztyn [email protected] Academic spin-off company as a legal form of commercialising intellectual property rights Abstract The research object of this material is to analyse the influence of creating and functioning academic spin-off companies on economic growth and dissemination of new technologies. The proper presentation of this problem imply elaboration of statistic data and current trends in that field. There are also official documents elaborated by EU institutions, which encourage public research organizations (PROs) to engage in intellectual property (IP) commercialisation. The article presents factors which determine propensity for creating spin-off and legal actions which should be undertaken in process of their creation. It presents different possibilities in PROs IP policy and attempt to identify the best practices. It takes into account author’s experiences as well as analysis of practices of foreign – mostly EU and US PROs. It provides EU perspective and mainly considerations are based on EU and Poland legal system. In the conclusion it is underlined that spin-off companies imply the largest academia engagement in science-industry collaboration. Despite licensing, it becomes the main bridge for effective dissemination research results. The article identifies which forms and actions and what content of these actions is most efficient and brings the biggest amount of social-economic benefits. Keywords: technology transfer – economic growth – intangible assets – public research organizations – license agreement 1. Introduction The purpose of this material is to present legal aspect of creating and functioning academic spinoff company as a form of intellectual property commercialization. To realize this task first activity is the attempt of spin-off definition in order to determine what is the problem. Than observed tendencies and trends are presented. Because the fact that EU authorities have formed several recommendations which are addressed to European public research institutions it is worth to analyze them from the spinoff creating and functioning perspective. It is also necessary what factors have influence on creating spin-offs companies. Legal creation and functioning of academic spin-off is phenomenon which implies different legal actions and activities. This presentation is based on authors’ personal polish, European and US experiences and knowledge acquired form consulting as an IP law expert at University’s Technology Transfer Office. The general picture of academic spin-offs is improved by comparison with other forms of intellectual property commercialization like licensing and assignment. 2. Academic spin-off - meaning of the term Apart from licensing and assignment, spin-off company is a legal form of technology transfer from public research organizations to industry. The number of academic spin-offs became one of the main indicator of effectiveness and intensiveness of technology transfer from science to industry and stimulators of economic growth. That is why public authorities try to encourage and stimulate creation of academic spin-offs. There is no definition of spin-off company or academic spin-off which is present in normative act in European Union legal system. But this term is being used not only by economic and | 509 legal doctrine but also by European and national official authorities in different documents sometimes described as soft law acts. Even for that reason and on the other hand for research needs it is reasonable to explain that term. Especially attempt to find some common denominator. There is variety of different doctrinal definitions, there is also OECD survey devoted high tech spin-offs (OECD, Science Technology Industry, 2001). In 1999 OECD member states were asked to “choose from five firm types which are most frequently identified as public spin-off” (Callan, 2001, p. 16). The purpose of that survey was elaboration of common definition. Out of 18 responding countries 14 of them choose “any new firm which includes a public sector or university employee as one of the founders”. Secondly, with 9 votes was: “any new firm which licenses technology from a university or public research institute”. Thirdly, with 8 votes was: “Any new firm in which a university or national laboratory has made an equity investment”. Less votes was given to other options which were: “Any new firm that started in an incubator or technology park affiliated with the public sector or a university” – with 7 votes and “Any new firm which includes a student or alumni as one of the founders” with 5 votes. Two of the respondents: Canada and the Association of University Technology Managers from US suggested to extend proposed list to cases when public research institution directly creates company to provide some products or services to market which had been provided previously by them directly or companies which spun-off research hospitals. It is worth to underline, that according to described survey only three most frequently chosen types were qualified as constitutive features of academic spin-off definition. The view of OECD deserves approval in describing the engagement of students or alumni as founders of a new firm. It is to broad, because most of new innovative firms are established by students or former students. In practice it would be very hard to narrow the scope of that feature (Callan, 2001, p. 18). For example, with short period after completing studies. But what period would be justified to treat such new firm as spin-off? The similar situation is present in analyzing the feature about incubator or technology park affiliated with public research organization as the place of leading economic activity. Sometimes residents of technology parks or incubator are not connected with academia on any field: technology or human resources. That is why it should not be a common denominator for academic spin-offs. The effect of OECD survey is corresponding with researchers finding and doctrinal attempts to construct proper definition. Dominant number of definition are two dimensional. They emphasize connections between new formed company and academia on the field of technology and human resources. According to such view, academic spin-off “is a new company that is formed by faculty member, staff member or student who left university to found company or started the company while still affiliated with the university and/or a core technology (or idea) that is transferred from the parent organization” (Clarysse, Moray, 2004, p. 55 and Müller, 2010, p. 190). There are also one dimensional definitions which cover only technological aspect. An example of such definition is one elaborated by F. Pirnay and others. Authors define academic spin-offs as “new firms created to exploit commercially some knowledge, technology or research results developed within a University” (Pirnay, Surlemont, Nlemvo, 2003, p. 355). From a legal point of view all three denominators are relevant. Legal protection of technology which originally was developed at academia or with its contribution is as much important as legal instruments which encourage research staff engagement in commercialization process. Also it is taken into consideration the form of licensing and broader the issue of intellectual property rights as an object of contribution into company estate. 3. Observed trends, facts and figures The most comprehensive survey over academic spin-offs and technology transfer was lead and published by OECD in 2003. From that time, there were published only fragmentary studies in particular countries or individual public research organizations. 510 | The phenomenon of creating academic spin-offs is wide spreading and becoming more and more popular. It doesn’t create competition for licensing, rather is a good complement. Very often license agreement is a part of spin-off creation. According to OECD survey, in 2000 the average public research organization created less than one spin-off per year. For example on one university’s technology transfer office in Germany 1.12 spin-offs per year, Japan 0.1, Italy 0.5, Korea 2.5, Netherlands 1.77, Norway 5.0, Switzerland 1.77, Spain 0.67 Russia 1.33. But for example in U.S. the average public research institution created two spin-offs. After 13 years from survey, these numbers should be greater, especially in EU, where programs to encourage and intensify cooperation between science and industry took place (OECD 2010 Survey, p. 73). Especially when in the light of Association of European Science and Technology Transfer Professionals – ASTP Survey, big percentage of technology transfer offices efforts is devoted to support creation and functioning of academic spin-offs (Arundel, Bordoy, 2007, p. 6). What is more, according to standardized performance measures average university in European Union produced in 2006, 1.6 spin-off per 1000 research staff, 5.5 patent applications, 2.6 patent grants (Arundel, Bordoy, 2007, p. 8). In US, according to the Association of University Technology Managers (AUTM, U.S. Licensing Activity Survey, 2011) there were 591 new commercial products introduced, 4,899 licenses executed, 1,152 options executed, 416 executed licenses containing equity, 38,600 active licenses and options, 670 new companies formed, 487 of which had their primary place of business in the licensing institution’s home state, 3,927 startup companies still operating as of the end of FY2011. On the list of top 8 U.S. Universities, which created the biggest amount of spin-offs are: Massachusetts Institute of Technology – 218 (total number in years 1980-2001), University of California System – 148, Stanford University – 101, University of Utah – 102, University of Minnesota – 85, University of Washington – 74, California Institute of Technology – 69, University of Georgia – 65 (O’Shea, Allen, Chevalier, Roche, 2005, p. 1002). One of the tendencies is that spin-off companies want to acquire exclusive license from public research organization, if not an assignment of rights. It is so, because research results protected by intellectual property rights are the most valuable assets for them. Most of public research institutions has their own safety policies and measures which will maintain the possibility of using research results in case of spin-off bankruptcy. Also dominant practice is that IP commercialization activities and engagement of scientists has positive influence on academic career and salaries. That influence is getting stronger in most OECD countries. But on the other hand scientists’ engagement in commercial activities can rise conflict of interest concerns (Zomer, Jongbloed, Enders, 2010, p. 331). That is why some countries like Denmark and Germany elaborated official guidelines to prevent and resolve such conflicts and in other OECD countries like: Canada, France, Ireland, Netherlands, UK, US, such guidelines are present on the level of particular funding institutions or public research organizations. In some OECD countries, including Poland, UK, South Korea, had previously legislation which prohibited or restricted public universities to own equities in other companies. Since several years it could be observed tendency to liberalize this issue and to make public institutions commercial engagement more effective. But still there are some regulations which create additional obligations for public research institutions who want to engage in commercial company (OECD, 2003, p. 16 and OECD, 2010, p. 73). 4. Recommendations of the EU on academic spin-off policy European Commission recommends public research organizations to engage in cooperation with industry. In its opinion this is the important factor of establishing effective European Research Area (European Commission Recommendation, 2008, p. 5). The condition of proper science – industry cooperation is professional intellectual property policy inside public research organizations which would stimulate among others creation of spin-offs companies. The opinion that spin-off companies may be a good form for providing new products and innovative services to society deserves approval. It really can be the way to promote the use of publicly-funded research results and bring many socio-economic | 511 benefits from academia-industry collaboration. Technology parks, business incubators which are created by universities can also play a significant role in establishing spin-off companies. The necessity of research staff engagement in commercialization process has been also recognized by European Commission. It recommends public research organizations to establish in their policy mechanisms of awarding research staff for participating in commercialization process to encourage them for effective work on industrial implementation of research results. In practice, research personnel is gratified by share in the profits of spin-off companies, salary for additional consulting services performed for company or options for equity in spin-off (European Commission Recommendation, 2008, p. 8). But despite financial gratification there is a need for taking into account spin-off creating, patenting, licensing, collaboration agreements with industry as a reason for promotion in scientific career (European Commission Communication, 2007, p. 6). In the literature there have been identified three basic psychological motivations for inventors to start spin-offs. “First, a desire for wealth. Second, a desire to bring the technology to market (regardless of the financial implications). Third, a desire for independence and also career-enhancement goals (related to status and university affiliation)” (Nayyar, Rosli Bin, Jul2012, p. 46 and Nosella, Grimaldi, Aug2009, p. 679). It is worth to underline that European Commission doesn’t postulate that cooperation between academia and industry in the form of spin-off company should be temporary. It rather recommends long term cooperation. In the eyes of European Commission university doesn’t have to withdraw from spin-off company after its success. This means that public research organizations can create their own investment strategy and redefine their mission. In many EU member states intellectual property commercialization and cooperation between science and industry is lead by separate companies which are dependent from public research institutions. For example, in Germany Bayerishe Patent Allianz GmbH which is a company that leads intellectual property commercialization process in the name of several Bavarian Universities. In United Kingdom for example Oxford and Cambridge have their own enterprises in the form of limited liability company and those entities are commercializing research results as well. In Poland, according to art. 86a of the act on higher education, the university, in order to commercialize the results of research and development creates a limited liability company or joint stock company, hereinafter referred to as “special purpose company”. The special purpose company is formed by the Rector with the consent of the Senate or any other university collegiate body. The task of the special purpose company is in particular taking shares in companies or the creation of companies that are formed to implement the results of research and development work in universities (Pyter, 2012, commentary to art. 86a). Such a solution has few advantages. Bigger credibility and easier way to operate. President or Rector of University don’t have to engage in commercial negotiations with entrepreneurs such actions as well as concluding agreements are in managing boards’ hands in University’s company. It doesn’t mean that members of managing board are totally independent. Rector who representing the only shareholder can revoke any member of that organ at any time. The other advantage is lower financial risk in case of failure. The University’s company will be responsible for its debts not a University, who is shareholder (WIPO, 2000, p. 23). 5. Legal and economic factors which determine propensity for creation spin offs It is worth to describe which factors create better environment for establishing and functioning academic spin offs. One of the most influential factors is scientific and research potential. So to commercialize new technical solutions there should be research on the cutting edge level. Unless there won’t be any potential solutions and research results which can have potentially economic value there won’t be anything to commercialize. It is a crucial factor – research potential – the bigger it is the stronger propensity to create spin offs. Research potential which is composed from total number and high 512 | qualifications of postdoctoral staff and faculty working in research plus laboratories and infrastructure being on disposition for scientists. The second factor is the access to financial resources. It is not only important how big is the universities’ budget for R&D but also what is the scale of industry engagement in that process. The public funds directed to R&D from the state, and EU funds are essential. But industry financial and other engagement directs R&D more on economy needs path. So the bigger participation of business in financing R&D the greater propensity for creating spin-offs at universities. From legal perspective the fundamental question is who has the right to research results. Partly under the influence of US Bayah Dole Act from 1980 also in most EU member states the rule is that inventions and other intangible assets like utility models, industrial designs which were created in course of employment in academia or financed from public funds belongs to university as employer or project beneficiary (Lissoni, Lotz, Schovsbo, Treccani, 2009, p. 3). In Denmark, Germany, Austria, Finland, Norway the “abolition of professors’ privilege process” took place in years 2001-07, in Sweden professors’ privilege is still a binding rule. In practice some grants imply cooperation with business or even creating spin-off between academia and industry. In such cases it is the element of negotiations who is going to be the owner of IP rights. The possible solutions will be the subject of consideration in further part of this material. Despite strong research potential, financial resources and clear academia’s IP policy there is a need for professional advisory and place of connecting all those things together. That is why proper functioning, experienced, professional technology transfer centre should not be underestimated (O’Shea, Allen, Chevalier, Roche, 2005, p. 997). Authors provide eight hypothesis and factors which determine propensity for creating academic spin-offs. These are: 1) Earlier tradition and history of spinning out companies; 2) High level of research activities of science and engineering; 3) The number of postdoctoral staff and faculty working in R&D; 4)The proportion of industry funded research; 5-6) Science and engineering budget and state expenses on science and engineering; 7) Technology transfer officers and their skills; 8) The presence of university affiliated incubator and technology park. 6. Creation of spin-off – academic engagement Before decision about creating academic spin-off there are few other IP policy decisions which should be made on the level of university with close cooperation with innovators. First of all, is there a need and possibility of patent protection or there are other possible forms of protection like copyright for software or trade secret. But it is not only one decision (protect or not and in what form), this is a dynamic process. The situation may change after first search report which can reveal similar inventions or blocking relations with other patents. Most of Universities are patenting only in home countries. Such a practice restricts possibility of commercializing abroad. So when technology has potential it can be patented in other countries by using Patent Cooperation Treaty (PCT) or European Patent Office (EPO). This generate costs on the side of University, the broader territorial scope of protection, the highest costs. Often on this moment there aren’t any potential investors who would like to cover costs. But there are some public funds devoted for acquiring international patent protection. To get such funds there should be some evidences of commercial potential of such invention. This is rather economic decision which imply legal actions. Applying for patent protection is not enough. Often invented technology is immature and need testing, prototyping and efficiency verification. Industry in most cases is not interested in investing in solutions which are at laboratory stage, it wants product or at least working prototype. That is why in practice there is a dilemma what form of commercialization should be chosen. Grant a license or to create a spin-off. The more convenient way is to grant license and get revenues for patent protection and royalties for academia and research team. But in many cases there are no investors, business angels, venture capitalists who would like to take the risk of investing in implementation of research results into business practice. That is why that difficult period in innovation process is called “the Death Valley”. It should be underlined that in such circumstances wise engagement of university is needed to promote technical progress (Xiaogang, 2006, p. 925). In such | 513 situation, when granting license or assign the rights is not possible or sensible there can be a place for creating spin-off. Many times creating a spin-off company with engagement of academia, researchers and business partner can be a condition of applying for public funds for industrial implementation of research results (Rajamaki, 2011, p. 199). Despite the high level of economic risk, the decision about creation of spin-off should be based on constantly verified, adapted and discussed business plan (Richards, 2009, p. 37). This document should contain answers for key questions. First, what spin off is going to do? It means kind of product or service that spin-off is going to offer, target market, what would be source of supply and how route to the market will look like. Secondly, who is going to own it? Who will have shares in share capital, what big share capital will be and who is going to have control over company? Are there any investors, how equity will be divided? Thirdly, who is going to work in spin-off company? Can company count on further engagement from the side of inventors research team? Fourthly, what funding are needed? It is necessary to make financial simulation. Fifthly, what University’s IP would be needed? Despite that it should be established what further research are needed and what is the risk of violation of other entities IP rights. After answering all those questions, sequence of legal activities should be undertaken. The most important are: shareholders agreement and articles of association, which will constitute spin-off company, license agreement or assignment between University or its agent and spin-off, consultancy agreement – between academic founders and company with University approval, managing director(s) service contract. The content of those legal activities should be determined by effect of the three-way negotiations between the University, innovators/inventors and investors. In further part of this material there will be presented possible legal solutions which often take place in practice and its consequences. Some of practices are emanation of particular IP policy of the public research organization. The object of consideration will be limited liability company as most popular form of spin-off. Remarks will be based on EU legal system from polish and other member states perspective. Such perspective seems to be justified by the harmonization of capital companies law in EU. 7. Legal acts necessary to create spin-offs. Articles of association. For the creation of a academic spin-off limited liability company the following legal actions are required. Firstly, the conclusion of the articles of association in a notary form. Secondly, the making by the shareholders of contributions to finance the entire share capital, and where the share is subscribed for a price higher than the nominal value, also contributing of the balance. Thirdly, the appointment of the management board and the supervisory board or the audit committee if this is required. Finally, the registration in the commercial register (Richards, 2009, p. 43). The articles of association should determine the name and seat of the company. The seat of the spin-off company could be technology park or local incubator. The name should have distinctive character and should not mislead public. Under prior universities’ consent spin-off company may use words which underline special relations with academia. Universities’ consent can be given in form of license agreement with new formed company. The scope of license may cover not only using the name of university in name of the company but also universities’ trade mark and marks registered by the spin-off company. This can promote new technology and University, but in case of violating academia’s good name, there should be possibility of revocation (Mets, Leego, Talpsep, Varblane, 2007, p. 19). The objects of the spin-off company should be present in articles of association. It doesn’t have to be leading economic activity or strict commercial goal. This can be any legal purpose, so this could be R&D, prototyping, designing, creating projects. Sometimes the main purpose of creating spin-off is participation in competition for public grants. But more often the object of spin-off company is to 514 | monetize technology or other research results (Jongho, K. Winter2011, p. 41). To specify and give legal force to obligations of particular founders in favor of new creating company it is worth to conclude separate investors agreement. These obligations can be: investment certain amount of money in the future, give employees (often members of research team) option for shares in share capital to motivate, give priority to buy shares in case of sale offer (Benneworth, Charles, 2005, p. 551). One of the most important parts of the articles of association is the amount of the share capital. It is a concrete sum of money which should be written on the passive side in financial balance document and which is the sum of the nominal value of the share. The bigger share capital is the higher level of company’s credibility and economic potential. Sometimes at the beginning the share capital is very small, but there is another agreement between shareholder than in case of for example winning a public grant for new technology industrial implementation, certain amount of financial sources will be invested. Or there is a provision in the articles of association that share capital will be upraised to certain level. The number and nominal value of the shares subscribed for by individual shareholders also should be determined. According to that provision it is possible to point out who has real control over spin-off company: investor/s, one of the investors, university – seldom, or inventor/s – also not frequently. Rather a technical thing, which has any influence on control over the company is whether or not the shareholder may have more than one share. In case of academic spin-offs shares are usually equal and non-dividable and one shareholder can have more than one share. 8. Assets of spin-off company. Intellectual property rights as a subject of in-kind contribution Intellectual property rights such as patent, exclusive right to utility model, right in registration of industrial design, protection right of trade mark or right to know-how as well as exclusive right to new variety of plants or rights to obtain given rights can be the subject of in kind contribution to academic spin-off company. What’s more they are fundamental assets for new forming company (Nayyar, Rosli Bin, Jul2012, p. 45). They have ability to be a subject of contribution because they fulfill four conditions: 1) they are transferable, 2) they can be evaluated and 3) their economic value can be putted into financial balance. The last condition is the possibility of establishing rights and transfer them from academia to spin-off company. According to art. 158 of Polish Commercial Companies Code, if an inkind contribution is to be made as contribution to the company for the purpose of financing the share in whole or in part, the articles of association shall specify in detail that in-kind contribution and the shareholder who makes such an in-kind contribution, as well as the number and nominal value of the shares acquired for such contribution. This creates the biggest practical problem of the value of intellectual property rights assessment. It should be underlined that University doesn’t have always to assign exclusive rights into spin-off company, there is also possibility of granting a license to new formed company. Often spin-off company’s shares are the remuneration for the rights to use University’s technology. That is why the value assessment of intellectual property rights is so important. There are several methods, procedures and ways to assess the value of intangible assets. All of them can be divided and classified into three groups. There is: the cost approach, the market or transactional (sale comparison) approach and the income approach (Reilly, 2002, p. 37). There is also a distinction between discrete and collective method “all of the intangible value of the business (from whatever economic phenomena contribute that intangible value) is analyzed and quantified in the aggregate”. Such intangible collective value is called goodwill (WIPO, 2000, p. 23). The cost approach is based on the principle of substitution. The reasonable buyer (or investor in spin-off company) won’t give more money than costs of obtaining equivalent asset. So in this approach it is important to collect data about funds devoted for development, creation and construction of particular technology or technique solution or other intangible asset. The other side is to consider the cost | 515 of obtaining equivalent asset by purchase. The problem is that some new technologies has no reasonable substitutes. One of the cost approach application method is determination of replacement costs. The term means costs necessary to recreate utility and functionality of particular intangible good. It doesn’t have to be the same, but this should be a solution which resolves the problem or is capable to perform the task and achieve the same level of satisfaction. To assess these costs various categories should be taken into consideration: so called hard costs like materials, machines, components, various laboratory equipment costs 2) soft costs like (labor, engineering, design, other services, coordination of the project). Third category of costs is described as “developer’s profit (return)”. It case of public academia, especially when research activities were funded from public money, the profit is not first priority. Fourth costs category is “an entrepreneurial incentive”. Such costs should be reduced by different forms of obsolescence which effects in value losses. This would be specially relevant when particular technology standards are getting older very fast (Sheery, Teece, 2008, p. 151). The market approach is based on economic principle of competition and equilibrium. The main factor are other transactions for example licensing contracts, assignment agreements and royalties and prices which are the element of those contracts. The problem is that usually such information is a trade secret and it is not publicly obtainable knowledge. So the essence of this approach is that information about transactional prices of substitutes brings good justification and is evidence for assessment. It is so when the market is unrestricted and prices are determined by equilibrium between supply and demand. The first step in this approach is to collect information about similar transactions. The next step is to verify data and make adjustments, if necessary. Then comparison of different value indications to establish one the most relevant or range of values. By analyzing similar assignment or license transaction several factors should be considered. The kind of IP right for example granted patent has different value than right to obtain patent. Are there any special financial terms between the parties. What was the market situation in time of the transaction. What is technological, functional and economical characteristics of the object of licensing or assignment agreement. The last issue is relevant especially when the object of an agreement is bundle or packet of rights for example essential for particular technology standard. The income approach is based on principle of expectation. So in practice it is an anticipation made at certain moment what income is going to be earned form the using of intangible asset protected by intellectual property law. So the prospective economic income is converted into actual worth. The main problem is to take into account the financial risk and other changing factors. One of the income method is quantification of economic income in comparison with situation of not owning intangible assets. Second is to asses decrease of economic costs comparing to situation of not owning particular intangible assets. Third is an estimation of royalties for using intangible assets which should be paid to University in case of not making them a subject of contribution to academic spin-off company. Finally, having an intellectual property rights portfolio rising the overall value of business (Reilly, 2002, p. 37). To obtain multidimensional perspective it is worth to evaluate intellectual property under all three group of methods. It is critical not to overestimate the value of in-kind contributions because of legal sanctions. According to art. 175 of Polish Commercial Companies Code “If the value of in-kind contributions has been considerably inflated in relation to their sale value as at the date of the conclusion of the articles of association, the shareholder who made such a contribution and members of the management board who, knowing this, filed the company in the register, shall be jointly and severally liable to make good the outstanding balance to the company”. So in case of considerable overestimation of University’s contribution, the obligation to recover such shortage would be on academia and members of managing board side . The subject matter of the contribution shall be at the sole disposal of the management board of the company. The research results elaborated in the course of public research organizations activity which are covered by exclusive intellectual property rights, are qualified as public property. From that 516 | reason legal activities that rights may demand formal approval from the side of government authorities. For example in Poland, according to act on the execution of competences of Ministry of Treasure. Public legal persons are obliged to obtain the consent of the minister responsible for the Treasury to carry out legal action in the field of dispositions of assets within the meaning of the accounting regulations, qualified inter alia as the values ​​of intangible assets, including the commissioning of these assets for use others on the basis of civil law contracts or pay as a contribution to a company or cooperative, if the market value of the subject matter exceeds EUR 50 000 (MNiSW, 2010, p. 168). In such situation University should fulfill the application for approval which should determine: 1) the subject of a planning disposition specifying the accounting data identifying assets; 2) the market value of the subject matter; 3) the method of disposition; 4) the entity for which the disposition will take place; 5) The economic justification of legal action. The application should has appendixes such as 1) documents: which state that the applicant is a legal person, unless the legal personality of the Act has been given to the applicant, b) the right of the subject matter, c) the market value of the subject matter valuation expert or a statement of the applicant - if the market value of the subject matter can be determined on the basis of the published prices or quotations, or if the cost exceeds 20% of the valuation of the carrying amount of the subject matter; 2) a draft agreement under which it is to be made ​​to the disposition; 3) other evidence of the data and information contained in the application. Committing legal action without previous consent effects total invalidity. 9. Functioning of the spin-off company. Organs of the company - representation According to the value of contribution made by public research organization and its relation to share capital and other investors’ contributions the influence on spin-off company can be different. It is possible to point three situations: when academia by making contribution to new formed or existing company loses control over intellectual property management, secondly when academia has co-control with other investors, thirdly when academia has sole and exclusive control over intellectual property management and spin-off company (Garmendia, Castellanos, Rodriguez, 2012, p. 39). The first situation is quite often in practice. University by making in-kind contribution to company get shares as a form of remuneration. The subject matter of the contribution shall be at the sole disposal of the management board of the company. When participation of academia in company is less than 20% the main influence on company has investor sometimes with inventors. The interest of academia should be secured at the time of creating a contract – articles of association. To protect university’s interest it is reasonable to establish supervisory board. Such organ will has right to control all spin-off company activities. Academia can be not interested in day-to-day managing of affairs of the company. In such situation it will be a passive shareholder who will be interested in effective implementation of technology originated from it and highest level of profits (Nayyar, Rosli Bin, Jul2012, p. 45). In some situations the position of academia is relatively strong so it has shares between 20-50 % in share capital. Such strength and high engagement gives possibility to demand influence on managing of affairs of the company. This would be the case when University’s agent take position of member of managing board. It is worth to underline that members of scientific team should not be engage as manager (executive director). With some exceptions it is time consuming, stressful and needs special experiences. So scientist/inventor should be rather a consultant (or Research Committee Director). Executive director should be a Professional manager with big experience (Richards, 2009, p. 43). When potential investors aren’t interesting in engaging in implementation works which are very risky, University may engage solely in such frontier activity. Such situation can be characterize as high level of risk and the risk is on the academia, the level of university’s engagement is also highest, full control over results and high level of eventual profits because nobody wanted to participate in such activity, than there is no one to participate in profits. In case of success the spin-off company may itself commercialize obtained intellectual property results or grant a license. | 517 10. Comparison with other forms of commercialization When intellectual property right is a subject of in-kind contribution to spin-off company the effect is that academia is not right holder. Even if the subject of contribution is only license, the possibility of revocation is very restricted. Similar situation would be in case of assignment. University definitely loses its rights for certain price. From this perspective, licensing agreement give academia the right to terminate contract (Salamonowicz, 2013, in publishing). The other issue is burden of IP management. In case of creating spin-off company, that legal person is fully responsible for managing this asset. In practice academia can has indirect influence by its agents. But when IP is assigned, the academia has no influence on managing those assets. The other situation will take place in case of licensing. Than academia should manage licensed IP, secure validity of rights, control licensee from execution of contract perspective. On the other hand by every form of IP commercialization University’s agents (technology transfer officers) should have knowledge and skills about proper security of its interests. Differences are between legal forms of commercialization of academia’s IP on the field of remuneration and it sources. In exchange for an in-kind contribution, university gets shares in share capital of spin-off company. Those rights provide a bunch of rights among them there is right to dividend. So in case of profits university will have a right to participate in pure profit which was previously accepted to be divided between shareholders. This possibility is actual for the whole period of spinoff existence. Additionally academia can sell its shares in spin-off company to other subject. Granting a license brings academia the right to royalty payments. They are usually in pecuniary form and are paid periodically. The amount of royalties can be connected with the intensiveness or effectiveness of using licensing goods. While concluding assignment agreement creates obligation to pay the established price once or in installments. Such characteristic imply another difference. The relation between economic effectiveness of using previously university’s research results and amount of academia’s remuneration. In case of assignment that factor won’t have any influence on the price and installments. But when licensing royalties are dependent from licensee’s income it is important to grant a license to specialized subject and retain right to control. Similar situation would be when academia is engaged in spin-off company. The academia’s profits and value of its shares in spin-off company would be influenced heavily by skills and talents of members of managing board and attractiveness of contributed technology (MNiSW, 2010, p. 238). When research results are mature enough to be implemented into industry without necessity of further development works grant a license is the best way of commercialization. But if research results are promising and need to be further elaborated to achieve higher level of industrial application, spin-off company can be a proper form of cooperation between science and industry. Finally, when effect of industrial application is unpredictable and risky, but there is buyer, who wants to obtain the rights to these research results, conclude assignment contract can be reasonable. Of course, choosing the right form of commercialization is part of university’s policy. The aim of describing those situations was providing typical regularities. 11. Summary Public research organizations should engage in cooperation with industry. That engagement should not replace the basic mission of university’s which is teaching and leading research activities. The revenues from research results commercialization definitely won’t replace public funds. But creation and functioning spin-off companies brings other social benefits. Providing and applying new technologies in industry better satisfy human needs and rises the level of technical culture of society. Not every university is situated in the Silicon Valley where cooperation between scientists, academia, venture capitalists and industry is part of the entrepreneurship culture (Richards, 2009, p. 10). 518 | In case of lack of tradition in commercialization, lack of success stories, and small intellectual property potential, but high bureaucratic barriers creating academic spin-off company is very tough task. There are some measurements in EU and its member states policy to encourage universities to intensify their IP commercialization activities. The role of technology transfer offices is to build up a culture and climate for cooperation between business and science. Public funds for that cooperation are also important stimulator. European authorities are aware that fostering innovations and their industrial application is a key to economic growth (Benneworth, Charles, 2005, p. 551). Creation of academic spin-off needs balance the interests of three parts: university, research group and investors. From legal point of view protection of academia’s and staff interests should be continuous. That is why every public research organization should create their own policy principles on the field of IP protection and commercialization. That principles should not be too inflexible. Public research institutions can act different role in functioning spin-off company. From full control through partial engagement in managing process to passive shareholder of minority votes on general assembly or even only licensor without any equity. 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Toward a typology of university spin-offs. Small Business Economics 21, p. 355. Pyter, M. (2012), Prawo o szkolnictwie wyższym, Warsaw: C.H. Beck Publishing, commentary to art. 86a. Rajamaki, H. (Jun2011). The bridge: Connecting science and business. Culture & Organization, Vol. 17 Issue 3, p199-212. Reilly, R. F. (2002). Valuation of intangible assets in dot.com and intellectual property intensive companies, American Journal of Family Law, p. 37 Richards, G. (2009). Spin-outs creating business from university intellectual property. London: Harriman House Ltd Salamonowicz, M. (2013). Patent and know-how licensing at public research organizations. University of Warmia and Mazury Law Review. (in publishing process) Sheery, F., Teece, D. (2008). Royalties, evolving patent rights and the value of innovation. In: The transfer and licensing of know-how and intellectual property. Understanding the multinational enterprise in modern world. London: World Scientific Publishing. p. 151. Xiaogang, P. (Dec2006). University spin-offs: Opportunity or challenge? Nature Materials, Vol. 5 Issue 12. p925. Zomer, A., Jongbloed, B., Enders, J. (Jul2010). Do spin-offs making academics’ heads spin? Minerva: A Review of Science, Learning & Policy. Vol. 48 Issue 3, p331-353. 23p. Documents ASTP. Arundel, A., Bordoy, C. (2007). The ASTP survey for Fisal Year 2006. OECD. (2001). Science Technology Industry. Special Issue on Fostering high-tech spin-offs: Public strategy for innovation. No 26. OECD. (2003). Turning science into business. Patenting and licensing at public research organizations. OECD Publishing. OEDC. (2010). Science, Technology and Industry Outlook. OECD Publishing. p. 73 AUTM, Association of University Technology Managers, U.S. Licensing Activity Survey, Fiscal Year 2011. Commission Recommendation on the management of intellectual property in knowledge transfer activities and Code of Practice for universities other PROs, Brussels 2008, p. 5. Communication from the Commission: Improving knowledge transfer between research institutions and industry across the Europe, Brussels 2007, p. 6. MNiSW. (2010). Przewodnik. Komercjalizacja B+R dla praktyków. Warszawa JJP Studio. pp. 270. WIPO. (2000). Guidelines on developing intellectual property policy for universities and R&D organizations. Genewa WIPO Publishing.f 520 | Magdalena Rzewuska University of Warmia and Mazury in Olsztyn [email protected] Legal protection offered to a purchaser of movable property from an unauthorized transferor Abstract This paper discusses the legal protection offered to a purchaser of movables from an unauthorized transferor which constitutes an important topic in legal practice. Persons purchasing movable property from an unauthorized party are entitled to two forms of legal protection. The first is regulated explicitly by the provisions of Art. 169 of the Polish Civil Code, whereas the second enables the purchaser to take advantage of implicit warranty for defects in acquired goods. This publication analyzes both forms of legal protection and highlights selected interpretation problems. The efforts made in the international arena to harmonize the relevant laws are overviewed and analyzed. Keywords: protection of a purchaser of movables, unauthorized transferor, implied warranty for defects in goods, Draft Common Frame of Reference 1. Introduction The rule of nemo plus iuris in alium transferre potest, quam ipse habet is an important principle in property law which states that no-one can transfer more rights that he possesses to another person. For reasons of commercial security, the scope of the nemo plus iuris rule has to be significantly restricted in reference to contracts transferring rights to movable property (Piątowski, 1977, p. 294). This paper discusses exceptions to the above rule, namely the purchase of movables from an unauthorized transferor. This issue has very serious implications for legal practice, and numerous attempts have been made over the years to harmonize the relevant laws in the international arena, as discussed in successive parts of this paper. Under Polish law, this matter is regulated by Article 169 of the Civil Code which states that: “§1. If a person who is not entitled to dispose of movable property disposes of it and releases it to the purchaser, the latter acquires property ownership of property as of the moment the property comes into his possession, unless he acts in bad faith. §2. However, if the property lost, stolen or otherwise mislaid by the owner is disposed of before three years have passed from the time it was lost, stolen or mislaid, the purchaser may assume ownership only upon the lapse of the said three years. This limitation does not apply to money or bearer documents or goods acquired at an official public auction or during execution proceedings.”1. The analyzed regulation offers a certain compromise between the protection of the transferee’s and the transferor’s interests. It is generally assumed that the provisions of §1 of the above article protect the interests of the former, and the provisions of §2 safeguard the interests of the latter (Nadler, 2004, p. 475). The discussed problem raises a question as to whether the law should protect the interests of the owner of movable property or the purchaser who acquired property from an unauthorized transferor. Private property receives protection under the Constitution, and it undoubtedly contributes to the economy improvements2. It should be noted that the Supreme Court, based on the decision of the Constitutional Tribunal of 29 May 2001, K 5/01, Official Collection of the Jurisdiction of the Constitutional Tribunal of 2001, No. 4, item 87, stated that Art. 169 of the Civil Code does not violate the provisions of Art. 31 section 1 and Art. 64 section 3 of the Polish Constitution (Justifica- | 521 tion of the decision of the Supreme Court of 15 November 2002, V CKN 1340/00, LEX No. 78012). 2. Legal protection offered to a purchaser of movable property regulated by the provisions of Art. 169 of the Polish Civil Code with partial reference to selected foreign regulations The protection granted to the purchaser under Art. 169 §1 of the Civil Code should not raise any doubts. It has been rightly noted in legal doctrine that an owner making his property available to another party vests trust in that person. The owner can choose the transferee freely, and he is guided by personal interest in the choices he makes. A logical conclusion that follows from the above is that inadequate choices should have consequences (Cf. Wilke, 1980, p. 39; Szpunar, 1963, p. 434). Paragraph 2 of Article 169 of the Civil Code protects the owner of lost property by introducing a three-year period upon the lapse of which, the transferee, having fulfilled additional statutory requirements, may assume ownership of lost property (For an in-depth analysis of lost property, refer to: Wilke, 1980, p. 39-.) The lapse of the three-year period is required on account of the fact that unlike property that is entrusted to a third party, stolen, lost or otherwise mislaid property is removed from the owner’s possession without his knowledge and against his will (Art. 169 §1 of the Civil Code), (Cf. Wilke, 1980, p. 39-.) In most European countries, when an unauthorized transferor disposes of property entrusted to him by the owner, legal protection is offered to a purchaser who acts in good faith (Stelmachowski, 2007, p. 353; CF. art. 2276 § 1 of the French Civil Code; Ritaine, http://www.lalive.ch/data/publica tions/EleanorCasinRitaineFrance_Sellier_v21a=FrLammer_15.3.10_b.pdf; §367 of the Austrian Civil Code; Art. 932 (1) of the German Civil Code). Many countries do not offer any protection to a purchaser who acquired lost or found property from an unauthorized transferor3. This is the case in Germany, and §935 of the German Civil Code states that acquisition of ownership does not take place if movable property was stolen from the owner or lost, even if the purchaser acted in good faith (This provision does not apply to money or bearer documents or goods acquired at an official public auction). The above limitation was introduced to account for the fact that the owner has no control over the loss of property (Baur, Stürner, 1999, § 52 n 37). In view of the regulations offering protection to a purchaser who acquires movable property from an unauthorized transferor, the Polish civil law doctrine seems to emphasize the need for certainty and the ease of conduct of civil law transactions (Wilke, 1980, p. 132). The objective of Art. 169 of the Civil Code is to protect the purchaser, provided that he fulfills the relevant requirements set forth by the legislator. Different requirements will apply, subject to whether property was entrusted by the owner to the transferor or whether it came into the transferor’s possession without the owner’s knowledge and against his will. A unauthorized transferor of property is a person who: − disposes of property entrusted to the transferor by the owner without due authorization, − disposes of property that has been stolen from, lost by or otherwise mislaid by the owner, − owns the property but is not authorized to dispose of it, for example if property was seized in execution proceedings (Cf. Nadler, 2004, p. 474; Szpunar, 1999, p. 52). Protection is offered to a person purchasing movables from an unauthorized seller only if the purchaser acted in good faith. If there is evidence to demonstrate that upon concluding the transaction, the purchaser was convinced of the transferor’s legal title to property, the purchaser’s right to legal protection is indisputable (Cf. Machnikowski, 2010, p. 335). The aim of granted protection is to protect commerce (Majorowicz, 1972, p. 465). In effect, the purchaser acquires a legal title to movable property. According to P. Machnikowski, the level of protection is determined by three factors: 522 | 1) the transferor’s reliability and the reliability of information about his legal rights to disposed property, 2) political and legal goals pursued by the legislator, 3) the need to protect third parties during transactions between the purchaser and the transferor (Machnikowski, 2010, p. 335). In line with the Supreme Court’s ruling, the acquisition of movable property from an unauthorized party does not constitute a legal sales transaction where the transferor is the legal owner of property. For this reason, the acquisition of movables from an unauthorized party should be regarded as a special case of property purchase, as indicated by the provisions of Art. 169 §1 of the Civil Code (Decision of the Supreme Court of 3 March 2005, II CK 469/04, LEX No. 578133). In legal doctrine, this type of purchase is commonly regarded as derivative acquisition of ownership (Rudnicki, 2007, p. 170; Szpunar, 1963, p. 431; Ibid., 1999, Nabycie własności…, p. 62; Ibid., 1997, LEX 12024/2; Cf. Wilke, 1980, p. 139. The following authors voiced their support for the original acquisition of private property: Górecki, 1950, p. 87; Wolter, 1967, p. 119-.) This view is generally justified by the “theory of the transferor’s legitimacy”. In accordance with that theory, upon the fulfillment of several statutory conditions, the transferor is entitled to dispose of property, and the circumstances in which the transferor came into possession of disposed property are of key significance (Kowalski, 2004, p. 98). Movable property is deemed to be acquired from an unauthorized person when the following prerequisites are met: − the unauthorized party is in possession of property (i.e. exercises actual control over property), − the unauthorized party disposes of property, − property is released to the purchaser, − the purchaser assumes possession of transferred property, − the purchaser acts in good faith, − property that was stolen, lost or otherwise mislaid by the owner is disposed of before three years have passed from the time it was stolen, lost or mislaid (Cf. Wilke, 1980, p. 65-.; Gola, 1982, p. 38-.; Justification for the Supreme Court’s decision of 10 October 1997, II CKN 378/97, OSP 1998/6/111; Justification for the Supreme Court’s decision of 5 April 2007, II CSK 23/07, LEX No. 315397). In principle, the purchaser is not under obligation to verify the transferor’s authorization unless the circumstances of the transaction raise doubt (Nadler, 2004, p. 475; Cf. Decision of the Administrative Court in Poznań of 18 October 2007, I ACa 146/07, LEX No. 370695.; Decision of the Supreme Court of 9 December 1983, I CR 362/83, LEX No. 8577). The possession of property is a constituent element of the transfer. From the purchaser’s point of view, it legitimizes the transferor to dispose of property because the purchaser acts under the assumption that a person who exercises actual control over property is an owner-like possessor (Art. 339), i.e. his possession is presumed to be compliant with the legal status (Art. 341), (Rudnicki, 2007, p. 168). It is emphasized in literature that the release of property creates a pretense for its disposal (Szpunar, 1999, Wydanie jako przesłanka…, LEX 18522/10). Under German law, in analyses of the acquisition of movable property from an unauthorized party, the transferor has to be in possession of released property (Wilke, 1980, p. 66 and the literature cited therein). Other prerequisites also have to be fulfilled, i.e. the conclusion of a contract between the transferor and the transferee, the release of property and the purchaser’s participation in the transaction in good faith4. Under §1006 of the German Civil Code, it is presumed that the possessor of movable property is the owner of transferred goods (For more references, see: Kowalski, 2004, p. 104, and the literature cited therein). In most cases, property is disposed of through the conclusion of a contract under which prop- | 523 erty rights are transferred from an unauthorized party to the purchaser (Decision of the Supreme Court of 9 March 2005, II CK 483/04, LEX No. 151654). The contract should fulfill the requirements set for a valid legal transaction (Decision of the Supreme Court of 13 May 2005, IV CK 577/04, LEX No. 1111002; see also: Justification for the decision of the Provincial Administrative Court in Kraków of 27 November 2009, I SA/Kr 694/09, LEX No. 541957; Cf. Szpunar, 1963, p. 431). In German legal practice, it is deemed that if a contract between a transferor and a transferee is concluded despite the fact that the transferor is lacking the capacity for legal actions, the transaction is void even if the transferee acted in good faith (Heck F. Grundriss des Sachenrechts, Tübingen 1930, p. 247 -, (in:) Kowalski, 2004, p. 105). The release of movables by the transferor is one of the prerequisites for the acquisition of property from an unauthorized party (The delivery of property is discussed at greater length by Szpunar, 1999, Wydanie jako przesłanka…, LEX), and it constitutes an actual transaction. Property does not have to be released to the purchaser directly upon the conclusion of the contract (Szpunar, 1999, Wydanie jako przesłanka…, LEX 18522/6). The release of property, a prerequisite which has to be fulfilled for the purchaser to become entitled to legal protection against an unauthorized transferor, does not take place under constitutum possessorium, an agreement transferring possession without actual delivery (Decision of the Supreme Court of 18 April 2002, II CKN 1226/00, LEX No. 55239; Rudnicki, 2007, p. 170; Kwaśniewski, 1998, LEX 15738/3. For references to German law, see: Rahmatian, http://www.iuscomp.org/gla/literature/ra hmatian.htm; For references to Austrian law, see: Gschnitzer F., Sachenrecht, New York 1968, pp. 101-, (in:) Gola, 1982, p. 17). The purchaser’s good faith is one of the key prerequisites for the acquisition of movable property from an unauthorized party. It involves the purchaser’s misguided but, under certain circumstances, justified conviction that the transferor has a legal title to dispose of property (Supreme Court’s decision with justification of 15 November 2002, V CKN 1340/00, LEX No. 78012). According to A. Szpunar, the concept of good faith does not have a uniform definition in property law (Szpunar, 1997, LEX 12349/1; Cf. Decision of the Provincial Administrative Court in Warsaw of 1 June 2009, III SA/Wa 446/09, LEX No. 508769). The above author rightly notes that the situational context in which the concept of good faith appears should always be taken into account. He argues that in cases of usucaption (Cf. Decision of the Supreme Court of 5 December 2000, IV CKN 180/00, LEX No. 52506), the decisive factor is the possessor’s conviction that he is entitled to ownership. Pursuant to the provisions of Art. 169 of the Civil Code, it is the purchaser’s conviction that the transferor has a legal right to dispose of property (Szpunar, 1997, LEX 12349/1). Subjective elements relating to the possessor’s conscious convictions (Decision of the Supreme Court of 19 July 2000, II CKN 282/00, LEX No. 52565) as well as elements such as the object of a transaction and its price (Szpunar, 1997, LEX 12349/7) play an important role in analyses aiming to determine whether the parties to a transaction acted in good or bad faith. The principle of practical experience should always be observed – a lawyer will always be expected to act with greater diligence during the conclusion of a transaction (Szpunar, 1997, LEX 12349/8). The purchaser has to show good faith at the moment he assumes possession of property (For references to French law, see: Ritaine, http://www.lalive.ch/data /publications/ EleanorCasinRitaineFr ance_Sellier_v2-1a=FrLammer_15.3.10_b.pdf, p. 189), and with regard to property that was stolen, lost or otherwise mislaid by the owner – in the course of three years after the time the property was stolen, lost or mislaid (Cf. Decision of the Supreme Court of 28 August 1984, I CR 261/84, OSNCP 1985,books 5-6, item 71; Resolution adopted by 7 Supreme Court judges on 20 March 1992, III CZP 18/92, OSNCP 1992, book 9, item 144; Szpunar, 1999, Nabycie własności…, p. 91; Cf. Id., 1997, LEX 12349/10; Komosa, Krauss, 1992, LEX 11307/2; Kowalski, 2004, p. 102; Cf. Piątowski, 1977, p. 302.) A different interpretation of the three-year period was provided by P. Machnikowski who made a reference to the functional interpretation of this principle (Machnikowski, 2010, pp. 342-343). In 524 | his opinion the purchaser has to show good faith only at the moment he assumes possession of property (Machnikowski, 2010, pp. 342-343). In my opinion, the arguments put forward by the cited author are sound. Therefore in order to avoid any doubt in this respect I propose in the next revision of the Civil Code complete § 2 art. 169 of the Civil Code by using these words: The purchaser has to show good faith only at the moment he assumes possession of property. It should be noted that in instances of traditionis brevi manu, good faith which protects the purchaser of property against an unauthorized transferor must be demonstrated upon the conclusion of a dispositive agreement (Gniewek, 2001, LEX/EL.; For references to German law, see §932 of the German Civil Code). In principle, the following exceptions apply to the presumption of good faith: − the purchaser was convinced that the transferor was not authorized to dispose of property, − the purchaser’s lack of knowledge about the transferor’s authorization resulted from his negligence (Supreme Court’s decision (7) with justification of 30 March 1992, III CZP 18/92, OSNCP 1992, book 9, item 144; Decision of the Administrative Court in Lublin of 7 November 1996, I ACr 288/96, LEX No. 29694; Decision of the Supreme Court of 9 December 1983, I CR 362/83, LEX No. 8577; Majorowicz, 1972, p. 465). The purchaser acts with neglect when he fails to exercise due diligence in a given place and time (decision of the Supreme Court of 10 March 2004, IV CK 151/03, unpublished; decision of the Supreme Court of 11 January 2001, IV CKN 150/00, OSNC 2001, No. 10, item 153). According to the Supreme Court, the legislator intentionally defined good faith in the negative in Art. 169 of the Civil Code – “unless he is acting in bad faith”. This legal construct indicates that the burden of proving bad faith rests on the party questioning the effectiveness of the property transfer. It reinforces the principle expressed by Art. 7 of the Civil Code which makes a presumption of good faith (Decision of the Supreme Court of 11 March 1998, II CKN 613/97, LEX No. 286775; Cf. Justification of the decision of the Administrative Court in Poznań of 18 October 2007, I ACa 146/07, LEX No. 370695; Cf. Decision of the Supreme Court (7) of 30 March 1992, III CZP 18/92, OSNCP 1992, book 9, item 144). Under Polish law, a person who purchases in good faith movable property from an unauthorized transferor is entitled to legal protection regardless of whether the property was acquired gratuitously or for value (Stelmachowski, 2007, p. 355). Doubts regarding gratuitous acquisition have been long expressed in legal doctrine. M. Wilke rightly notes that a good faith purchaser should not be entitled to protection if property was acquired gratuitously because the protection of commerce is not an issue in such transactions (Wilke, 1980, p.131). P. Machnikowski aptly observes that a purchaser should be entitled to legal protection only if he fulfills or undertakes to fulfill an obligation whose value is similar to that of acquired property (Machnikowski, 2010, p. 344). The above author rightly argues that the interests of the purchaser and the property owner should always be weighed. If the purchaser derives gain without offering anything in return, the protection of his interests is not legally justified (Machnikowski, 2010, p. 344). Under German law, if an unauthorized transferor gratuitously disposes of property entrusted to him by the owner, a good faith purchaser is also entitled to legal protection in that he acquires a legal title to property purchased from an unauthorized transferor. In this case, the original owner can claim ownership of lost property by initiating legal action against the purchaser pursuant to the provisions relating to unjust enrichment (Rahmatian, http://www.iuscomp.org/gla/literature/ rahmatian.htm; For references to Polish law, see: Wasilkowski, 1969, p. 183; Cf. Gola, 1982, p. 92-.). Under Austrian law, a good faith purchaser is entitled to protection only if he acquires property for value from an unauthorized transferor (§ 367 of the Austrian Civil Code)5. | 525 3. Attempts to harmonize international law in this matter The discussed issue has serious implications for legal practice, and numerous attempts have been made over the years to harmonize the relevant laws in the international arena. One of such projects was the Draft Convention Providing a Uniform Law on the Acquisition in Good Faith of Corporeal Movables6. Article 5 of the Draft Convention offers protection to a purchaser who acquires movables from an unauthorized transferor. The acquisition of rights in movables is valid provided that: − the transferee acts in good faith, − movables are delivered to the transferee (Art. 5a). The above Draft Convention was never enacted, but Art. 11 proposed that a transferee of stolen movables should not be able to invoke his good faith. The following arguments were put forth to justify this proposal: − the owner is protected against theft in the majority of national legal systems, − it is easier for a purchaser to claim compensation from a transferor than for the owner to claim compensation from a transferor who has to be first found, − attempts should be made to counteract the growing incidence of illicit trade in stolen works of art7. In theory, it could appear that it is easier for a purchaser to claim compensation from a transferor, but in practice, this is not always the case. A thief who is aware of his illegal conduct and who sells stolen property will undoubtedly make every attempt to hide from the purchaser. A similar position was adopted by the Draft Common Frame of Reference (DCFR). Article VIII3:101 (2) states that “Good faith acquisition in the sense of paragraph (1) does not take place with regard to stolen goods, unless the transferee acquired the goods from a transferor acting in the ordinary course of business. Good faith acquisition of stolen cultural objects in the sense of VIII.-4:102 (cultural objects) is impossible”. The following arguments were put forward to justify the proposed solution: − the proposed solution exists in many European legal systems, − the protection offered to the owner is justified by the fact that the owner did not in any way contribute to the loss of his property, − sanctioning the acquisition of property from an unauthorized possessor would make theft more attractive (Von Bar, Clive, Schulte-Nölke, Beale, Herre, Huet, Storme, Swann, Varul, Veneziano and Zoll (eds.), p. 4162). In my opinion, the solution proposed by DCFR does not serve its purpose. The first question that comes to mind is why the acquisition of lost property should be legally sanctioned, and the acquisition of stolen property should not? It is argued that the owner does not contribute to the theft of his property, but does he contribute to the loss of his possessions? In what way does the owner contribute to the loss of property if, for example, his car keys become detached from a key holder due to the holder’s mechanical defect? If we assume that an owner can consciously contribute to the loss of property, he can also contribute to its theft, for example, by failing to lock the door and thus facilitating the theft of a television set from his house. In my opinion, both issues should receive equal treatment, which is not the case in DCFR where the acquisition of stolen property from an unauthorized transferor is illegal, but the purchase of lost property is legally admissible. P. Machnikowski rightly points to the misguided nature of the assumption that theft will become more attractive if the acquisition of stolen property from an unauthorized transferor is legally sanctioned. The above assumption fails to account for penal and civil consequences facing perpetrators who violate property rights (Machnikowski, 2010, p. 337). 526 | A reference should also be made to the proposal made by DCFR regarding the burden of proving good faith. Art. VIII.-3:101 (1)(d) states that: “the transferee neither knew nor could reasonably be expected to know that the transferor had no right or authority to transfer ownership of the goods at the time ownership would pass under VIII.-2:101 (Requirements for the transfer of ownership in general). The facts from which it follows that the transferee could not reasonably be expected to know of the transferor’s lack of right or authority have to be proved by the transferee”. In theory, the proposed solution: − would balance the interests of the purchaser and the former owner, − is supported by the general principles of the law of evidence, − would limit the number of instances in which movable property is purchased from an unauthorized party (Von Bar, Clive, Schulte-Nölke, Beale, Herre, Huet, Storme, Swann, Varul, Veneziano and Zoll (eds.), pp. 4160-4161). In my opinion, the proposed solution is not based on sound arguments for several reasons. Firstly, the covenant of good faith is a general presumption in many European legal systems. Secondly, in many legal systems, the burden of proving bad faith relies on the original owner of property (Rahmatian, http://www.iuscomp.org/gla/literature/rahmatian.htm; Ritaine, http://www.laliv e.ch/data/publications/EleanorCasinRitaineFrance_Sellier_v21a=FrLammer_15.3.10_b.pdf, p. 190). Thirdly, good faith may be very difficult to prove in practice. And lastly, the provisions regulating the acquisition of movables from an unauthorized transferor were introduced to protect a purchaser in good faith. The correlations between the burden of proving good faith and legal protection offered to the purchaser should be analyzed in greater detail. The solution proposed by Art. VIII.-3:101 (1) (c) of the DCFR deserves acknowledgement. The above article states that: “Where the person purporting to transfer the ownership (the transferor) has no right or authority to transfer ownership of the goods, the transferee nevertheless acquires and the former owner loses ownership provided that: the transferee acquires the goods for value”8. The following arguments were put forward to justify the proposed solution: “A rule excluding good faith acquisition for gratuitous transfers does not interfere with the general aim to protect commerce. First of all, gratuitous transfers are not very common in business life. Second, parties will have no difficulties to understand and to accept that they may not expect special protection when acquiring gratuitously (even if the “for value” requirement may cause difficulties with mixed donations, it will at least be clear to each party that such a mixed donation is at stake and that special protection maybe should not be expected)”, (Von Bar, Clive, Schulte-Nölke, Beale, Herre, Huet, Storme, Swann, Varul, Veneziano and Zoll (eds.), p. 4157). 4. Implied warranty for defects in goods Persons purchasing movable property from an unauthorized party are entitled to two forms of legal protection. The first is regulated explicitly by the provisions of Art. 169 of the Civil Code, under which, the purchaser acquires a full legal title to transferred property. The second approach disregards the legal mechanism set forth in Art. 169 of the Civil Code, and the purchaser may request that the transaction with an unauthorized party be invalidated on ground of defects in the acquired goods (Decision of the Supreme Court of 24 July 2008, IV CSK 182/08, LEX No. 465367). The admissibility of provisions relating to implied warranty for defects in goods does not contradict the intent of Art. 169 §1 of the Civil Code. According to a decision of the Supreme Court, the objective of Art. 169 §1 is to improve the situation of a good faith purchaser and not to deprive him of access to legal instruments which enable the purchaser to become released from a void contract and which are available in situations where no such protection was offered (Decision of the Supreme Court of 24 July 2008, IV CSK 182/08, LEX No. 465367; refer to the court’s justification. Cf. Szpunar, LEX 12964/1: | 527 The provisions of Art. 169 of the Civil Code do not deprive a purchaser of the right to implied warranty for legal defects. Art. 169 offers protection to the purchaser, not the transferor (seller).). The discussed issue has been the subject of a long debate in legal doctrine (Cf. Skąpski, 1976, p. 131, who was in favor of entitling a purchaser of movables from an unauthorized party to implied warranty. An opposing viewpoint was expressed by Buczkowski, 1972, p. 1288; Cf. Mularski, 2011, LEX No. 145562/1,2). A. Gola puts forward the following arguments to back his claim that a purchaser of movables from an unauthorized party should be entitled to implied warranty for defects in goods: − by offering protection to purchasers under Art. 169 of the Civil Code, the legislator’s intent was to restrict the scope of the nemo plus iuris in alium transferre potest, quam ipse habet rule and to protect good faith purchasers against loss, − a purchaser should be released from a contract concluded with an unauthorized possessor of property for ethical reasons, − for legal reasons, a purchaser cannot be forced to keep property which, as it was later revealed, had been acquired from an unauthorized party (Gola, 1982, p. 63). The provisions of Art. 556 §2 in relation to Art. 574 of the Civil Code clearly indicate that the purchaser can be released from the contract if the traded movables constitute third party property. In the discussed case, this is clearly a legal defect (Cf. Żuławska, 2006, pp. 52-53) because sold property was owned by a third party. I firmly support the solution in which a purchaser acquiring property from an unauthorized transferor would be entitled to implied warranty for defects in purchased goods. In my opinion, the above solution is justified by the principles of social coexistence and the need to protect a purchaser against the claims raised by the original owner of transferred property (Cf. Justification of the decision of the Supreme Court of 24 July 2008, IV CSK 182/08, LEX No 465367). A. Gola has rightly observed that it would be highly unethical to deprive a purchaser of the above rights. 5. Summary In conclusion, it should be noted that the protection offered to a person who purchases movable property from an unauthorized transferor has practical justification. The act of providing a good faith purchaser with a legal title to movable property acquired from an unauthorized party contributes to the effectiveness of commercial transactions. Efforts should be made to harmonize the relevant laws in the international arena, in particular in an era of free markets (Cf. Kowalski, 2004, p. 114). Undoubtedly, this is a highly complex process which has to accommodate diverse solutions that exist in national legal systems. References Baur J. F., Stürner R. (1999), Sachenrecht, (17th ed), Buczkowski S. (1972), [in:] Kodeks cywilny. Komentarz, Warszawa, Gniewek E. (2001), Kodeks cywilny. Księga druga. Własność i inne prawa rzeczowe. Komentarz, Lex/ el. Gola A. (1982), Nabycie własności ruchomości od nieuprawnionego, Warszawa , Górecki J. (1950), Przeniesienie własności rzeczy ruchomej, Wrocław , Komosa T., Krauss J. (1992), Glosa do uchwały SN z dnia 8 lipca 1992 r., III CZP 80/92, PPH.1992.2.24, LEX No. 11307, Kowalski W. (2004), Nabycie własności dzieła sztuki od nieuprawnionego, Kraków, 528 | Kwaśniewski Z. (1998), Nabycie własności rzeczy ruchomej od nieuprawnionego, Pr. Spółek 1998.10.13, LEX No. 15738, Machnikowski P. (2010), Nabycie własności rzeczy ruchomej od nieuprawnionego – dziś i jutro [in:] Współczesne problemy prawa prywatnego. Księga pamiątkowa ku czci Profesora Edwarda Gniewka, eds. Machnikowski P., Gołaczyński J., Warszawa, Majorowicz J. (1972), [in:] Kodeks cywilny. Komentarz, tom 1, ed. Z. Resich, Warszawa, Mularski K. (2011), Nabycie własności rzeczy ruchomej od nieuprawnionego a rękojmia za wady prawne, St. Prawn. 2011.3-4.241, LEX No. 145562, Nadler J. (2004), [in:] Kodeks cywilny. Tom I, Komentarz do artykułów 1-534”, ed. E. Gniewek, Warszawa, Piątowski J. S. (1977), [in:] System Prawa Cywilnego. Tom II. Prawo własności i inne prawa rzeczowe, ed. Ignatowicz J., Wrocław-Warszawa-Kraków-Gdańsk, Rahmatian A., A Comparison of German Moveable Property Law and English Personal Property Law, http://www.iuscomp.org/gla/literature/rahmatian.htm, Ritaine E. C., Transfer of Ownership in Movables in France, http://www.lalive.ch/data /publications/ EleanorCasinRitaineFrance_Sellier_v2-1a=FrLammer_15.3.10_b.pdf, Rudnicki S. (2007) Komentarz do kodeksu cywilnego. Księga druga. Własność i inne prawa rzeczowe, Warszawa, Sauveplanne J. G., Explanatory report in Draft Convention Providing a Uniform Law on the Acquisition in Good Faith of Corporeal Movables, http://www.unidroit.org/english/documents/1975/ study45/s-45-58-e.pdf, Skąpski J. (1976), [in:] System Prawa Cywilnego, Tom III, cz. 2. Prawo zobowiązań, Część szczegółowa, ed. Grzybowski S., Wrocław-Warszawa-Kraków-Gdańsk, Stelmachowski A. (2007), [in:] System Prawa Prywatnego, tom 3, Prawo rzeczowe, ed. Dybowski T., 2nd edition, Warszawa, Szpunar A. (1963), Ochrona nabywcy ruchomości a małżeńskie prawo majątkowe, NP., books 4-5, Szpunar A. (1997) Uwagi na temat uzasadnienia przepisu art. 169 k.c., PPH 1997.8.23, LEX 12024, Szpunar A. (1997), Dobra wiara jako przesłanka nabycia własności ruchomości od nieuprawnionego, PiP 1997.7.3, LEX No. 12349, Szpunar A. (1999), Nabycie własności ruchomości od nieuprawnionego, Kraków, Szpunar A. (1999), Wydanie jako przesłanka nabycia ruchomości od nieuprawnionego, Rejent 1999.1.9., LEX No. 18522, Szpunar A., Uwagi o rękojmi za wady prawne przy sprzedaży, LEX No. 12964, Von Bar Ch., Clive E., Schulte-Nölke H., Beale H., Herre J., Huet J., Storme M., Swann S., Varul P., Veneziano A. and Zoll F. (eds.), Principles, Definitions and Model Rules of European Private Law, http://ec.europa.eu/justi ce/contract/files/european-private-law_en.pdf, Wasilkowki J. (1969), Prawo własności w PRL, Warszawa, Wilke M. (1980), Nabycie własności rzeczy ruchomej na podstawie umowy z osobą nie uprawnioną, Warszawa-Poznań-Toruń, Wolter A. (1967), Prawo cywilne. Część ogólna, Warszawa, Żuławska Cz. (2006), [in:] Komentarz do kodeksu cywilnego. Księga trzecia. Zobowiązania, vol. 2, ed. Bieniek G., Warszawa, http://ec.europa.eu/justice/contract/files/european-private-law_en.pdf http://www.unidroit.org/english/documents/1975/study45/s-45-58-e.pdf | 529 Decision of the Supreme Court of 9 December 1983, I CR 362/83, LEX No. 8577 Decision of the Supreme Court of 28 August 1984, I CR 261/84, OSNCP 1985,books 5-6, item 71 Decision of the Supreme Court (7) of 30 March 1992, III CZP 18/92, OSNCP 1992, book 9, item 144 Decision of the Administrative Court in Lublin of 7 November 1996, I ACr 288/96, LEX No. 29694 Decision of the Supreme Court’s decision of 10 October 1997, II CKN 378/97, OSP 1998/6/111 Decision of the Supreme Court of 11 March 1998, II CKN 613/97, LEX No. 286775 Decision of the Supreme Court of 19 July 2000, II CKN 282/00, LEX No. 52565 Decision of the Supreme Court of 5 December 2000, IV CKN 180/00, LEX No. 52506 Decision of the Supreme Court of 11 January 2001, IV CKN 150/00, OSNC 2001, No. 10, item 153 Decision of the Supreme Court of 18 April 2002, II CKN 1226/00, LEX No. 55239 Decision of the Supreme Court of 15 November 2002, V CKN 1340/00, LEX No. 78012 Decision of the Supreme Court of 10 March 2004, IV CK 151/03, unpublished Decision of the Supreme Court of 3 March 2005, II CK 469/04, LEX No. 578133 Decision of the Supreme Court of 9 March 2005, II CK 483/04, LEX No. 151654 Decision of the Supreme Court of 13 May 2005, IV CK 577/04, LEX No. 1111002 Decision of the Supreme Court’s decision of 5 April 2007, II CSK 23/07, LEX No. 315397 Decision of the Administrative Court in Poznań of 18 October 2007, I ACa 146/07, LEX No. 370695 Decision of the Supreme Court of 24 July 2008, IV CSK 182/08, LEX No 465367 Decision of the Provincial Administrative Court in Kraków of 27 November 2009, I SA/Kr 694/09, LEX No. 541957 Decision of the Provincial Administrative Court in Warsaw of 1 June 2009, III SA/Wa 446/09, LEX No. 508769 Resolution adopted by 7 Supreme Court judges on 20 March 1992, III CZP 18/92, OSNCP 1992, book 9, item 144 (Endnotes) 1 The English translation of the Polish Civil Code is based on: The Polish Civil Code, 2nd edition, translated by Ewa Kucharska, C.H. Beck, Warszawa 2012) 2 http://ec.europa.eu/justice/contract/files/european-private-law_en.pdf, p. 4154 3 http://www.unidroit.org/english/documents/1975/study45/s-45-58-e.pdf 4 Cf. Rahmatian, http://www.iuscomp.org/gla/literature/rahmatian.htm 5 Rahmatian, http://www.iuscomp.org/gla/literature/rahmatian.htm, footnote 237. 6 http://www.unidroit.org/english/documents/1975/study45/s-45-58-e.pdf 7 http://www.unidroit.org/english/documents/1975/study45/s-45-58-e.pdf, P. 113 – explana tory report by Mr. J. G. Sauveplanne. 8 http://ec.europa.eu/justice/contract/files/european-private-law_en.pdf 530 | Marek Dobrowsolski [email protected] Catholic University of Lublin The Consequences of the Ratification the Treaty on Stability, Coordination and Governance in the Economic and Monetary Union Treaty for the Political System of the Republic of Poland (the outline of the problem) Abstract Complex “nature” of the Treaty on Stability, Coordination and Governance in Economic and Monetary Union had resulted much controversy after the signing of it by the Polish Republic and the opening a procedure for ratification. The scale of problems can indicate the requests to the Constitutional Court to declare both the content of the Treaty on Stability and the procedure of it ratification is unconstitutional. At the root of these controversies lay differentiated assessment of the extent and depth of consequences arising from the treaty for constitutional system. The aim of this paper is an attempt to determine the effects of TF on the polish political system1. Keywords: ratification, stability treaty, European Union, constitutional problems, government debt/public debt, public financial, government expenditures. 1. Introduction The Treaty on Stability, Coordination and Governance in the Economic and Monetary Union Treaty (hereinafter referred to as the Fiscal Stability Treaty or the FST) is a type of an international agreement which in reference books is classifies as a type of spontaneous agreements (Mik, 2012, p. 82), hybrid agreements (Jabłoński, 2012, p. 132) or agreements based on the so-called Schengen method (Barcz, 2011, p. 10). Each of these designations draws attention to a different aspect of such agreements. The term “spontaneous agreements” is used as an opposite of agreements programmed in treaties, that is agreements which are a form of intergovernmental execution of founding treaties provided for in these treaties. On the other hand, the expression “Schengen method” refers to agreements concluded in Schengen (in 1985 and 1990) by the five Member States of the European Union at the beginning, to some extent being aside from founding treaties, and it was only later by virtue of a separate decision of Member States of the EU (the Treaty of Amsterdam) that they were incorporated into the legal system of the EU/EC (the so-called communitisation of the legal output of Schengen). Consequently, the affinity of spontaneous agreements with European Union law is disputable (Biernat, 2003, p. 199, C.f. A. Wernik, 2012, p. 157). At the same time, there exist no legal obstacles which could prevent Member States of the European Union from concluding such agreements, on condition however that they comply with European Union law while exercising such a right. I am of the opinion that such a conclusion may be drawn from the findings of the Court of Justice of the European Union in the judgement of 27 November 2012 in C-370/12 Pringle (see particularly paragraph 68, 69, 98, 101, 109 and 182 of the statement of reasons of the judgement).Undoubtedly, such agreements may not be classified as reforming treaties within the meaning of Article 48 of the Treaty on the European Union (or even more as secondary law of the European). At the same time they shall not be treated as „ordinary” classic international agreements. What prevents such agreements from being classified so is the fact that they are initiated by Member States of the EU, that they often refer to solutions in the European Union law, and that their subject is fundamental integration issues (in this context | 531 they are described as hybrid agreements). 2. Clauses with the postponed effect in the Fiscal Stability Treaty The Fiscal Compact was, in accordance with the above-mentioned model, concluded outside the legal framework of the EU with the intention of its later incorporation „as quickly as possible to the treaties on which the Union is founded” (preamble). Pursuant to Article 14.2 the FST will enter into force upon its ratification by the twelve Contracting Parties whose currency is the euro. Other Member States of the EU may also ratify it (before joining the euro area), which still does not mean that it will “immediately” be used in full (see more in Barcz, 2012, p. 6). With reference to this group of countries the treaty contains provisions on the so-called deferred consequence (which delay the enforcement of a wide range of regulations of the FST). From this perspective the solutions it contains may be divided into three groups. The first includes only one regulation; it determines immediate legal consequences of adopting the FST by Member States of the EU whose currency is not the euro. Once they have ratified this Treaty, they shall participate in discussions of Euro Summit meetings concerning competitiveness, the modification of the global architecture of the euro area and the fundamental rules that will apply to it in the future, as well as, when appropriate and at least once a year, in discussions on specific issues of implementation of this Treaty (Article 12.3). The second group includes provisions concerning the fiscal compact (Title III of the Treaty) and economic policy coordination and convergence (Title IV of the Treaty). The countries whose currency is not the euro may be bound by some or all provisions of the said titles before adopting the single currency upon submitting an appropriate declaration (Article 14.5). This group contains (from Title III): rules to strengthen fiscal discipline(Article 3) and to react to excessive public debt and fiscal deficit (Article 4); an obligation to “put in place a budgetary and economic partnership programme” within an excessive fiscal deficit (Article 5), to support the Council in supervising the excessive deficit (Article 7) and to report the planning of their national debt issuance (in order to coordinate) to the Council of the European Union and the European Commission by the Contracting Parties of the FST (Article 6). Within the fiscal compact the FST endows the EU authorities with additional rights and obligations: the Council of the European Union and the European Commission issue and supervise budgetary and economic partnership programmes (Article 5.1 and 5.2), the European Commission presents common principles concerning the correction mechanism (Article 3.2) and submits reports on implementing rules which strengthen fiscal discipline into internal legal systems of the Contracting Parties and the Court of Justice of the European Union will give binding decisions if the Party fails to implement (or implements improperly) these rules (Article 8.1). Pursuant to provisions of Title IV the countries undertake to a) work jointly towards an economic policy (Article 9), b) “ stand ready” to make active use of measures available in primary law of the European Union to fulfil this aim and of the mechanism of strengthened cooperation (Article 10), c) to discuss ex-ante all “major economic policy reforms” (Article 11). The provisions of the FST belonging to the third group refer exclusively to the eurozone countries. The remaining Member States are not bound by these provisions even if they have ratified the FST (until the derogation clause is overruled). These are first of all rules of convening and organising Euro Summit meetings of the countries whose currency is the euro (Article12) as well as the solution which is a legal basis for organising conferences of relevant committees of the European Parliament and national governments to discuss budgetary policies and other issues covered by the Fiscal Compact (Article 13). The solutions set out in the FST created legal bases to establish new categories of countries among members of the EU, both within the Eurozone countries (for the FST to become effective it has to be ratified by 12 countries with the single currency) and remaining Member States of the 532 | EU. While the group of the Eurozone countries is cohesive (all these countries have ratified the FST), the division in the other group of countries is still possible. Within this category of countries (these whose currency is not the euro) one may single out the following subcategories: a) countries which have ratified the FST and are bound by all the provisions of Title III and IV; b) countries which are bound by some of these provisions; c) countries which only have ratified the FST and which have not made a declaration of being bound by provisions of fiscal compact (Title III of the Treaty) and economic policy coordination and convergence; d) countries which postponed the decision to ratify the treaty once the decision to join the euro area is made. Obviously, the above divisions will disappear once all the Member States will adopt the euro as the single currency and agree to be bound by the FST. However, as a side note, it may be indicated that until the provisions of the FST are not an element of European Union law, Member States adopting the euro will ratify the FST separately. It may mean that an increase in the number of countries having the single currency will not lead to the increase in the number of countries bound by the FST. 3. The ratification procedure of the Fiscal Stability Treaty The Fiscal Stability Treaty was signed on 2 March 2012 by heads of states and governments of 25 Member States of the European Union (The Treaty has not been signed by representatives of the United Kingdom of Great Britain and Northern Ireland and of the Czech Republic). Its aim is to strengthen budgetary discipline and develop ever-closer coordination of economic policies within the euro area and between the Contracting Parties, which is to contribute to maintain sound and sustainable public finances in countries bound by its provisions, and as a result the stability of prices and economic growth based on financial stability. From this perspective the most important solutions are the ones which are to maintain a relevant level of public debt (of governmental institutions and institutions of local governments) and, in case it exceeds, to undertake measures to reduce it. Hence, the Treaty establishes a balanced budget rule (Article 3.1 of the FST), which determines a lower limit of a structural deficit to be 0.5 % of the GDP at market prices (Article 3.1.b); (an analogous principle already operates within the Stability and Growth Pact: Regulation of the Council No. 1466/97 as amended by Regulation of the European Parliament and of the Council No. 1175/2011/EU), yet it determines less rigorous demands as to the level of public deficit - a lower limit of a structural deficit may amount to 1 % of the GDP) and the rate of reducing public debt in the countries being the Contracting Parties of the Treaty (Article 4); (The same rate of reducing public debt is determined by Regulation (EC) No 1467/97 of 7 July 1997 on speeding up and clarifying the implementation of the excessive deficit procedure as amended by the Council Regulation (EU) No. 1177/2011 of 8 November 2011. See more Mik, 2012, p. 94-95; C.f. Kranz, Wyrozumska 2012, p. 33 Jabłoński, 2012, p. 136). Aiming at incorporating the Treaty into the Polish legal system, on 20 November 2012 the government of the Republic of Poland adopted a bill agreeing that the President of the Republic of Poland should ratify the Treaty (Sejm paper no. 961). According to the government the treaty is to “contribute to maintain sound and sustainable public finances in countries bound by its provisions, and as a result, the stability of prices and economic growth based on financial stability”. At the same time, as the government emphasises in the justification of the ratification bill, the Treaty “belongs to a wider context (…) of the debate over the methods of managing the European Union, including the debate over the need of isolating an integration centre which would decide about the scope and rate of integration” and „establishing the so-called economic government within the euro area whose aim would be a closer coordination of economic and financial activities of countries whose currency is the euro and a possibility to support financially particular countries in case of difficulties”. Therefore, the FST refers “directly to state authorities in charge of managing economic policy as well as creating and enforcing budgetary rules and procedures” which, accord- | 533 ing to the government, does not lead to the transfer of the competence of state authorities (which would require using an integration clause set out in Article 90 of the Constitution); instead, it concerns only “matters regulated in the act or for which the Constitution requires an act” (Article 89.1.5), therefore it requires passing the so-called ordinary act. A fundamental parliamentary debate over expressing a consent to ratify the FST took place in the Sejm (19 February 2013) and was joined to the discussion about the results of negotiations on long-term financial frameworks for the years 2014–2020 (see Shorthand report of the 34th sitting of the Sejm of 19 February 2013, p. 4-109). The analysis of individual aspects of the ratification discussion requires a legal and politological study. It is enough to say here that both deputies and senators referred among others to the issue of choosing a proper mode of ratifying the FST, thus indirectly to the issue of the impact of provisions of the FST on the scope of competence of state authorities (Pawłowicz 2013, p. 48 – 50; Szczerski 2013, p. 19 and Szulc, Kuźmiuk, E. Arent 2013, pp. 13, 55, 85; Górski, 2013, p. 83 ). In the above mentioned parliamentary debate the government also declared that it does not intend to make a declaration referred to in Article 14. 5 of the FST, which means that provisions of the Treaty will bind the Republic of Poland only after it joins the euro area (in reply to the questions asked by deputies of the Opposition () a representative of the government () stated that „the government does not expect a possibility to declare that a country wishes to be bound by all the provisions of the Fiscal Compact earlier”; see Iwiński, Duda, Szpunar 2013 pp. 43, 108 and 107). In consequence, the only immediate outcome of the ratification of the FST is a possibility for representatives of the Republic of Poland to participate in Euro Summit meetings of the countries whose currency is the euro devoted to discussions about issues determined in the FST (Article 12.3). Therefore, during the discussion in the Parliament it was pointed out that „by ratifying the Fiscal Compact and being outside the euro area Poland will not undertake any new obligations” while „acquiring new rights” (Serafin 2013, p. 56) and “additional possibilities to act” (Borowski, 2013, paragraph 13) . If so presented the issues of the consequences of the FST ratification turned out to be right, then asking the question about the consequences of the FST ratification for the political system of the Republic of Poland would be unfounded; however, according to current findings the FST ratification means being bound by its provisions. Only the application of the majority of these provisions will be delayed (until the moment of joining the euro area or making a relevant declaration). Therefore, it is fully justified to analyse the obligations in the Treaty from the point of view of their impact on the political system of the Republic of Poland. Accordingly, there are three solutions set out in the treaty which are of great importance: a) the reverse majority procedure (Article 7), b) rules requiring budgetary discipline of the FST Contracting Parties, in particular a correction mechanism (Article 3.1e), an obligation to put in place a budgetary and economic partnership programme (Article 5). 4. Institutions established by the Fiscal Stability Treaty The formula used in the FST to create a reverse majority procedure undertook an expanded form (in regulations belonging to the so-called Six-Pack a simple formula was used: “the decision (…) is deemed to have been accepted by the Council if the Council does not reject” a recommendation submitted by the Commission by a given (qualified or simple) majority. See Article 4.2, Article 5.2 and Article 6.2 of Regulation of the European Parliament and of the Council No. 1173/2011/EU; Article 6.2 of Regulation of the Council No. 1466/97/EC (as amended by Regulation of the European Parliament and of the Council No. 1175/2011/EU); Article 10.4 of Regulation of the European Parliament and of the Council No. 1176/2011/EU; Article 3.3 of Regulation of the European Parliament and of the Council No. 1174/2011/EU). First, the Contracting Parties commit to support the proposals or recommendations submitted by the European Commission (while fully respecting the procedural requirements of the European 534 | Union Treaties) where “it considers that a Member State of the European Union whose currency is the euro is in breach of the deficit criterion in the framework of an excessive deficit procedure”, then, as an exception from the obligation to support the proposals submitted by the European Commission, a relevant reverse majority clause is applied. “This obligation shall not apply where it is established among the Contracting Parties whose currency is the euro that a qualified majority of them, calculated by analogy with the relevant provisions of the European Union Treaties without taking into account the position of the Contracting Party concerned, is opposed to the decision proposed or recommended” (Article 7). Hence, the majority which pursuant to EU founding treaties is required to approve of a viewpoint recommended by the Commission (that is a positive majority in a voting in favour of a particular motion) in the solution in question is necessary to reject a viewpoint recommended by the Commission (it would be a majority against a particular motion). In this way a majority necessary to block a motion of the Commission has to be much higher (in comparison with solutions set out in the Treaty on Functioning of the European Union). The introduction of a reverse majority procedure in the Treaty means in fact a necessity to have a negative voting (to reject it) in order to block a proposal submitted by the Commission if, of course, a motion to have such a voting is put forward at all. Therefore, it seems that the “obligation to support” may be interpreted as making a specific presumption to accept the above-mentioned proposals submitted by the Commission or even as “an obligation to vote in line with the viewpoint of the Commission”. Such a solution is referred to as a “specific semi-automatism” (Kranz, Wyrozumska, 2012., p. 34) or “quasi-automatism” (the stance of the government in the justification of the ratification bill) in accepting proposals submitted by the Commission. It is highlighted in reference books that the said rule of reverse majority (together with an obligation to support) means a reinterpretation (modification) of Article 126 of the TFEU (Mik, 2012, p. 95) and the expansion of competence of the Commission (Barcz, 2011, p. 6-7) which, in case of an extreme interpretation, may led to the transfer of competence of state authorities to the Commission to assess without any assistance a financial situation of another country. Consequently, the acceptance of provisions of the FST by the Republic of Poland narrows the possibility to take decisions in the EU institutions in line with an independent assessment of a financial condition of another country – a Member State of the European Union bound by the Treaty. What follows then is the limitation of independence to manage political policies by the executive part of the government. Even more profound constitutional consequences are brought by the provisions of the FST concerning the so-called correction mechanism and budgetary and economic partnership programme. The correction mechanism which the Contracting Parties undertake to put in place in their national law shall be “triggered automatically” in the event of significant observed deviations from the medium-term objective or the adjustment path towards it (Article 3.1.e). The said mechanism generates an “obligation to undertake a corrective action within a given time-frame”. This mechanism shall be put in place “at national level on the basis of common principles to be proposed by the European Commission” which will concern “in particular the nature, the size and the timeframe of the corrective action to be undertaken (…) and the role and independence of the institutions responsible at national level for monitoring the observance of the rules” set out by the Treaty and concerning public finance discipline. However, this “mechanism shall fully respect the prerogatives of national Parliaments” (Article 3.2). An obligation to put in place a “budgetary and economic partnership programme” is an outcome of a particular country being subject to an “excessive deficit procedure”. This programme shall include a detailed description of the structural reform which must be introduced and imple- | 535 mented in order to ensure an effective and durable correction of their excessive deficits. The content and format of these programmes shall be defined in European Union law. Their submission to the European Commission and the Council for endorsement and their monitoring will “take place within the context of the existing surveillance procedures of the Stability and Growth Pact”. The implementation of the programme, and the yearly budgetary plans consistent with it, will be monitored by the Council of the European Union and by the European Commission (Article 5). Once the above-mentioned solutions become effective, a constitutionally defined scope of budgetary competence of Polish authorities will change. Pursuant to the Constitution the right to define the amount of deficit in every budget act belongs exclusively to the Council of Ministers (Article 220), whereas the Sejm is the only body to decide on the principles and procedure of contracting loans by the State and undertake any corrective measures concerning public finances (Article 216.4 and 5). This aspect of constitutional principles of managing public finances has been already discussed by the Constitutional Tribunal which emphasised appropriately in one of the judgements that “constitutional financial restrictions expressed in particular in Article 216.5 and Article 220, indicating convincingly that a value particularly protected by the Constitution is not only balanced public finances, but also political sovereignty of a legislature and the government to determine budgetary expenditures. A possibility to make political decisions concerning hierarchy and amount of these expenditures is an inalienable right of these authorities (underlined M.D)”(The judgement of 26 November 2001, K. 2/00 paragraph 254). 5. Summary Upon the adoption of the FST it is the EU authorities that will determine corrective measures in a situation when government debt becomes excessive. The authorisation of the Commission to define rules on which the correction mechanism is founded incorporated into the Polish legal system (including “if possible” normative acts “of constitutional rank”) means in reality that every change of these rules will require a change in the Polish legal system (including the Constitution if these rules have been incorporated into it). This unequivocally underlines a domineering character of the Commission’s rights. In this way public authorities (the parliament and the government) are reduced to play an executive role as they are not the authorities which will take strategic decisions concerning the structure of public finances in case of a crisis. Therefore, their role will be to effectively implement solutions prepared by relevant EU authorities. In the light of all the provisions of the FST the clause according to which the correction mechanism shall not breach the rights of national parliaments shall be understood as guaranteeing the parliament a formal right to enact corrective measures in line with principles defined by the Commission and a detailed description of the structural reforms included in a budgetary and economic partnership programme. Therefore, the ratification of the FST leads to a chance of a constitutionally defined role of the government and the parliament within the field of public finances. Such a change is undoubtedly of constitutional character. It is enough to mention that modern parliamentarism originated from disputes not only over public levies, but also over competence to define purposes these public means have to serve (“No taxation without representation” said a slogan during the American War of Independence). Moreover, the fact an integration centre to decide about the scope and the rate of integration is created, to which the FST could contribute, is not meaningless for the political system of the Republic of Poland, not to mention the possibility to establish the economic government – the issue mentioned by the government while justifying the ratification bill. In brief, the FST brings about a significant change in the political system of the country, therefore the question of constitutionality of such a change is not out of place. There seem to appear two more detailed issues here: a) constitutionality of a type, range and depth of changes introduced by the FST within the field of responsibility for public finances, b) constitutionality of the adopted 536 | mode of ratification, which requires deciding if solutions set out in the Treaty result in transferring the competence of state authorities to EU authorities, and in case of a positive answer, it would mean that the FST has been ratified unconstitutionally (pursuant to Article 89, not Article 90 of the Constitution of the Republic of Poland). These two legal issues will be the subject of the decision of the Constitutional Tribunal upon the request of a group of deputies (the request filed with the CT of 21 March 2013, Case no. K 11/13) and senators (the request filed with the CT of 28 March 2013, Case no. K 12/13). It is worth mentioning that the FST has been examined by the Federal Constitutional Court which, with reference to the institution of the correction mechanism provided for in the Treaty, stated that the provision which appoints it may be “interpreted exclusively in such a way that it is limited to institutional provisions and does not grant the European Union a right to determine specific substantive requirements to form government budgets”. In the conclusion the FCC states that the FST does not give EU authorities any rights which concerns the responsibility of the German Bundestag for issues related to budgetary policy (BverfG, 2 BvR 1390/12, paragraph 314, 315). Nonetheless, the stance of the FCC requires a separate analysis and taking into consideration normative solutions of the Federal Basic Law, which exceeds the framework of this work. It may only be noted that the judgement of the FCC may not be transferred to the Polish laws (due to the differences in regulating issues in the Constitution of the Republic of Poland and the Federal Basic Law). Allegations raised in the request filed by the deputies (the senators’ request refers to the Senate’s mode of working on the ratification act in the first place) show a possible impact of the CT on the formation of the political system of the country. Even if not all of the deputies’ arguments are confirmed in the judgement of the CT, the theses it contains outline possible constitutional consequences of the ratification of the Fiscal Compact. Hence, the request seems to be worth analysing from this perspective. As to the correction mechanism the requesting party indicated several consequences of adopting the FST, some of which may be of constitutional nature: a) the rule of limit set out in Article 3.1 of the FST “is not identical with a rule in force set out in Article 216.5 of the Constitution of the Republic of Poland” (a national public debt shall not exceed three-fifths of the value of the annual gross domestic product), an automatically triggered correction mechanism (Article 3.2.e) in the event of a breach of the rule of limit set out in the treaty “will result in the application of a new rule and the omission of the constitutional one” (Request of a group of deputies of 21 March 2013 filed with the CT, p. 19); b) due to the implementation of this mechanism “competence of the Sejm to supervise budgetary cases will be reduced”, since “constitutional Sejm running control will be replaced by an external treaty and act automatic control on which the Sejm has no influence (p. 10-11); c) common principles (presented by the nonlegitimised European Commission) on which the correction mechanism incorporated into Polish laws is founded “will undoubtedly limit a right of the democratically legitimised Sejm to constitute laws independently”. Hence, it is an “interference into a subjective legislative autonomy of the Sejm”. Common principles will not be negotiated with an external partner, which would range within the sovereign’s rights, but they will be created by an international organisation which acts through its institution (the European Commission) independently. The Sejm will have no influence on their content (p. 12); d) incorporation of the correction mechanism, on the basis of common principles, into the national law, „if possible in the form of constitutional norms” (Article 3.1) “means that only if there is no legal possibility to have it authorised in the Constitution, it should be done in any other permanent way which can guarantee it is fully respected. Without doubt, it does not mean a possibility of the Contracting Party to choose independently between a constitutional level and another formula, e.g. that of an act”. Therefore, “the lack of possibility refers to the situation of a barrier resulting from a constitutional and legal system of the country, not a simple political issue, e.g. a lack of a required majority in the Sejm to carry out such a change”. This situation “binds the Sejm limiting | 537 its independence concerning the voting over the change of the Constitution” (p. 20). A budgetary and economic partnership programme (Article 5 of the FST), in turn, means according to the requesting party, „including in the proceedings concerning budgetary issues of the country determined by constitutional norms, in particular Article 219 of the Constitution of the Republic of Poland and Article 21 of the Constitution of the Republic of Poland, two new external entities”, namely the Council of the European Union and the European Commission (p.12). Whereas the used wording: “the content and format of these programmes shall be defined in European Union law” does not fulfil the principle of the specificity of legal provisions. However, from the constitutional perspective the most important is the fact that Poland, as a country with a derogation, has been “excluded from certain areas of the functioning of the European Union, including constituting fiscal and budgetary laws whose the above-mentioned formula will concern”. As a result, “Poland will be bound by norms which originated outside its rights and without its participation in the work of the EU institutions”, which are allowed to interfere with the citizens’ rights and duties. To the extent which today is unknown” (p. 21-22. „The commitment to support the proposals and recommendations submitted by the European Commission” in the Council included in Article 7 of the FST is a new solution since “now representatives of Member States in the Council have executed their rights without restraint”. A new procedure limits their right to an independent decision not resulting from a foreign policy of the country creating “automatism of supporting the proposal of the European Commission”. In this way it expands the power of the EU institutions, which leads to the breach of a right of the Council of Ministers in the first place (Article 146 of the Constitution of the Republic of Poland) and limits rights of both chambers of the Polish Parliament to influence the content of European Union law (p. 14-15). The requesting party also underlines that new rights of the Court of Justice of the European Union defined in the FST (Article 8 of the FST) amount to endowing this EU institution with a right to control the execution of the obligations set out in the Treaty at national level while pursuant to the Constitution of the Republic of Poland the Constitutional Tribunal is the only entity authorised to conduct such control (p. 15). Control carried out by CJEU will be based on a new model, i.e. “common principles” established by the European Commission in the future. Moreover, the outcome of this control “will not be the very acknowledgement of an international tort”, yet it will encroach a national law. A national act will not be applied, the country will be forced to change it” (p.16). Therefore, the FST creates a new legal institution by establishing an independent norm which authorises CJEU to „act imperatively towards Poland in the field of control so far not possessed by this Court. They have been excluded by EU treaties” (p. 17-18). Last but not least, an obligation to make active use of legal means adopted pursuant to Article 136 of the TFEU which are reserved for the euro area (Article 10 of the FST) may, according to the requesting party, lead to “establishing additional criteria for budgetary procedure”, and by the time a derogation is abrogated, these measures “will be accepted by the Council of the EU by votes of the countries whose currency is the euro. Ipso facto Poland will even be deprived of a possibility to participate in voting” (p.24). On the other hand, the expression in the same article (Article 10 of the FST) of readiness to make active use of the mechanism of enhanced cooperation constitutes in this viewpoint „a declaration of consent to participate” in this mechanism, which violates the freedom to participate in enhanced cooperation provided for in the TEU. It constitutes “a resignation from the rights of a country to carry out an independent foreign policy (a possibility to reject the participation in enhanced cooperation) and their delegation to the Council” (p.18). Regardless of the decision of the CT, the above theses may be treated as a starting point to discuss constitutional changes brought about by the FST. Even if the CT disputes in detail the interpretations included in the above-mentioned request, they still show the trend in the inter- 538 | pretation of provisions of the FST and their likely impact on the political system of the Republic of Poland. In conclusion, one may risk stating that the Fiscal Compact introduces significant modifications in the political system of the Republic of Poland. It is the role of the CT to decide on their scope, and first of all, to what extent these constitutional changes resulting from the FST are within borders set out in the Constitution of the Republic of Poland. References Arent, E. ; (2013). Shorthand report of the 34th sitting of the Sejm of 19 February 2013, Barcz, J. (2011). W sprawie formuły prawnej wprowadzenia do prawa UE Europejskiego Mechanizmu Stabilizacyjnego, Europejski Przegląd Sądowy, no 1. Barcz, J. (2012). W sprawie procedury ratyfikacji Traktatu o stabilności, koordynacji i zarządzaniu w Unii Gospodarczej i Walutowej, Warszawa (opinion not published). Biernat, S. (2003). Źródła prawa UE, [w:] Prawo UE. Zagadnienia systemowe, red. J. Barcz, Warszawa. Borowski M. (2013). Shorthand report of the 27th sitting of the Senate of the Republic of Poland of the 8th term of office of 21 February 2013; Duda, A. (2013). Shorthand report of the 34th sitting of the Sejm of 19 February 2013, Górski, A. (2013). Shorthand report of the 34th sitting of the Sejm of 19 February 2013, Iwiński, T. (2013). Shorthand report of the 34th sitting of the Sejm of 19 February 2013, Jabłoński, M. (2012). Opinia na temat zgodności Traktatu o stabilności, koordynacji i zarządzaniu w Unii Gospodarczej i Walutowej z prawem unii Europejskiej oraz trybu jego ratyfikacji na podstawie Konstytucji RP z 2 kwietnia 1997, Zeszyty Prawnicze, no 1. Kranz J. Wyrozumska A. (2012). Powierzenie Unii Europejskiej niektórych kompetencji a traktat fiskalny, Państwo i Prawo, no. 7. Kuźmiuk, Z. (2013). Shorthand report of the 34th sitting of the Sejm of 19 February 2013, Mik, C. (2012). Opinia w sprawie zgodności tzw. Paktu fiskalnego z prawem Unii Europejskiej oraz trybu jego ratyfikacji, Zeszyty Prawnicze, no 1. Pawłowicz, K. (2013). Shorthand report of the 34th sitting of the Sejm of 19 February 2013, Szpunar, M. (2013). Shorthand report of the 34th sitting of the Sejm of 19 February 2013, Szczerski, K. (2013). Shorthand report of the 34th sitting of the Sejm of 19 February 2013, Szulc, J. (2013). Shorthand report of the 34th sitting of the Sejm of 19 February 2013, Wernik, A. (2012). Opinia na temat Traktatu o stabilności, koordynacji i zarządzaniu w Unii Gospodarczej i Walutowej, Zeszyty Prawnicze, no 1. Normative acts /Law Regulation (EC) No 1467/97 of 7 July 1997 on speeding up and clarifying the implementation of the excessive deficit procedure as amended by the Council Regulation (EU) No. 1177/2011 of 8 November 2011. Regulation of the Council No. 1466/97 as amended by Regulation of the European Parliament and of the Council No. 1175/2011/EU), Regulation of the European Parliament and of the Council No. 1173/2011/EU; Article 6.2 of Regulation of the Council No. 1466/97/EC (as amended by Regulation of the European Parliament and of the Council No. 1175/2011/EU); | 539 Regulation of the European Parliament and of the Council No. 1176/2011/EU; Regulation of the European Parliament and of the Council No. 1174/2011/EU). Judgements/Decisions The judgement of 26 November 2001, K. 2/00. OTK ZU no. 8/2001. The judgement of 12.09.2012 r. BverfG, 2 BvR 1390/12, http://www.bverfg.de/entscheidungen/ rs20120912_2bvr139012.html). Documents Sejm paper no. 961. Shorthand report of the 34th sitting of the Sejm of 19 February 2013, p. 4-109. Shorthand report of the 27th sitting of the Senate of the Republic of Poland of the 8th term of office of 21 February 2013 ; http://www.senat.gov.pl/prace/senat/posiedzenia/przebieg,39,1. html The request filed with the CT of 21 March 2013, Case no. K 11/13; http://62.111.213.54/sprawa/ sprawa_pobierz_plik62.asp?plik=F2011466284/K_11_13_wns_2013_03_21_ADO.pdf&syg=K%2011/13 The request filed with the CT of 28 March 2013, Case no. K 12/13; http://62.111.213.54/sprawa/sprawa_pobierz_plik62.asp?plik=F428203884/K_12_13_wns_2013_03_28_ADO.pdf&syg=K%2012/13 (Endnotes) 1 The first time I have described problems with the ratification of Fiscal Stability Treaty in the article „Tryb ratyfikacji Traktatu fiskalnego przez Rzeczypospolitą Polską” published in the journal „Państwo i Prawo” 2013, no. 6. 540 | Maciej Rzewuski University of Warmia and Mazury in Olsztyn [email protected] Absolute Legacy of Copyrights Abstract Absolute legacy, an important problem in jurisprudence and legal practice, is discussed. The institution of absolute legacy has been introduced to Polish inheritance law relatively recently. In this paper, the application of the above legal mechanism is analyzed in the context of copyright law. The admissibility of absolute legacy in relation to copyrights, the types of heritable property in absolute legacy and the content of testamentary dispositions in notarized deeds establishing absolute legacy are examined. The discussed institution is not analyzed comprehensively due to space constraints. This paper focuses on the key problems relating to testamentary dispositions made by a testator who is a copyrights holder. Keywords: absolute legacy, copyrights, testator, inheritance, author. 1. Introduction. The institution of absolute legacy has been introduced to Polish inheritance law by the Act of 18 March 2011 amending the Civil Code and other legal acts (Journal of Laws No. 85, item 458), which came into force on 23 October 2011. In this paper, the application of the above legal mechanism is discussed in the context of copyright law. The analysis is preceded by an overview of the most important issues relating to Polish inheritance law. The aim of the amendments stipulated in the Act of 18 March 2011 was to introduce a number of regulations to the civil law enabling the testator to decide on the division of his estate post mortem (Niezbecka, 2011, point 1). Absolute legacy is a will drawn up in the form of a notarial deed, based on which a specified person acquires property or property rights belonging to the testator at the time succession proceedings are opened. The following arguments have been put forward by the legislator to justify the institution of absolute legacy: − the testator’s will has to be respected, − freedom of testation should be strengthened, − people should be encouraged to multiply their assets, and the fate of those assets will be decided by mortis causa deeds, − the continuity of operation of agricultural enterprises and farms should be ensured in the event of the testator’s death, − absolute legatees should be entitled to more extensive legal protection than particular legatees, − the testator should be provided with more extensive rights to decide on the division of his estate (Osajda, 2012, Zapis windykacyjny…, p. 69). Absolute legacy has several weaknesses. According to literary sources, it weakens the position of creditors, leads to problems in determining the nature of legacy (particular or absolute) in succession proceedings, and it creates an exception to the principle of universal succession (Witczak, 2011, p. 1081). The above weaknesses do not undermine the arguments justifying the introduction of the discussed legal mechanism. The institution of legatum per vindicationem ex- | 541 ists in many European legal systems, including in France (Art. 1014 of the French Civil Code), Italy (Art. 649 section 2 of the Italian Civil Code), Spain (Art. 882 of the Spanish Civil Code) and Portugal (Art. 2249 of the Portuguese Civil Code; see also: Górecki, 2007, p. 130-). 2. Legal mechanism of absolute legacy. Absolute legacy is legacy that is vested immediately upon the testator’s death. This institution enables the testator to decide on the division of his estate, provided that the estate can be bequeathed in absolute legacy, that the estate constituted the testator’s property upon the opening of a succession and that the testator was not under obligation to dispose of his estate on behalf of a third party. The institution of legatum per vindicationem creates an exception in Polish inheritance law which is based on the principle of universal succession, and it transfers property rights and other rights to the legatee as of the moment of the testator’s death (Osajda, 2012, Zapis windykacyjny…, p. 69). It constitutes yet another example of singular succession in inheritance law (other examples of singular succession in inheritance law are addressed by the following legal provisions: Art. 301 §2 of the Civil Code, Art. 691 §1 and 2 of the Civil Code, Art. 831 §3 of the Civil Code, Art. 631 § 2 of the Labor Code Act of 26 June 1974 (consolidated text: Journal of Laws, 1998, No. 21, item 94, as amended), Art. 57 section 1 point 2 of the Banking Act of 29 August 1997 (consolidated text: Journal of Laws, 2002, No. 72, item 665, as amended), Art. 14 section 2 of the Act of 5 November 2009 on Savings and Credit Cooperatives (consolidated text: Journal of Laws, 2012, item 855, as amended), Art. 131 section 1 of the Act of 28 August 1997 on the Organization and Operations of Pension Funds (consolidated text: Journal of Laws, 2010, No. 34, item 189, as amended), Art. 16 §3 of the Act of 16 September 1982 on Cooperatives (consolidated text: Journal of Laws, 2003, No. 188, item 1848, as amended), Art. 8 of the Act of 23 February 1991 invalidating court decisions discriminating against persons who were politically repressed for their active involvement in the struggle for Polish independence (Journal of Laws no. 34, item 149, as amended)). According to some authors, the legal status of an absolute legatee is much more similar to that of an heir who is assigned specific items of the testator’s estate (ex re certa) than that of a particular legatee. The above view is supported by the following arguments: − specific items of the estate or property rights are transferred immediately upon the opening of a succession, − the establishment of absolute legacy does not give rise to consequences of obligatory nature, − absolute legacy cannot be established with a stipulation of special conditions or periods of time that apply to it, − the rights of an absolute legatee are validated by a court decision or a notarized certificate of inheritance, − an absolute legatee is regarded as an heir pursuant to the provisions of several legal acts, including the Act of 24 March 1920 on the Purchase of Real Estate by Foreigners (consolidated text: Journal of Laws, 2004, No. 167, item 1758, as amended ), − an absolute legatee is responsible for inherited debts (Osajda, 2012, Zapis windykacyjny…, p. 70. Cf. Księżak, 2011, p. 1055-). Although absolute legacy and heirship generate similar legal effects, the two institutions have separate identity. An heir is a testator’s universal legal successor to whom the rights and obligations of the deceased are transferred in full, whereas an absolute legatee is a singular successor to whom only the deceased’s rights are transferred. Differences are also observed in legal grounds for the heirs’ and absolute legatees’ responsibility for inherited debts (Niezbecka, 2011, point 5). 542 | The above supports the viewpoint that absolute legacy should be regarded as an alternative to inheritance (Niezbecka, 2011, point 4). The institution of absolute legacy will not be analyzed comprehensively in this paper due to space constraints. Special emphasis will be placed on a very important problem in legal practice, namely the relationship between the provisions of Art. 9811 and Art. 961 of the Polish Civil Code. The main question that arises is whether the testator’s ability to bequeath his estate by way of absolute legacy affects the applicability of Art. 981 of the Civil Code. Pursuant to the provisions of the latter, if a testator bequeaths to an identified person specific property items that nearly exhaust his estate, that person, in the event of doubt, is not be regarded as a legatee but as an heir named to succeed the entire estate (The English translation of the Polish Civil Code is based on: The Polish Civil Code, 2nd edition, translated by E. Kucharska, C.H. Beck, Warsaw 2012). If such a testamentary disposition is made in favor of several persons, those persons, in the event of doubt, are regarded as heirs named to succeed the entire estate in fractional parts corresponding to the proportional value of property items bequeathed to them. It could seem that the provisions of Art. 961 of the Civil Code could apply to absolute legacy (Skowrońska-Bocian, 2011, point 5. A similar view was expressed by W. Żukowski who argued that the provisions of Art. 961 of the Civil Code are defective in that they should not apply to absolute legacy. Żukowski, 2010, p. 1043). The above view is supported by the wording of the cited article which uses the general term of “legatee” (Osajda, 2012, Zapis windykacyjny…, p. 70). Since the legislator did not make a clear distinction between heirship and absolute legacy, such a distinction may not be established independently in view of the lege non distinquente rule. Art. 9815 of the Civil Code clearly stipulates that the provisions regulating the process of naming an heir, accepting and rejecting succession, determining a successor’s capacity to inherit and unworthiness apply accordingly to absolute legacy. This view corresponds to an earlier observation that the legal status of an absolute legatee is much more similar to that of an heir than that of a particular legatee (Witczak, 2011, p. 1081). According to some authors, caution should be exercised in applying the provisions of Art. 961 of the Civil Code to absolute legacy (Pazdan, 2011, Art. 9815, Nb 2). Other authors completely rule out this possibility on the following grounds: − a notarized testament, which is required for establishing absolute legacy, eliminates any doubt regarding a testator’s disposition of his estate; − if a bequest is established by way of absolute legacy, the bequeathed items are not included in heritable estate, and Art. 961 of the Civil Code makes a sole reference to property items that “nearly exhaust the estate” (Mleko, 2011, p. 108. The application of Art. 961 of the Civil Code to absolute legacy was also critized by: J. Turłukowski. See: Turłukowski, 2011, pp. 23-24 and Niezbecka, 2011, point 7). The above arguments support the conditional application of the provisions of Art. 961 of the Civil Code to absolute legacy, but only if specific testamentary dispositions raise doubt. This view is not substantiated by the very nature of Art. 961 which aims to extend the scope of protection offered to particular legatees and creditors, whereas the legal status of absolute legatees does not require such protection (Osajda, 2012, Zapis windykacyjny…, p. 71). Nevertheless, the testator’s intentions could be difficult to interpret in practice. Obviously, such situations are mere exceptions. Absolute legacy has to be notarized, and the testator’s intentions are clearly stipulated in the notarial deed (Księżak, 2011, p. 1071). According to some authors, a notarized legacy eliminates any doubt regarding the testator’s will because his testamentary dispositions are formulated unambiguously in the deed (Niezbecka, 2011, point 7). Public officers are not infallible, however, and the risk, however small, that the testator’s will is misinterpreted by a notary always exists. The above considerations support the viewpoint that Art. 961 of the Civil Code may be ap- | 543 plied to absolute legacy in exceptional cases. Pursuant to the provisions of Art. 9811 §2 of the Civil Code, the following types of property may be inherited under absolute legacy: 1) identifiable property items, 2) transferable property rights, 3) agricultural enterprise or farm, 4) usufruct or easement created on behalf of the legatee (For more information on the types of property heritable under absolute legacy, see: Osajda, 2012, Przedmiot zapisu windykacyjnego…, pp. 127-131). The above article contains a full catalogue of heritable estate. The testator can freely dispose of property rights and other rights not listed in Art. 9811 as part of inter vivos or mortis causa transfers (Niezbecka, 2011, point 10). The statutory (“positive”) definition of property that may be inherited under absolute legacy has received certain criticism (See also: Skowrońska-Bocian, 2011, Art. 9811, point 7. Cf. Księżak, 2011, p. 1065). Heritable property is transferred ex lege to the legatee as of the moment a succession is opened, therefore, it should be clearly and unambiguously described in a notarized deed (Niezbecka, 2011, point 10). A bequest of property items other than those stipulated in Art. 9811 § 2 of the Civil Code will not be legally valid. Testamentary dispositions should be analyzed individually to determine whether the resulting legal consequences are reserved for particular legacy. Such assessments require an in-depth analysis of the testament, circumstances of testation and the application of the favor testamenti rule (Art. 948 of the Civil Code, Niezbecka, 2011, point 11). Transferable property rights may be bequeathed by absolute legacy. This issue raises numerous doubts in practice (Osajda, 2013, p. 574). Pursuant to the provisions of Art. 9811 § 2 of the Civil Code, for property rights to be heritable, they have to exist as independently tradable rights (Osajda, Przedmiot zapisu windykacyjnego…, p. 128). The definition of transferable property in literature is extensive, and it includes expectancy (Cf. Niezbecka, 2011, point 13 in fine; Zakrzewski, 2012, p. 11; Księżak, 2012, p. 109) and findings of fact which reveal rights with pecuniary value (Stempniak, 2011, p. 631). Absolute legacy is effective mortis causa, and it seems that the list of heritable property items should be expanded to include property and rights that could materialize in the future. The above view is justified by the purpose of absolute legacy which was introduced to strengthen and expand the scope of the principle of free testation (Osajda, 2012, Przedmiot zapisu windykacyjnego…, p. 128). 3. Inheritance of copyrights. When the instrument of absolute legacy is applied to copyrights, it should be noted that heritable property rights include rights to intellectual property, in particular the author’s proprietary rights (Art. 41 section 1 of the Copyright Act – Act of 4 February 1994 on Copyrights and Related Rights (consolidated text: Journal of Laws, 2006, No. 90, item 631, as amended), patent rights to inventions, patents (Art. 67 of the Industrial Property Act – Industrial Property Act of 30 June 2000 (consolidated text: Journal of Laws, 2003, No. 119, item 1117, as amended), utility models, registered industrial models and designs (Art. 12 section 1 of the Industrial Property Act), registered trademarks (Art. 162 section 1 of the Industrial Property Act) and registered topography rights (Art. 67 section 1 in relation to Art. 221 of the Industrial Property Act; Piątowski, Witczak, Kawałko, 2009, p. 103; Kopff, 1973, p. 169-; Grzybowski, Kopff, 1978, p. 246-). The author’s proprietary rights expire 70 years after the author’s death (Art. 36 of the Copyright Act; Błeszyński, 1977, p. 61-; Błeszyński, Staszków, 1983, p. 174-). The following copyrights are 544 | heritable: − the right to use and dispose of the work in all fields of exploitation, − the right to remuneration in virtue of the work, − the rights and obligations incurred under agreements concluded by the author and claims raised in virtue of copyrights violations, − compensation claims for copyright violations which were instituted by the author (Piątowski, Witczak, Kawałko, 2009, p. 103). The right to remuneration stipulated in Art. 18 section 3 of the Copyright Act is also heritable. Pursuant to the provisions of Art. 41 section 1 of the Copyright Act, unless the Act states otherwise, the author’s proprietary rights may be transferred to a third party by way of inheritance or by contract, and the person acquiring the said rights may transfer them to another party, unless the contract provides otherwise. The transferability of the author’s proprietary rights was established already in the Polish Copyright Act of 1952 (Art. 30 §1). The author’s proprietary rights may be transferred and disposed of inter vivos and mortis causa (Sieńczyło-Chlabicz, Banasiuk, Zaręba, Zawadzka, 2009, p. 105; Załucki, 2008, p. 129). They may be effectively transferred by statutory and testamentary inheritance as well as by particular legacy (See also: Ślęzak, 2007, p. 100-). In line with the principle of transferability, the author’s proprietary rights may not be regarded as rights that are strictly and personally related the author because the latter, under Art. 922 §2 of the Civil Code, are not heritable. The succession of the author’s proprietary rights is governed by the provisions of Book Four of the Civil Code (Art. 922-; Barta, Markiewicz, Czajkowska-Dąbrowska, Ćwiąkalski, Felchner, Traple, point 2). The question that arises is whether the author’s proprietary rights may be bequeathed by absolute legacy. The answer to the above question seems to be obvious when the provisions of Art. 9811 § 2 of the Civil Code, which state that transferable property rights may be inherited by absolute legatees, are interpreted in view of Art. 41 section 1 of the Copyright Act, which accentuates the transferable nature of the author’s proprietary rights. The above rights may be inherited by both particular and absolute legatees. Some authors have postulated that the author’s proprietary rights to future works are also transferable (Barta, Markiewicz, Czajkowska-Dąbrowska, Ćwiąkalski, Felchner, Traple, point 1). This is an accepted view in jurisprudence. In a decision of 4 April 2001 (I ACa 72/01), the Appellate Court in Poznań ruled that pursuant to the provisions of Art. 155 §2 and Art. 555 of the Civil Code, the Act of 4 February 1994 on Copyrights and Related Rights does not preclude the application of proprietary rights to works that will be created in the future. Contracts under which the author’s proprietary rights can be applied to future works are admissible, provided that they do not cover the entire body of the author’s future work (Lex No. 50088). If proprietary rights to future works (estate in expectancy) can be bequeathed by absolute legacy, an absolute legatee should be able to effectively inherit proprietary rights to future works, provided that the estate in expectancy had existed when a succession was opened. Art. 41 section 3 of the Copyright Act states that contractual provisions concerning all of the author’s future works or all of the author’s future works of a specified type are void. The above provision relates to legal transactions inter vivos, but the formulated principle should also apply to transactions mortis causa, including absolute legacy. For this reason, a bequest in absolute legacy which covers all of the author’s future works is inadmissible. As a general rule, an absolute legacy is established regardless of whether a given right is indicated in testamentary dispositions in whole or in part. The provisions of the inheritance law do not prohibit the bequest of a partial right, and no such bans are introduced by legal provisions | 545 regulating joint and several liability and divisible and indivisible bequests. Some authors have rightly noted that absolute legatees should be able to inherit estate in fractional parts, including partial interests in real property or identified movable property. In such cases, property rights will be shared in fractional parts by absolute legatees and heirs as of the moment a succession is opened (Niezbecka, 2011, point 11). Pursuant to the provisions of Art. 42 of the Copyright Act, if the proprietary rights of one of the co-authors are transferred to the State Treasury as the statutory heir, this share of rights will be transferred to the remaining surviving co-authors or their legal successors proportionally to their shares. The above provisions also apply in instances where the testator’s estate is transferred to municipal authorities competent for the testator’s last place of residence (Piątowski, Witczak, Kawałko, 2009, p. 104.). The provisions of Art. 42 of the Copyright Act clearly depart from those of Art. 935 of the Civil Code which state that if the deceased leaves no spouse, spouse’s relatives and spouse’s children who are his statutory heirs, his estate is transferred to municipal authorities competent for the testator’s last place of residence. If the testator’s last place of residence in the Republic of Poland cannot be determined or if the testator resided abroad directly prior to his death, his estate is transferred to the State Treasury as the statutory heir. If a co-author’s share of proprietary rights were to be transferred to municipal authorities competent for the testator’s last place of residence or to the State Treasury, this share of rights will be transferred to the remaining surviving co-authors or their legal successors proportionally to their shares (Cf. Barta, Markiewicz, Czajkowska-Dąbrowska, Ćwiąkalski, Felchner, Traple, point 2). It should be noted that the provisions of Art. 42 of the Copyright Act apply only to statutory inheritance and not absolute legacy which is characteristic of testamentary inheritance. In transactions inter vivos, a contract transferring the author’s proprietary rights has to be concluded in writing on pain of invalidity. The subject matter of the contract and the content of the transferred rights (fields of exploitation) have to be precisely stipulated in the contract (Michniewicz, 2010, p. 35). The author’s proprietary rights are transferred in accordance with the principle of nemo plus iuris ad alium transfere potest quam ipse habet (Barta, Markiewicz, Czajkowska-Dąbrowska, Ćwiąkalski, Felchner, Traple, point 6. Cf. Decision of the Supreme Court of 27 May 1926, I C 712/25, Lex 510903). Pursuant to the provisions of Art. 41 section 2 of the Copyright Act, the contract transferring the author’s proprietary rights or the rights to use the author’s work, referred as the “license”, covers the fields of exploitation which are specified expressly in the contract. The fields of exploitation have to be precisely indicated in the contract. The above interpretation was upheld by a decision of the Supreme Court of 23 September 2004 (III CK 400/03) stating that pursuant to the provisions of Art. 41 section 2 in relation to Art. 50 and Art. 67 §1 of the Act of 4 February 1994 on Copyrights and Related Rights, a contract transferring the author’s proprietary rights and a license contract cover the fields of exploitation specified expressly therein. In the light of Art. 50 of the Copyright Act, the above implies that the determination of the respective fields of exploitation constitutes the essentialia negotii of such contracts (Lex No. 174201). In a decision of 14 September 2005 (III CK 124/05), the Supreme Court ruled that Art. 41 section 2 of the Act of 4 February 1994 on Copyrights and Related Rights does not preclude the use of interpretational rules set forth in Art. 65 of the Civil Code in interpreting the fields of exploitation covered by contracts that transfer the author’s proprietary rights and by license contracts (Lex No. 164184). 546 | 4. Summary The above analysis suggests that provisions similar to those regulating contracts that transfer the author’s proprietary rights should apply to absolute legacy of the said rights. The object of testamentary disposition should be clearly identified by indicating the fields of exploitation that are bequeathed to an absolute legatee as of the moment a succession is opened. It should also be noted that the catalogue of the fields of exploitation prescribed by Art. 50 of the Copyright Act is not finite. The legislator has allowed for the possibility that other fields of exploitation and proprietary rights attached thereto may exist (Barta, Markiewicz, Czajkowska-Dąbrowska, Ćwiąkalski, Felchner, Traple, point 9). The claim that absolute legacy covers all fields of exploitation seems to be unjustified (Cf. Michniewicz, 2010, p. 35). Fields of exploitation which are unknown upon the opening of a succession should not be taken into account. Absolute legacy is established in the form of a notarial deed, and the objects of testamentary dispositions should be identifiable beyond doubt. A notary public has to exercise due diligence to ensure the accuracy of absolute legacy deeds, including testaments under which a copyright holder disposes of the whole or of part of his property upon his death. References Barta J., Markiewicz R., Czajkowska-Dąbrowska M., Ćwiąkalski Z., Felchner K., Traple E. (2011), Komentarz do art. 41 ustawy o prawie autorskim i prawach pokrewnych, [in:] Prawo autorskie i prawa pokrewne. Komentarz, Lex/el. Błeszyński J. (1977), Czas ochrony autorskich uprawnień majątkowych, „Państwo i Prawo” No. 2 Błeszyński J., Staszków M. (1983), Prawo autorskie i wynalazcze, Warszawa Górecki J. (2007), Zapis windykacyjny – uwagi de lege ferenda, [in:] Rozprawy z prawa prywatnego, prawa o notariacie i prawa europejskiego. Księga Rejenta Romualda Sztyka, ed. E. Drozd, A. Oleszka, M. Pazdan, Kluczbork Kopff A. (1973), [in:] Grzybowski S., Kopff A., Sereda J., Zagadnienia prawa autorskiego, Warszawa Kopff A. (1978), [in:] Grzybowski S., Kopff A., Prawo wynalazcze, Warszawa Księżak P. (2011), Podstawowe problemy zapisu windykacyjnego, „Kwartalnik Prawa Prywatnego” No. 4 Księżak P. (2012), Zapis windykacyjny, Warszawa Michniewicz G. (2010), Ochrona własności intelektualnej, Warszawa Mleko Ł. (2011), O zapisie windykacyjnym i wprowadzeniu do systemu prawnego darowizny na wypadek śmierci, „Forum Prawnicze” No. 6-7 Niezbecka E. (2011), Komentarz do art. 9811 Kodeksu cywilnego, [in:] Kodeks cywilny. Komentarz, t. IV. Spadki, ed. A. Kidyba, Lex/el. Osajda K. (2012), Przedmiot zapisu windykacyjnego i odpowiedzialność zapisobierców windykacyjnych za długi spadkowe oraz zachowki, „Monitor Prawniczy” No. 3 Osajda K. (2012), Zapis windykacyjny – nowa instytucja polskiego prawa spadkowego, „Monitor Prawniczy” No. 2 Osajda K. (2013), [in:] Kodeks cywilny. Komentarz. Tom III. Spadki (art. 922-1088 KC), ed. Osajda K., Warszawa Pazdan M. (2011), [in:] Komentarz, 2011, t. II, ed. K. Pietrzykowski, Lex/el. Piątkowski J. S., Witczak H., Kawałko A. (2009), [in:] System Prawa Prywatnego. Prawo spadkowe., Tom 10, ed. Kordasiewicz B., Warszawa Sieńczyło-Chlabicz J., Banasiuk J., Zaręba J., Zawadzka Z. (2009), [in:] Prawo własności intelektualnej, ed. Sieńczyło-Chlabicz J., Warszawa | 547 Skowrońska-Bocian E. (2011), Komentarz. Spadki, Lex/el. Stempniak A. (2011), Nowelizacja kodeksu cywilnego w zakresie prawa spadkowego, „Monitor Prawniczy” No. 12 Ślęzak P. (2007), Dziedziczenie praw majątkowych w świetle polskiego prawa autorskiego, „Rejent” No. 1 Turłukowski J. (2011), Zapis windykacyjny, Warszawa Witczak H. (2011), Zmiany w prawie spadkowym – zapis windykacyjny, „Monitor Prawniczy” No. 20 Zakrzewski P. (2012), Zapis windykacyjny, „Przegląd Sądowy” No. 2 Załucki M. (2008), Prawo własności intelektualnej. Repetytorium, Warszawa Żukowski W. (2010), [in:] Projektowane wprowadzenie zapisu windykacyjnego do polskiego prawa spadkowego, „Kwartalnik Prawa Prywatnego” No. 4 548 | Przemysław Zarzycki [email protected] Łukasz Zarzycki [email protected] Kazimierz Pulaski University of Technology and Humanities in Radom. The Bronislaw Markiewicz State Higher School of Technology and Economics in Jaroslaw. The Transdisciplinary Approach to the Study of the Cross-border Organized Crime and Smuggled Goods along the EU Eastern Border with some Reference to Smuggler Talk Abstract Our transdisciplinary article aims at analyzing economic development and social safety of Polish Citizens along the EU Eastern Border. The Cross-border organized crime, especially smuggling goods, has been practicing since the development of statehood. It was caused by certain irregularities which we will discuss in our paper: these are especially economic, political, social and historical factors and the lack of government’s social strategies to help citizens. Poland’s EU accession has changed meaningfully the status of Poland as the borderland of European Union. Further, we will present regulations and requirements for the economic development across European Union, the social situation of citizens and the fight against the cross-border organized crime and smuggling. Common policy declarations aim at overcoming the problem of smuggling along the EU Eastern Border, developing financial and economic stability of EU countries and social security along with the general improvement of social life. In our paper we would like to introduce the transdisciplinary approach to the study of cross-border smuggling and cross the boundaries of two disciplines such as research on linguistics for political and law studies (see for example Collin 2012). When analyzing the problem of cross border smuggling, it is essential to examine smuggler’s language to understand what criminals talk about. Their language, often body language and colloquial speech, consists of some slang terms for name of goods they try to smuggle. This happens because they want to make their language unclear. Keywords: Cross-border Organized Crime, Smuggling Goods, The EU Eastern Border, Border Guard, Smuggler Talk. 1. Introduction The paper is based on the information received during interviews with smugglers who regularly cross the EU Eastern Border. In the research we would like to introduce the transdisciplinary approach to the study of cross-border smuggling and cross the boundaries of two disciplines such as research on linguistics for political or law studies. When analyzing the problem of cross-border smuggling, it is essential to examine smuggler’s language in order to understand what criminals talk about. Their language, often body language and colloquial speech, consists of some slang terms for the names of goods they try to smuggle. This happens because they wish to make their language unclear for custom officers. Such slang terms may include the popular word ‘barrel’ meaning a Mercedes-Benz car model W123 which is very often used for smuggling oil because of the large capacity of its fuel tank. | 549 The cross-border organized crime, especially smuggling goods, has been practicing since the development of statehood. The problem was caused by certain irregularities which will be examined in our paper. These could be some economic, political, social and historical factors and the lack of government’s social strategies to help citizens. Common policy declarations aim at overcoming the problem of smuggling along the EU Eastern Border developing financial and economic stability of EU countries and social security along with the general improvement of social life. However, for Polish people crossing the EU Eastern Border, it seems obvious it is a need to convince a custom officer by giving him a bribe to leave a citizen alone or rather let him or her cross the border. In the case of Russia or Ukraine it is possible to buy products such as alcohol or cigarettes at a good price (comparing to Polish process), therefore, it is the only way of earning money. For years generations of smugglers have created a lot of ways of hiding goods in passenger vehicle cars or lorries. 2. Several factors affecting cross-border smuggling. As a result of socio-political and economic factors which have been developing in Poland, Polish east border has changed its function putting emphasis on the economic problems caused by a lack of social security in the country and especially high unemployment rate. Unfortunately, these changes also affected the development of various pathologies. They include mainly border crime along with its variants. The idea of a border and contraband are closely link together. If there were no borders, there would be no contraband and vice versa. If there was no contraband, there would be no need to protect the border. However, as long as the borders exist we cannot eliminate the problem of smuggling as far as economic life of the country is concerned. The intensity of this problem may increase and decrease depending on the efficiency of customs officers work. It can take different forms but crossing restrictions will never be free of contraband. The state of affairs has made a number of conditions to influence directly or indirectly on the formation and development of such a dangerous phenomenon for national security. These conditions include historical, political, economic and social factors as shown in the chart 1: Chart 1. Factors affecting cross-border smuggling (Wysocki, 2003, pp. 22) Political factors Historical factors SMUGGLING PHENOMENON Economic factors Social factors 2.1. Historical factors. The borders of nations divided historical communities, their regions and ethnic groups but did not cause their disappearance. Common historical heritage is often accompanied by the similarity of geographical conditions, functional and structural similarities of the areas having a transborder corporation. When such a cooperation was banned, the communities of those countries were looking for various ways to establish cooperation between them. Although there were limits and prohibitions, it was related to the exchange of goods. One of the most effective ways to fight against certain prohibitions was smuggling (see Wysocki, 2003, pp.22, my own translation) 2.2. Political factors. Government Policy has shaped the importance of the state borders over the centuries, creating legal, economic and administrative barriers between countries, sometimes impassable for an 550 | ordinary citizen. The traditional concept of a border was associated with the end of the territory, the economic, cultural and political power and with the beginning of a “foreign” territory. This way of thinking had been functioning until the late 1980s. After 1989 people started to move away from the ‘traditional understanding’ of the idea of a border. They began to overcome borders and make the borders disappear in a cultural and economic sense. This evolution influenced the growth and spread of order crime, especially smuggling. 2.3.Economic factors. Economic development of a country is required for the improvement of citizens’ lives. Such a lack of development leads to poverty, hunger, chaos and even social conflicts. Poland had belonged to the Socialist Bloc Countries until 1989 where economy was centralized and there was a lack of outlet. The only outlet markets were countries which were part of the Socialist Bloc, especially the Soviet market. People were paid for their work no matter they did the job or not. There were taken out loans not only in the countries of Soviet Bloc but also in Western Europe countries so that the countries could function properly. It was showed a false economic growth of the country every year. Prices were rising and there was a shortage of goods in shops, the earnings decreased. Social discontent started growing. As a result of this situation, in the 1980s Poland has entered a state of economic recession. One way to obtain essential commodities was to buy them from smugglers in the border area. Between 1980 and 1990 Poland began to change into a system of market economy. The new economic situation of the country and its change caused worse life standards. Some of citizens in Poland decided to smuggle goods (Wierzbicki, Kobylasta, Pluciński 2005, pp. 109). 2.4.Social factors. Polish society is divided into rich and poor but there are more poor people. This is due to the economic situation. Economic scandals and corruption have a negative impact on society. A lot of people do not understand that it takes time to overcome economic collapse. This process is time-consuming (see Wysocki 2003, pp. 24). The common features of cross-border cooperation is a mutual desire to break down barriers and prejudices, as well as to initiate and strengthen formal and informal contacts particularly between local communities living near the border. Cross-border cooperation between border communities is often used by unscrupulous citizens on both sides of the border to engage in crime, smuggling, often on a large scale. The analysis of the factors and mechanisms that affect the spread of this type of crime leads to several conclusions:  The smuggling rate depends on the existing economic situation in the country, particularly on the economic situation i.e. a weak economy, high unemployment rate, high prices, high taxes, imposing further taxes on imports. The lack of specific ideas to improve economic growth has created a very good medium for the spread of crime and smuggling.  Poor development of local enterprises, especially in the border areas of the country, and too weak cross-border cooperation between neighboring countries has a substantial impact on the amount of crime and smuggling.  Socio-economic situation of the neighboring countries, particularly those created after the collapse of the former Soviet Union and the socialist bloc, has also great influence on the development of smuggling. Price levels for the same goods, which in Poland are subject to excise duty, low taxes bound within these countries and high unemployment are even encouraged to smuggle goods from these countries to Poland. Trade relations with these countries are experiencing a recession, which favors the development of crime and smuggling. | 551 Smuggling prevails mostly in the border areas in which there is high unemployment rate. The unemployed people are usually engaged in smuggling regardless of age. High corruption rate among the departments which are responsible for combating this type of crime and among high government officials accelerates smuggling. The use of newer and newer techniques, ways and methods by smugglers in smuggling goods across the border, makes it difficult to detect, which in turn makes it such a low detection rate. The most dangerous type of crime as long as borders are concerned is organized crime. This kind of smuggling is a significant thread to the State Treasury (Wierzbicki, Kobylasta, Pluciński 2005, pp. 109). The predominant type of border crime located on Polish state border is popularly known as crime smuggling contraband. For the last decade it has become a significant threat to the Polish border, economic development and economic state of the country and, consequently, to the citizens’ social safety. Cross-border crime is a very specific type of crime because it is aimed at fighting against a national administration. It causes a loss of property and is focused on the proliferation of objects or goods prohibited by law - drugs or illegal weapons. The fight against such crime requires a systemic approach and continuous training, identifying new areas used for criminal purposes, a comprehensive study of crime, the promotion of knowledge about the mechanisms used by criminals etc. (Wierzbicki, Kobylasta, Pluciński 2005, pp. 109). According to the classification used by the Polish Border Guard, smuggling is divided into socalled criminal crime, (which includes: drugs, weapons, explosives, radioactive substances, chemicals and automobiles), common smuggling which deals specifically with the articles of excise labels such as cigarettes, alcohol, food. The main direction of smuggling depends on the assortment of goods which is on sale on the domestic market and the markets of the Poland’s neighboring countries. Smugglers try to export luxury cars of all brands from Poland. Those cars had been stolen from the countries of Western Europe. Smuggled cars are mainly delivered to buyers coming from the former Soviet Union. Smuggled cars are almost new with a global reputation in the automotive industry. These are especially German cars. (see Wysocki, 2003, pp.17). Smugglers try to import illegally mainly alcohol and cigarettes to Poland which provides quick and easy income for people without work. It is often noted that smugglers attempt to smuggle large quantities of various types of drugs and narcotics. There have been attempts to smuggle large amounts of weapons and ammunition, explosives, grenades. A disturbing factor in smuggling activity is importing or transiting through the Polish border, particularly the border with Russia, waste and harmful chemicals and radioactive materials as well. The ingenuity of criminals in ways of hiding smuggled goods from the officers of the Border Guard and Customs Officers is more and more surprising, for example: to hide smuggled goods they use places in cars that are not intended for smuggling such as doors, wheel arches, chassis, wheels, bumpers, seats, coolers and even batteries. The entire car body and chassis are used. As far as trains are concerned, smugglers use roof boxes, seats, wash basins, toilets and they attach goods to the wagons. In freight trains, smugglers hide illegal products in coal, fertilizers, inside the tanks or special containers produced for this purpose. Ships provide ideal opportunities for concealment of smuggled goods, but it is difficult with his reception at the destination airport (Kożuchowska, 2000, pp. 364). Goods are rarely smuggled by air since it is difficult to hide goods in planes. However, there have been attempts to smuggle such items as narcotics and psychotropic drugs in this way (Kożuchowska, 2000, pp. 365).  552 | On one hand, Smuggling occurs mainly at the border crossings, not through the “green border”. Smuggling is a very dangerous phenomenon and it endangers some segments of the national economy. On the other hand, it generates constant income and huge profits for people living in border towns and practicing these activities on a large scale as evidenced by their way of life. Smuggling is one of the most common cross-border crime. This negative phenomenon has existed since the development of statehood. It has improved their methods and forms. The intensity of smuggling depends on the political and economic situation occurring in the country in a given period of time. Good political and economic situation in the country provides social security for citizens and leads to the development of a wealthy and strong country where the problem of smuggling disappears. Political and economic chaos prevailing in the country is conducive to the immediate development of this crime. It causes a major threat to the economic security of the state. Integration processes which are taking place in Europe bring a lot of undeniable advantages not only for dynamic economic development, but also for the improvement of public safety in European countries. However, there should be taken into account more and more real problems and risks associated with the increasing activity of organized crime groups. They show clear evidence of an increase in the geographic scope of activities of organized criminal groups, the formation of supra-structures, the formation of specialized areas of criminal structures in the external border of the enlarged EU. The result is an increase in the number of crimes committed in the border areas in terms of the following crime types:  illegal transfer of human beings;  goods smuggling (cigarettes, alcohol);  drug smuggling;  international terrorism; It can be summarized that organized crime is the modus operandi of criminal groups which will develop faster and faster. Moreover, it might be the source of funding international terrorism in the future. It threatens not only the economic development and stability of many countries, but also has a direct or indirect impact on the safety of their citizens. One of the main threats for the economies of the European Union is the influx of illegal immigrants. It happens due to the following several reasons:  no paid tax records.  work below the minimum wage which results in a deterioration of the situation on the labor market and rising unemployment.  criminal activity (ethnic criminal groups have been appearing for several years in the statistics of the Police and the Central Bureau of Investigation).  in many cases, immigrants can acquire rights to a partial welfare as an additional burden on the budgets of host countries.  costs related to the deportations and maintenance of immigrants in the country. 3. Statistical Research on crossing EU Eastern Border illegally. Western Union countries are also attractive place for the illegal migration. Rich northern countries attract immigrants from poor, often very distant countries where entire families from small villages devoted many years of savings to pay for smuggling people across the border. Nearly 70% of the detainees are citizens from Ukraine and Russia who organize metastases | 553 across the border (it should be remembered that Chechens coming to Poland are officially citizens of Russia). 150 Polish citizens have been arrested for human trafficking into the EU in recent years which shows how large-scale the phenomenon of human trafficking into the EU is. The remaining citizens come from Afghanistan, Pakistan and Nigeria (15%). Statistics from the Greek border of the European Union drawn up by one of the organizations dealing with immigrants and immigrant smugglers show the ethnic detainees. The vast majority (five largest groups) are citizens of Arab countries with unstable political situation (Pakistan, Palestine, Iran), or even in a state of war (Afghanistan and Iraq) (see Stryjewski 2012). Chart 2. Statistics of the attempts to cross illegally the Polish border by non-EU citizens (Afghanistan and Iraq citizens). Country Percentage Ukraine Russia 54% 13% Belarus 5% Moldavia 5% Vietnam 4% Georgia 4% Others 15% (Taken from http://www.strazgraniczna.pl/wps/portal/tresc?WCM_GLOBAL_CONTEXT=pl/ serwis-sg/polskie_formacje_graniczne/zestawienie_statystyczne/ , 16.08.2010). The above chart shows another dimension of the threat caused by illegal immigrants related to the public safety as the threat of terrorism or tropical diseases (no checks for tropical diseases). Basically, the detained people at the border can be divided into three groups:  Those caught due to material reasons.  Those caught due to the illegal border crossing.  Those caught due to political reasons. For citizens of countries where, for various reasons, they are in danger they have the status of refugees which involves a specific legal procedure. At the time of an individual investigation of a refugee’s case, a refugee who applies for the status of refugees stays in the center for refugees held by the Border Guard. A refugee placed in the center has the right to medical care and conditions that ensure respect the customs and religions what generate enormous costs for the state. 4. Summary Smuggling is one of the most common cross-border crime occurring in the Polish border areas. Concern for the protection of the border is a guarantee of economic development and security both at the border areas analyzed and in the entire country. Polish Border Guard is a national security agency which is responsible for the protection and defense the integrity of the border and for ensuring public safety in the border zones. The Protection of the state border on land and sea, and border traffic controls are statutory obligations. Today’s modern Border Guard is an organization having the same organizational rules which facilitate cooperation between organizational units. Another advantage is the flexibility of the implemented system which provides certain flexibility in planning what is extremely essential. In 1989, in the face of new economic and political situation which required adaptation of border protection to the new reality, it was established the Border Guard in May 1991 to take over the protection of the border from the Border Defence Forces. The new-created formation is an uniformed, armed and fully professional organization. References: Fundacja Edukacyjna Przedsiębiorczości, Podstawy przekształceń własnościowych polskiej gospodarki. Warszawa 1993. 554 | Wierzbicki M., Kobylasta M., Pluciński B. (2005). Wschodnia granica Unii Europejskiej – transgraniczna przestępczość zorganizowana. Rozpoznaj zagrożenia, skutecznie zwalczaj. Szczytno. Kożuchowska K. (2000). Granica państwa – różne aspekty jej ochrony i współpracy organów do tego powołanych. [In:] Monitor Prawa Celnego nr 8, Warszawa. Ustawa o ochronie granicy państwowej z dnia 12.10.1990 r., Dz. U. z 1997 r., nr 43. Przybyła Z. (1995). Problemy rozwoju współpracy ekonomicznej regionów przygranicznych na przykładzie. Wrocław. Stryjewski, R. (2012). Integracja społeczna i gospodarcza imigrantów wyznania muzułmańskiego w Polsce. Raport z badań.. Warszawa: Fundacja „Ocalenie”. Wysocki W. (2003). Przemyt a bezpieczeństwo ekonomiczne Polski. Warszawa. | 555 556 | Marcin Skinder Agnieszka Brewka Kazimierz Wielki University in Bydgoszcz Polish pension scheme from the perspective of international human rights and reforms in 1999-2012 Abstract The subject of article is the pension system in Poland as a member country in UE and the international human rights. The research problem is: what are the problems of the pension reform performed in 1999 and 2013? The theoretical aim of the article is to describe a pension system in Poland and indicate the arguments that started the reforms in 1999 and 2013 and what are the relationships with international human rights. The practical aim is to propose the solutions to improve the functioning of the pension system with regards to the human rights. The authors used a non serial publications of authors such as I. Jędrasik-Jankowska, W. Mushalski, M. Popek, M. Szymanski, F. Chybalski and continuous publications, including social policy and insurance papers. The authors used a method of monograph and presented analyzes outline the theory of social policy and polish pension system with human rights and its impact on economic development. In the final part of the article the authors undertook the issue of unemployment among people aged 50 years and more. The authors also paid attention to the possibility of raising the effectiveness of the pension system reform by a more dynamic implementation of the natalist policy. Keywords: retirements, pension system, social policy, natalist policy, international human rights 1. Methodological aspects of the work The subject of this article is reforming the pension scheme in Poland in the context of human rights. The research problem was formulated in the form of a question: what problems result from the reforms of the pension scheme carried out in the years 1999 and 2013 and what is the relationship between them and the human rights? The theoretical and research objective of this article is to present the pension scheme functioning in Poland, as well as to show arguments affecting the introduction of reforms of that scheme in the years 1999 and 2013. The practical and implementation objective is to propose solutions for improving the current pension scheme which will take into account the human rights in the best possible way. The authors used cohesive sources of such authors as I. Jędrasik-Jankowska, W. Muszalski, M. Popek, M. Szymański, F. Chybalski and continuous sources, including Polityka Społeczna and Gazeta Ubezpieczeniowa. The monographic method used in this article is commonly described by Tadeusz Pilch as holding research aspects comprehensively, whose subject are institutions and forms of activity. This method supports the thorough identification of the structure, rules and effectiveness of the institution, it also considers making suggestions as to changes. Problems discussed in this article refers to the Polish pension scheme determined by the human rights and economic development. The authors also presented an analysis of the value of retirement pensions which would be paid if the reform had been delayed or had not occurred. A part of problems was devoted to functioning and threats of pension funds and the international human rights. In the final part of this article the authors performed an analysis of unemployment among people of 50 years of age and more, including possibilities for their activity on the labor market and persuading employers to employ them. They also turned their attention to a possibility of rising the effectiveness of the pension scheme reform by more | 557 dynamic realization of a pro-natalist policy by the government. 2. Genesis, subjects and legal status of the Polish pension scheme The pension scheme of states is born of the society aspirations to security against the risk of old age. At first it was based on help from the family, philanthropy of other people and religious units. Later the tasks of care were taken over by communes and professional communities. Eventually, universal and obligatory systems were created. In the last century, many European states, including Poland, reformed their pension schemes. The function of the pension scheme is to secure people against poverty after reaching the retirement age. At that time most people lose their only income, when ceasing gainful employment. That situation was sanctioned by regulations of the Constitution of Polish People’s Republic of 22 July 1952r.1, which said the citizens had the right to help in case of incapacity to work. This was realized by popularizing the social insurance of the co-called white-collar workers and laborers against old age or incapacity to work, as well as other methods of social assistance. Until 1968 the retirement benefit was called the senile pension. The retirement age referred to as average not always is connected with the full incapacity to work. Similarly, the moment of going into retirement is not always connected with the loss of health. Also the Constitution of RP of 19972 in art. 67 ensures citizens the right to social security in case of incapacity to work in the case of reaching the retirement age, disability, illness or leaving out of work through no fault of them. The body responsible for realization of this right is the government, which, however, commission the local government bodies to do those tasks. The bodies directly responsible for realizing the right to insurance are mentioned in acts of financial character, e.g. the act on social insurance system.3 It is notable that all the existing solutions concerning accomplishment of the right to retirement security make the pension scheme. Before 1999 the functioning pension scheme was based on the so-called employee and nonemployee insurances. The only institution managing social insurances was ZUS - Social Insurance Institution. Contributions were not divided into particular risks, thus they were entirely deposited in the Fund of Social Insurances (FUS). This body paid the right benefit if necessary. Employee insurances were paid entirely by the employer from their own funds, whereas non-employee insurances were paid by the insured themselves. Proper functioning and prompt payments of a benefit to the insured was guaranteed by the State Treasury4 Due to the economic and social situation of the state and demographic forecasts of many institutions, as early as from 1996 the government started to introduce the new pension scheme. The main argument calling for the reform was the unfavorable quantitative state and predictions for its dynamics. Actually, there were fewer people at the productive age and more people at the retirement age5. This situation could very fast result in the lack of means for paying retirement benefits and largely limit realizing the citizens’ rights to social security. The reform was began with passing the laws: • Act on organization and functioning of pension funds of 28.08.1997r. (Dz.U.2010.34.189 consolidated text), • Act on social insurance system of 13.09.1998r. (Dz.U.2009.205.1585 consolidated text), • Act on pensions from the Social Insurance Fund of 17.12.1998 (Dz.U.2009.153.1227 consolidated text), • Act on employee pension plans of 20.04.2004 (Dz.U.2004.116.1207), • Act on individual pension accounts of 20.04.2004 (Dz.U.2004.116.1205). The principles of pension scheme reform introduced in 1999 consisted mainly in creating a 558 | three-layered (three pillars) scheme, of which joining layers I and II was obligatory. The first layer is maintained by ZUS by means of repartition (pay-as-you-go, PAYG). This method is based on a “inter-generation agreement”. It consists on the fact that the generation being currently at the economically productive age pays contributions that constitute benefits for the present pensioners. Thanks to that, they gain the right to retirement pensions in the future, which in turn will be paid from means earned by the future generation. Thus the contributions are paid by employees, but also by employers. Those means are deposited in an individual account of the insured person. In the new pension system, in contrast to the previous one, the amount of a benefit is difficult to estimate explicitly. The right to pension is gained at the moment of satisfying the required conditions: reaching 60 years of age in women and 65 years of age in men, and having the suitable job seniority, 20 and 25 years respectively. This benefit will be calculated individually for each insured person, based on the system of the so-called defined contribution6 (FDC - financial defined contributions). Thus the height of a pension depends on the amount of earnings (allotted contribution) and the time of employment. Obviously, the contributions paid to FUS are valorized. It is notable that the valorization is making the amount of benefits realistic, that is maintaining the same purchasing power as before, and revalorization means converting the whole purse of benefits or its part according to new, uniform rules (which was carried out in 1991). The second layer is managed by the Open Pension Funds, OFE, and it is partly obligatory, depending of the age of the insured person. People born before 31.12.1948 receive pensions in accordance with the rules binding before the reform of 1999. People born between 1.01.1949 and 31.12.1968 made an individual decision whether they want to join OFE. Finally, the insured people born after 1.01.1969 must be subject to the new scheme. Each insured person has their own account in OFE, where they receive 2.8%7 of a contribution paid to ZUS. The employee has the right to choose a pension fund. If they does not do this in the defined time, the contribution is deposited in the random pension fund. It is notable that this layer is financed by the capital method. The means deposited in those funds are allotted for investments, usually in safe and comfortable government bonds. Participation in OFE can also occur by opening an account in the given fund. However, one cannot withdraw from participation in this layer of the scheme, although it is possible to change a fund. Unfortunately, a fee must be paid for such transaction, depending on the time of depositing the contributions. The insured person has the right to gain information as stipulated by the act, based on which they can examine the fund effectiveness. Termination of membership in OFE can occur only at the moment of reaching the retirement age or death of the insured person. In this case, collected means are transferred to wife’s account or to people pointed by the deceased or the close family.8 The third layer is completely voluntary and it is formed by Employee Pension Programs - PPE (from 1999), Individual Pension Accounts- IKE (2004), Individual Pension Security Account - IKZE (from 2011). Benefits collected on this pillar with the capital method are supposed to be a supplement to the basic pension. Participation in PPE consists in monthly payments of a contribution in the amount not exceeding 7% of remuneration. They are allotted by employers, but also employee can pay an additional contribution. One can gain the access to those means only after reaching the right age.9 The person insured in IKE can have only one account. During the calendar year, a maximum of 300% average expected monthly remuneration can be deposited in the IKE account.10 The savings can be transferred to another institution any time by transfer payment. It is equally important that we can withdraw the savings from the IKE account, finishing the saving. We can also demand the repayment of savings in the case when we want to have full access to money, and we have not reached the retirement age yet. IKZE was introduced by the act of 201111, and it has been in effect since 1st January 2012. | 559 Until the end of 2012 it was possible to transfer one’s savings deposited in IKE to IKZE. The difference between those accounts consists in a possibility of deducting payments to IKZE from the income tax base. Only the withdrawal from IKZE after finishing the saving period, the repayment of means deposited in those accounts and payment of savings collected by the account owner for the entitled person in the situation of death of the insured person are taxable. The new institution does not arouse interest among the working people. The study conducted in 2012 indicated that more than 300 thousand accounts were opened, and savings were deposited only in 12 thousand accounts, that is only from 2% of the saving people.12 The above mentioned valorization is aimed at maintaining the real value of a pension in relation to an increase in prices of services and goods. The valorization rate is determined in the budget act. The nominal rise in the average retirement pension cannot be lower than the expected rise in prices and services in the studied year. ZUS carries out valorization twice a year; whereas contributions that came in the account of the insured person are valorized four times a year, from 1st January 1999.13 Summing up, the basic retirement pension consists of savings deposited in the first and second layers (pillars I and II). The layer supplementing income for the old age (III pillar) makes a supplement of the benefit for people who wish to better secure themselves for the old age. The insured person will receive a retirement pension in the form of one, combined transfer from ZUS and OFE. Introduction of a multi-layered system was supposed to affect an increase in the retirement pension received. Previously a system of defined benefit was in effect, which was replaced with a defined contribution in the compulsory layer. In the current pension scheme the government does not ensure the retirement benefit on the appropriate level, it is only responsible for paying the indispensable minimum (I pillar). Based on the act on the social security system14 , FRD – the Demographic Reserve Fund – was appointed. This institution is aimed at ensuring the solvency of retirement pensions in the situation of occurring demographic problems. As the name itself indicates, FRD is a reserve found from which means can be paid from 2002. The means deposited in it are funded from privatization of the State Treasury property (59.6%), about 1% of contributions for retirement insurance (33.2%) and the profit from investments (7.2%).15 The economic and demographic situation of Poland in the 21th c. affected plans of next reforms of the pension scheme. In 2009 a project of reform of the act on organization and functioning of pension funds was prepared.16 Changes contained in it were introduced only partially. The most important reform came into effect from 1.01.2013, when the act on pensions from FUS was amended. That reform consisted in raising the retirement age of men by two years and of women by five years, equalizing their age to 67 years. Working time will be increased by three months each year, as a result women will reach the target age in 2040 and men already in 2020. This reform met with strong opposition from economists, the parliamentary opposition groups and even a wave of strikes of union members. Working until 67 may affect a higher unemployment rates in people above 50 years of age. On the other hand, such people will take jobs for those who only enter the labor market. Arguments for coming into effect such a reform are related to the demographic and economic sphere. People live longer and receives more retirement benefits. In contrast, there are less people at the productive age, which may determine the situation of the lack of means for pensions. Additionally, a reduction in FRD deficit was provided in the reform. 560 | 3. Reforms of legislation concerning the old age risk in the European Union Also in the European Union, legislation concerning the human rights is being reformed in conformity with standards of social security. Differentiated pension schemes of the European states could constitute a barrier for free flow of employees to different countries. Therefore, staff mobility has been guaranteed by introduction of equalizing mechanisms, including the coordination of pension schemes. A possibility of gaining the right to pension by people employed in different countries has also been provided. Those provisions determine the uniform way of employment periods, and allow the free flow of a pension benefits gained in one state to the state where the insured person is currently staying. It is notable that those provisions are not aimed at equalizing the schemes in all the states, but only supplementing the internal law. The above legal provisions are contained in Regulation 1408/7117, as well as in the executive Regulation 574/7218 and in Regulation 859/0319. The constant enlargement of the UE boundaries was to a large extent a test for the stability of those provisions. Actually, they are not adapted to emerging new forms of employment flexibility or to a constantly growing number of people moving within the Euroland. Many more regulations must be introduced to entirely secure the pension rights to people using freedom of movement.20 4. Legal problems connected with the functioning of the Polish pension scheme Urszula Kalina-Prasznic considered the problem of the right to providing old age security with the use of social insurance rules different from those in effect before the reform of 1999 r.21 After reaching the retirement age, the retirement pension is the main source of security. The way it is received depends on the pension scheme of the given state. It is affected by the economic, demographic and social situation in the country. This results in a compulsion to reform and adapt the scheme to structural changes. Such a reconstruction may have a parametric or paradigmatic character. The objective of parametric changes is to change the parameters of the scheme, e.g. a change in retirement age and valorization of benefits, whereas paradigmatic changes consist in changes in the functioning rules. In Poland, the latter formula of changes was used in 1999, whereas a parametric change in 2013. Changes in the scheme introduced in 1999 were called a reform, but the reconstruction of the time does not entirely correspond to the meaning of this term. Those changes are based on redirecting savings from the public sector to the private sector. According to Kalina Prasznic22 , such solutions considerably reduce the social safety of people at retirement age, which, according to art. 67 of the Constitution, is supposed to be provided by the State. Changes in the rules of the pension scheme functioning in 1999 resulted also in a limitation of the individual rights to security after going into retirement; for instance, the state is no longer obliged to ensure old the definite level of a retirement benefit to old age pensioners. According to Maciej Holko23, social insurances are not a form of investments or savings. He describes the agreement of insurance as the loan agreement or the agreement of ownership transfer. The existence of the OFE arouse much controversy. M. Holko thinks that it is irrational to deposit incomes in those funds. They charge the insured people high, non-returnable fees, while they also charge interest from the state, on which 9% of the budget income had to be allocated in 201024. It is also wrong to compare retirement pensions from OFE to a dividend, understood as a part of net profit (after taxation with the income tax) allocated for shareholders. This only results in a risk connected with instability of financial markets not regulated by the state; whereas a growth in enterprise, , innovation or human capital is minimal. M. Holko is of the opinion that investing money in securities is a better solution than depositing it in OFE. Such solutions have a positive effect on the economic development of the state. First of all, this will facilitate to transfer | 561 of a real part of savings for investments. W. Orłowski claims that one of the reasons for introducing OFE is the fact of the ageing society. The generation agreement was no longer enough for paying retirement pensions. However, this problem was supposed to be prevented by the reform of 1999, where the amount of the retirement pension was dependent on the amount of contributions and the depositing period. According to M. Holko, introducing the 2nd pillar in 1999 was an economic error. This additional layer was not thoroughly analyzed, some details, small but important for the functioning of that system were not polished up. First of all, this idea was not sufficiently submitted for either public or specialist discussion. M. Holko emphasizes that the adopted pension scheme is not even in accordance with the legally binding Constitution, which explicitly ensures the right to social security, and not to public liabilities, which are purchased from our contributions by the OFE. Such a situation results from the fact that the open funds have an order to invest savings deposited by the workers in securities (government bonds). Changes in the demographic situation (a negative population growth and the extending time of average life span) may negatively affect the financial situation of the state. To save the state budget in the time of economic crisis, the state governments often unnecessarily look for saving in the area of social policy, causing losses which will later return with a redoubled strength. The financial policy of the state and the pension scheme have a common purpose, which is to provide the future pensioners with means of support, at the same time to ensure they can exercise the constitutional right to social security. Unfortunately, the badly constructed pension scheme may considerably overload the state finances and create unnecessary costs25. Andrzej Pisulewski presented a real projection of the effect of the state fiscal policy on the Polish pension scheme after 1999. Unfortunately, predictions for the functioning and the expenses incurred within the new system assumed earlier were too optimistic. In fact, the costs of the scheme until 2010 increased systematically, also the macroeconomic data were unsatisfactory26. In 2011 a bill was passed, on the strength of which the contribution transferred to OFE was decreased. This was supposed to result in stopping the growing public debt caused by increasing interest rate of the Treasury government bonds. Thus the effects which are negative for the state can be found in functioning of any financial system. Its proper functioning is dependent on its development. Their function must be thoroughly analyzed and the most suitable system must be chosen, which is beyond the capabilities of a great deal of reformers. A constantly growing public debt in the 80s and 90s and a problem with its paying off had a crucial effect on the pension reform of 1999. The World Bank committed itself to reduce 50% of debt in return for introduction the reform according to their rules.27 A wide advertising campaign encouraging people to join OFE was financed by the World Bank and the American agency USAID (US Agency for International Development). From the report of that agency it follows that numerous trips to the countries of South America were organized for Polish politicians so that they could gain knowledge there about the functioning of the pension scheme introduced in Poland. The politicians who supported that reform received the best positions in institutions connected with the activities of OFE. In contrast, the then Minister of Finance, being against that change, was simply replaced with a minister supporting the reform. It is notable that the Polish people was presented the reform as a Polish one. It was recommended to avoid information that the changes are supported by foreign institutions.28 The main effect of the reform of 1999 was the introduction of OFE. This was supposed to conceal a fall in the amount of retirement pensions almost by a half- after the introduced changes. Commercials showing pensioners resting under palms were to persuade people born between 562 | 1948 and 1968 to declare joining OFE. Public opinion was not informed about the negative effects of this reform or about the results of joining OFE. From the investigation of the European Committee it appears that the reform of 1999 caused that the ratio of the average retirement pension to the average remuneration is the lowest in all the EU. This will account for 26% in 2060, whereas if there had been no changes, that retirement pension would amount to 56%.29 The reform discussed above was introduced because of a bad demographic situation and a possibility of financial problems. This pension scheme, regarded as best, has not been introduced in any other highly developed states. The fact of raising the retirement age in 2013 indicates the imperfection and expensive effects of the reform of 1999. As a result, lower retirement pensions and a shorter time of their payment will reduce the social expenses, which will allow the expenses of the Polish budget to be decreased. In 1997 Zbigniew Chrupek and Lech Smolaga presented threats resulting from the introduction of OFE. The most important of them are as follows:30 • financial loss of the budget and State Treasury, • foreign capital groups growing rich, thanks to payments of Polish people to OFE, • expensive maintenance of private funds. Raising the retirement age by the amendment of 2012 is the result of prolonging human life span. This is a positive tendency in terms of demography. However, at the low fertility rate, this situation may be alarming. The lack of suitable human resources at the economically productive age may result in the lack of financial security for the people at the people of the retirement age. Additionally, an increasing unemployment rate in the group of productive people in the years 2012-2013 worsens the situation of the society.31 Thus it can be assumed that raising the retirement age will not solve problems of the state, will not increase the budget income. To accomplish such a reform in a sensible way, additional action must be taken to motivate the elderly people. At present Poland is the fifth from last among the European countries with respect to the professional activity rate.32 The parallel effective action is popularizing lifelong learning and rising the effectiveness of labor market, as well as a higher protection level of people of the pre-retirement age.33 It is also worth thinking over additional reforms of the labor market in Poland - creating new jobs for people above 50 years of age, a possibility of their additional training or changes in the pro-family policy. Changes should also encourage employers to employ older people. In the EU states, particularly in West Europe, tax reliefs are being introduced thanks to which the employer can deduct the employment or training costs of an employee from the age group 50+ or to introduce a limitation of costs in the case of the employee’s illness. An essential argument against making the retirement age of women and men equal is the fact of a higher workload of women. Besides making a career, they run the house and take care of the children. Elderly women also take care of their grandchildren. Nowadays, when there are not enough c in day nurseries and kindergartens, and young parents cannot afford to provide children with a private care, the institution of grandma is becoming the cheapest and most essential.34 5. Final remarks Coming to a conclusion, it is worth assuming that the pension system of the given state is determined by the policy of security from the retirement risk, which should take into consideration the international legal standards. In the space of years, it should change and adapt the pension system to the current economical and demographical situation of the state. In Poland, serious re- | 563 forms of the pension scheme were carried out twice, in 1999 and in 2013. In both cases the main reason for the changes were demographic problems (a low number of children born and a constantly growing life span). Such a situation may have a negative influence on the future security of pensioners, on their constitutional right to the pension. Small and constantly decreasing number of people at economically productive age will not be able to earn for contributions for the people of retirement age. Changes in the pension scheme can be made in the parametric or paradigmatic way. In Poland both reforms were applied, introducing the three-pillar system (paradigmatic change). Raising and making equal the retirement age, in turn, the parametric way was applied. Irrespective of the way of changing the pension scheme, in Poland the state transferred all the responsibility for the living standard of pensioners to the society. Additionally, changes in the pension scheme in Poland are affected by the EU legal regulations, which strive to make determination of the law concerning migrants easier in all the European Union, within the framework of European coordination. Unfortunately, along with prolongation of the retirement age there is a fear connected with the lack of possibility to work for people above 50 years of age, especially for women. Therefore arguments are often put forward about introducing additional reforms in pro-family policy or work policy. Employers should be encouraged for employing elderly people through tax reliefs, by the use of additional bonuses. Elderly people in turn should be provided with training courses and protection of the pre-retirement age. Introduction of the compulsory layer (2nd pillar) and open pension funds roused most controversy connected with the reform of 1999. Such subjects generate considerable costs for the state budget and charge additional non-returnable fees from the insured people. Unfortunately, functioning of the new pension scheme after 1999 had a negative impact on the state financial policy. Ill-considered rules and manner of introducing the reforms caused additional, unnecessary costs to the state budget. References Act of 13 October 1998 on social insurance system (Dz.U. of 2009 No. 205, item 1585) Act of 25 March 2011 on the change in some acts connected with the functioning of social insurance scheme (Dz. U. of 2011 No. 75, item 398). Act of 28 August 1997 on organization and functioning of pension funds. Chybalski F (2009). Otwarte fundusze emerytalne w Polsce. Analiza działalności inwestycyjnej, finansów oraz decyzji członków [Open pension funds in Poland. Analysis of investments, finance and decisions of members]. Warszawa: Wydawnictwo C.H. Beck. Constitution of the Polish People’s Republic of 22 July 1952 (Dz. U. of 1952 No. 33, item 232 as amended). Constitution of the Republic of Poland of 2 April 1997 (Dz. U. of 1997 No. 78, item 483 as amended). Council Regulation (EC) No 859/2003 of 14 May 2003 extending the provisions of Regulation (EEC) No 1408/71 and Regulation (EEC) No 574/72 to nationals of third countries who are not already covered by those provisions solely on the ground of their nationality. Council Regulation (EEC) No 1408/71 of 14 June 1971 on the application of social security schemes to employed persons and to members of their families moving within the Community. Council Regulation (EEC) No 574/72 of 21 March 1972 laying down the procedure for implementing Regulation (EEC) No 1408/71 on the application of social security schemes to employed persons and to their families moving within the Community. Holko M. (2011). Emerytura – ubezpieczenia, oszczędność czy dywidenda [Pension – insurance, saving or dividend]. Polityka Społeczna 11-12/2011. pp. 12-16. 564 | Jak zreformować IKZE? [How to reform IKZE?]. Gazeta Ubezpieczeniowa. 3(718), 15.01.2013. Jędrasik-Jankowska I. (2007). Pojęcia i konstrukcje prawne ubezpieczenia społecznego [Concepts and legal constructions of social insurance]. Warszawa: Wydawnictwo Prawnicze LexisNexis. Kalina-Prasznic U. (2011). Ochrona ryzyka starości a odrzucone paradygmaty społecznego ubezpieczenia społecznego [Protection of old age risk and rejected paradigms of social insurance]. Polityka Społeczna. 4/2011. pp. 7 -12. Kluszczyńska Z. (2007). System Ubezpieczeń społecznych. Zagadnienia podstawowe [Social insurance scheme. Basic problems]. Warszawa: Wydawnictwo Prawnicze LexisNexis. Męcina J. (2012). Podniesienie wieku emerytalnego: Uwarunkowania gospodarcze i społeczne [Raising the retirement age: economic and social determinants]. Polityka Społeczna. 4/2012, pp.7-12. Ministry of Work and Social Policy (2011). Pension insurance contribution. www.mpips.gov.pl. Muszalski W. (2004). Ubezpieczenie społeczne [Social insurance]. Warszawa: Wydawnictwo naukowe PWN. Oręziak L. (2012). OFE w Polsce – produkt ekspansji globalnych instytucji finansowych [OFE in Poland – product of the expansion of global financial institutions]. Polityka Społeczna. 11-12/2012. pp.5-13. Pisulewski A. (2011). Oddziaływanie systemu emerytalnego na politykę fiskalną w Polsce [Effect of pension scheme on fiscal policy in Poland]. Polityka Społeczna. 4/2011, , p.18. Podkański M. (2013). Strategie wydłużenia aktywności zawodowej: Wybrane kraje UE [Strategies for prolonging professional activity. Some EU countries]. Polityka Społeczna. 2/2013. pp. 30-36. Popek M., Szymański M.,(2012). Pracowniczy Program Emerytalny. Czy to się opłaci? [Employee Pension Plan. Will it pay?]. Warszawa: Komisja Nadzoru Finansowego. PricewaterhouseCoopers (2010). Porównanie systemów dodatkowego zabezpieczenia emerytalnego w Polsce oraz wybranych krajach Unii Europejskiej [Comparing schemes of additional pension security in Poland and some EU countries]. www.izfa.pl/files_user/pdf/PwC_raport_15.10.2010.pdf. Uścińska G. (2008). Koordynacja systemów zabezpieczenia społecznego. Aktualne problemy i wyzwania [Coordination of social security schemes. Current problems and challenges]. Polityka Społeczna. 10/2008, pp. 1-6. Uścińska G., Szałek A., Szczur M., (1999). Emerytury i renty po reformie [Pensions after the reform]. Bydgoszcz: Wydawnictwo TNOiK. Zakład Ubezpeczeń Społecznych (2012). Ubezpieczenia społeczne w Polsce, Warszawa. (Endnotes) 1 Constitution of the Polish People’s Republic of 22 July 1952 (Dz. U. of 1952 No. 33, item 232 as amended). 2 Constitution of the Republic of Poland of 2 April 1997 (Dz. U. of 1997 No. 78, item 483 as amended). 3 Zofia Kluszczyńska, System Ubezpieczeń społecznych. Zagadnienia podstawowe [Social insurance scheme. Basic problems], Wydawnictwo Prawnicze LexisNexis, Warszawa 2007, pp.19-22. 4 Inetta Jędrasik-Jankowska, Pojęcia i konstrukcje prawne ubezpieczenia społecznego [Concepts and legal constructions of social insurance], Wydawnictwo Prawnicze LexisNexis, Warszawa 2007, p. 209. 5 W. Muszalski, Ubezpieczenie społeczne [Social insurance], Wydawnictwo naukowe PWN, Warszawa 2004, pp.173-175. 6 F. Chybalski, Otwarte fundusze emerytalne w Polsce. Analiza działalności inwestycyjnej, finansów oraz decyzji członków [Open pension funds in Poland. Analysis of investments, finance and decisions of members], Wydawnictwo C.H. Beck, Warszawa 2009, p.14. 7 www.mpips.gov.pl/ubezpieczenia-spoleczne/ubezpieczenie-emerytalne/skladka-na-ubezpieczenieemerytalne. | 565 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 I. Jędrasik-Jankowska, Pojęcia i konstrukcje prawne ubezpieczenia społecznego [Concepts and legal constructions of social insurance], Wydawnictwo Prawnicze LexisNexis, Warszawa 2007, p. 276. M. Popek, M. Szymański, Pracowniczy Program Emerytalny. Czy to się opłaci? [Employee Pension Plan. Will it pay?], Komisja Nadzoru Finansowego, Warszawa 2012, p. 11. Porównanie systemów dodatkowego zabezpieczenia emerytalnego w Polsce oraz wybranych krajach Unii Europejskiej [Comparing schemes of additional pension security in Poland and some EU countries], PricewaterhouseCoopers, 2010,p. 36. Act of 25 March 2011 on the change in some acts connected with the functioning of social insurance scheme (Dz. U. of 2011 no. 75, item 398). Jak zreformować IKZE? [How to reform IKZE?] Gazeta Ubezpieczeniowa no. 3(718), 15.01.2013. Gertruda Uścińska, Anna Szałek, Maria Szczur, Emerytury i renty po reformie [Pensions after the reform], Wydawnictwo TNOiK, Bydgoszcz 1999, pp.78-83. Act of 13 October 1998 on social insurance system (Dz.U. of 2009 No. 205, item 1585 consolidated text.). Ubezpieczenia społeczne w Polsce, p.35. Act of 28 August 1997 on organization and functioning of pension funds (Dz.U. 1997 no. 139, item 934). Council Regulation (EEC) No 1408/71 of 14 June 1971 on the application of social security schemes to employed persons and to members of their families moving within the Community (Dz.U. L 28, 30. 1. 1997). Council Regulation (EEC) No 574/72 of 21 March 1972 laying down the procedure for implementing Regulation (EEC) No 1408/71 on the application of social security schemes to employed persons and to their families moving within the Community (Dz.U. L 74 of 30.1.1997, p. 1). Council Regulation (EC) No 859/2003 of 14 May 2003 extending the provisions of Regulation (EEC) No 1408/71 and Regulation (EEC) No 574/72 to nationals of third countries who are not already covered by those provisions solely on the ground of their nationality. Gertruda Uścińska, Koordynacja systemów zabezpieczenia społecznego. Aktualne problemy i wyzwania [Coordination of social security schemes. Current problems and challenges], „Polityka Społeczna” no. 10/2008, p. 1. Urszula Kalina-Prasznic, Ochrona ryzyka starości a odrzucone paradygmaty społecznego ubezpieczenia społecznego [Protection of old age risk and rejected paradigms of social insurance], Polityka Społeczna no. 4/2011, pp. 7 -9. Polityka Społeczna np. 4/2011, Urszula Kalina-Prasznic, Ochrona ryzyka starości a odrzucone paradygmaty społecznego ubezpieczenia społecznego [Protection of old age risk and rejected paradigms of social insurance] , pp. 7. Polityka Społeczna no. 11-12/2011, Maciej Holko, Emerytura – ubezpieczenia, oszczędność czy dywidenda [Pension – insurance, saving or dividend], p. 12. Polityka Społeczna no. 11-12/2011, Maciej Holko, Emerytura – ubezpieczenia, oszczędność czy dywidenda[Pension – insurance, saving or dividend], p. 13. Polityka Społeczna no. 4/2011, Andrzej Pisulewski, Oddziaływanie systemu emerytalnego na politykę fiskalną w Polsce [Effect of pension scheme on fiscal policy in Poland], p.18. Polityka Społeczna no. 4/2011, Andrzej Pisulewski, Oddziaływanie systemu emerytalnego na politykę fiskalną w Polsce [Effect of pension scheme on fiscal policy in Poland], pp.21-22. Polityka Społeczna no. 11-12/2012, Leokadia Oręziak, OFE w Polsce – produkt ekspansji globalnych instytucji finansowych [OFE in Poland – product of the expansion of global financial institutions], p. 10 Polityka Społeczna no. 11-12/2012, Leokadia Oręziak, OFE w Polsce – produkt ekspansji globalnych 566 | 29 30 31 32 33 34 instytucji finansowych [OFE in Poland – product of the expansion of global financial institutions], p.11. Polityka Społeczna no. 11-12/2012, Leokadia Oręziak, OFE w Polsce – produkt ekspansji globalnych instytucji finansowych [OFE in Poland – product of the expansion of global financial institutions], pp. 5-6. Polityka Społeczna no. 11-12/2012, Leokadia Oręziak, OFE w Polsce – produkt ekspansji globalnych instytucji finansowych [OFE in Poland – product of the expansion of global financial institutions], p.12. Polityka Społeczna no. 4/2012, Jacek Męcina, Podniesienie wieku emerytalnego: Uwarunkowania gospodarcze i społeczne [Raising the retirement age: economic and social determinants], p.7. Polityka Społeczna no. 4/2012, Jacek Męcina, Podniesienie wieku emerytalnego: Uwarunkowania gospodarcze i społeczne[Raising the retirement age: economic and social determinants], p.7. Polityka Społeczna no. 2/2013, Marcin Podkański, Strategie wydłużenia aktywności zawodowej: Wybrane kraje UE [Strategies for prolonging professional activity. Some EU countries], p. 35. Polityka Społeczna no. 4/2012, Jacek Męcina, Podniesienie wieku emerytalnego: Uwarunkowania gospodarcze i społeczne [Raising the retirement age: economic and social determinants], pp.7-12. | 567 568 | VI. Right to information in the age of mass media | 569 570 | Elżbieta Ura Stanisław Pieprzny University of Rzeszów [email protected] Public information sharing in the light of court case Abstract The aim of this paper is to present the interpretation by administrative courts basic solutions laws on access to public information. The number of complaints about the failure of refusing to provide information to the public has identified numerous violations of the rights of citizens to public information. Access to public information is closely related to the openness of public administration. It is one of the elements of a democratic state. Keywords: public information, sharing of public information, administrative law courts, freedom of information, public Affairs, transparency of the administration. 1. Introduction The research of the issue of making public information available was inspired by two circumstances. One is annually repeated information from students concerning difficulties in obtaining public information from different public authorities. The other circumstance concerns basically everyday press references to administrative courts’ judgments concerning the issue of public information. And indeed, the content of courts’ judicial decisions concerning complaints about the inactivity of authorities, who deny the access to public information confirms the thesis of frequently occurring cases of violating the right of an individual as regards public information. Considering the above, it can be suggested that public authorities tend to show ignorance of law or its disregard. There are also cases of ‘hiding behind’ the classified information protection act or the protection of personal data act. Therefore, the authors’ intention is to present the interpretation of basic solutions regarding making public information available in view of judicial decisions of administrative courts. Not only will it allow to understand the issue of public information and its material scope, but it will also present the issue in the context of the principle of transparency of public administration’s actions. This principle together with the right to public information constitutes one of the elements of any democratic country. In the doctrine it is emphasised that information has a crucial role in the social, economic, and political life of any country and its value was known long before the development of modern technologies and social changes1. The rise of the value of information is also influenced by increasing the speed of data processing and the capacity of information media, and lowering the costs of producing, storing and sending information. The expression ‘information society’, used in the social sciences and in the media, refers to a society which functions on the basis of producing, storing, processing, and the circulation of information by means of the modern communication technologies2. Information technologies have become a fundamental element of the economic development of the information society3 . Moreover, it is emphasised that if information is power (gives power) then the more it matters in social life, the more one not only needs to control it, but also to have access to it. This universality guarantees the transparency of public life and of a decision-making process, making law and using public funds4. | 571 Considering the fact that more and more people exercise the right of access to public information, public authorities have to learn to apply the provisions relating to this field. Judicial decisions of the Polish Constitutional Tribunal and of administrative courts are a useful source. 2. Basic provisions of International and EU legislation The right to information is a public subjective right of any citizen5. This right was emphasised in the UN resolution no 59/I, which was adopted in 1946 during the first session of the United Nations Organization, and highlighted that ‘freedom of information is a fundamental human right and is the touchstone of all the freedoms to which the United Nations is consecrated’, it is ‘the right to gather, transmit and publish news anywhere and everywhere without fetters’ 6. The merit of the freedom of information is reflected in the right of obtaining information which is ‘matters of public interest’7. This right is also emphasised in the article 19 of the Universal Declaration of Human Rights, adopted as the UN General Assembly resolution in 1948, which states that ‘everyone has the right to freedom of opinion and expression; this right includes freedom to hold opinions without interference and to seek, receive and impart information and ideas through any media and regardless of frontiers.’ The article 29, paragraph 2, indicates that: ‘in the exercise of his rights and freedoms, everyone shall be subject only to such limitations as are determined by law solely.’ The right of seeking, receiving and imparting any information is also guaranteed by the International Covenant on Civil and Political Rights adopted by the UN General Assembly on the 19th of December 19668 . The right to information is also the subject matter of the Council of Europe’s regulation. The basic act is the Convention for the Protection of Human Rights and Fundamental Freedoms adopted in 1950 9 and signed in Rome by the member countries of the Council of Europe. The article 10 of this Convention states: ‘everyone has the right to freedom of expression. This right shall include freedom to hold opinions and to receive and impart information and ideas without interference by public authority and regardless of frontiers.’ The Convention points out that the exercise of these freedoms might be restricted by law if it is necessary in a democratic society, e.g. in the interest of national security, public safety, the protection of order, health or morals. Making public information available has been also the focus of many resolutions of the Council of Europe10 . These resolutions emphasise that certain details regarding public figures’ private lives, especially politicians’, might be the subject of public interest. Public figures should be aware of the fact that their social position, very often consciously chosen, may inevitably cause an increasing interest in their private lives. The resolutions also indicate that the access to public information is also in public authorities’ interest. The guarantees of the right of access to information shall contribute to informing the society wholly about everything what concerns public life. Furthermore, the resolutions emphasize that even personal data, which in other circumstances may be considered as sensitive data (regarding political affiliation and political and religious beliefs), cannot be protected as sensitive data if they concern public figures and are stored by relevant public units. Making such data available increases the transparency of public life, which in turn supports the protection of third persons’ rights11. The Council of Europe moreover indicates that the society’s access to information on public issues conditions proper functioning of any parliamentary democracy and enables the fight against corruption and waste of public funds. The access to public information is in public authorities’ interest, and the guarantees of this right shall contribute to informing the society wholly about everything which concerns public life. A society which supplies funds to the state budget (public budgets) has the right to know how these funds are disposed12. The Convention on Access to Official Documents, adopted by the Council of Europe on June 18, 2009, should be also mentioned since it imposes an obligation on public bodies, including 572 | government and local administration bodies, to make official documents available to everyone without stating the reasons why he or she wishes to have access to it13. The right to public information is also emphasised in the European Union acts, of which the following can be mentioned: Directive 95/46/EC of the European Parliament and of the Council of 24 October 1995 on the protection of individuals with regard to the processing of personal data and on the free movement of such data, Regulation (EC) No 1049/2001 of the European Parliament and of the Council of 30 May 2001 regarding public access to European Parliament, Council and Commission documents14. The Regulation indicates, inter alia, that in general all documents shall be publicly accessible. In some specific cases, however, the need to protect private and public interests might on the basis of exception justify restrictions on access. In the group of The Union acts the following articles should also be mentioned, the article 15 of the Treaty on the Functioning of the European Union, and the article 42 of the Charter of Fundamental Rights of the European Union, which is a component of the Lisbon Treaty. They state that any citizen of the Union and any natural or legal person residing or having its registered office in a Member State, shall have a right of access to documents of the Union’s institutions, bodies, offices and agencies whatever their medium. Finally, the role of judgments of the European Court of Human Rights (ECHR) issued in conjunction with the article 10 of the European Convention should be emphasised. The Court clearly indicates there that, inter alia, specific duties of public authorities and the restriction of public figures’ privacy reflect a right of access to public information. Public figures have to agree to further interference in their private lives, which is indicated in the article 8 of the Convention15. Case-law of ECHR with regard to the above was interpreted by the Constitutional Tribunal which indicated that ECHR clearly emphasises that it is the European standard to tend to increase the scope of transparency of public life. The public has the right to information, which is a fundamental right in a democratic society, and in specific cases might even refer to the aspects of public figures’ lives, especially politicians’. Indeed these people agreed to public control of their actions both by journalists and by whole society when they committed to serve as public figures. The subject of judicial decisions of ECHR is also the issue of citizens’ access to documents and information stored and processed by public institutions. The Court takes the view that there should be a positive obligation on the part of a state regarding the scope of specific category of information16. In its judgment of the 7th June 2012, ECHR indicated that the freedom of speech guaranteed in the article 10, paragraph 1 of the Convention is one of the basic fundaments of any democratic society and one of the fundaments of its development. The freedom of the press and other information media gives any society one of the best options to get informed and form opinions about beliefs and attitudes of its political leaders. The press is responsible for transmission of information and opinions concerning political issues and other subjects of public interest. The press is responsible for transmission of such information but also the public has a right to obtain it 17. 3. Constitutional right to public information The right to access public information is a development of the rule of transparency of the activities of organs of public authority, including the functioning of the administration. This rule constitutes one of the fundamental rules of the functioning of the administration which can help to define its functions, tasks, and the way of operating. It represents democratization in social relations which manifests, inter alia, in departing from the model of ruling based on limited access to information and its regulation18. The right to access information and the rule of transparency are, as T. Górzyńska indicates, ‘the elements of democracy and the rule of law, they represent democratisation in social and political relations’19 and the right to access information implements | 573 the existence of transparency which ‘is often underestimated as a means which alleviates or mitigates concerns caused by unavailability and ignorance of matters’20. The author indicates that ‘the need to obtain, store, perpetuate, process, and pass information has (…) a fundamental existential meaning (…) at each stage of a development of an individual and a society. Searching for information is a permanent element of any existence and one of the conditions of survival’ 21. The right to public information is guaranteed in the Constitution of the Republic of Poland of 2nd April, 1997, which proves the importance of this right. According to the article 61, a citizen shall have the right to obtain information on the activities of organs of public authority as well as persons discharging public functions. Such right shall also include receipt of information on the activities of self-governing economic or professional organs and other persons or organisational units relating to the field in which they perform the duties of public authorities and manage communal assets or property of the State Treasury. The right to obtain information shall ensure access to documents and entry to sittings of collective organs of public authority formed by universal elections, with the opportunity to make sound and visual recordings. Limitations upon this right may be imposed by statute solely to protect freedoms and rights of other persons and economic subjects, public order, security or important economic interests of the State (paragraph 3). The procedure for the provision of information, according to the paragraph 4, shall be specified by statute, and regarding the Sejm and the Senate by their rules of procedure. In its judgment of 21st July, 2011, the Supreme Administrative Court of Poland indicated that the principle formed in the article 61 about the right to obtain information sets also the fundamental rules of its interpretation. Indeed, if it is a constitutional right, then laws defining access mode to information shall be interpreted in a way which guarantees citizens, other persons, and units extensive powers in this field, while all exceptions shall be applied narrowly. This means applying such interpretation to these laws which would widen not narrow the obligation of information22 . 4. Statutory regulation of access to public information Act on Access to Public Information, defining substantive law and procedural arguments of making public information available was adopted on the 6th September, 200123. According to article 1 of this act, each information on public matters constitutes public information in the understanding of the act and is subject to being made available on the basis of principles and under the provisions defined in this act24. The act defined entities entitled to obtain information, indicating that everybody has this right. It means that not only Polish citizens, but also all foreigners have this right (so called general foreigners, members of the European Union and stateless people). It also emphasises that the person exercising the right to public information cannot be demanded to reveal the legal or factual purpose. The only limitation of such a formulated law is regulation from article 5 of the act. Public information shall be made available in a form of factual activities and the refusal to make public information available requires an administrative decision ( article 16). The purpose of adopting the law was emphasised by the Administrative Court, indicating that it serves the performance of constitutional right to access knowledge of functioning of public authority bodies. The notion ‘everybody’ should be understood as each person (natural person) or a private law entity. This law regulates rules and mode of access to information, which has value of public information. It also indicates limitations of access to public information and situations when applicant’s information cannot be made available. This law applies only in situations when its objective and subjective scopes are fulfilled25. 574 | 5. The subject of public information and entities obliged to its disclosure It may seem that the notion ‘public information’ defined in the act as ‘each information on public matters’ would not cause any troubles in the course of law application. However, judicial decisions show different reality. First of all, subjective scope of public information should be noted here. Public information is information about facts, which are related to a petition. It should be connected with public activity, because the right to information includes right to demand information associated with functioning of bodies of public authority, especially public authority institution. Strictly speaking it is for instance information connected with procedures and assigned tasks, their implementation process, investments and tenders within one institution. Public information is also a cover of a case file after conclusion of proceedings26. Public information can also be the contents of civil law agreements concerning control over legal entity’s property. An addressee of a request for public information is not entitled to free selection of information given to applicant, but he is obliged to take an attitude towards the applicant’s specific questions27. In its judicial decision of 14th November, 2012 The Voivodship Administrative Court in Gdańsk acknowledged that information concerning costs incurred by the commune as a result of employing Commune Secretary, which was in fact information concerning public authorities and created by the authorities themselves, is public information in accordance with the article 1, paragraph 1 in connection with article 6, paragraph 1. The Commune Secretary as de facto self-government employee, who can be entrusted with a task of managing Commune’s affairs by administrative officer of the commune, is a person performing public function, therefore access to information concerning his employment, including information about the cost incurred by the commune when employing him or her, which in fact constitutes information about the amount of cash paid out from public funds to a person, who performs public function, cannot be limited28. Public information cannot be director’s formal document in energy enterprise, which concerns illegal use of electric energy prevention. This formal document does not concern public matters, but company’s economic business. It is an internal document, whose aim is to prevent socially and economically harmful activities and making it available could minimize effectiveness of an audit29. Making public information available is the obligation of the public authorities as well as other entities performing public functions, in particular: bodies of public authority, bodies of economic and professional local authorities, entities representing the State Treasury in accordance with the separate provisions, entities representing state legal persons or legal persons of local authorities and entities representing other state organisational units or organisation units of local authority, entities representing other persons or organisational units, which perform public functions or dispose of public property as well as legal persons, among which the State Treasury, units of local authority or economic or professional local authority hold dominant position in the understanding of the provisions of competition and consumer protection. Moreover, this law also includes trade unions, employers and political parties, which are obliged to make public information available (article 4). The Act does not include the notion of public authority, associates it undoubtedly with performing public duties and only specifies bodies performing such duties. As it was indicated by The Constitutional Tribunal, within the meaning of Article 77, paragraph 1 of Constitutional Law30, and having application here as well, the notion ‘public authority’ includes all constitutional powers of the country or self-government and other institutions if they perform functions of ‘public authority’ as a result of entrusting or giving them these functions31. On the other hand in judicial decision of 4th December, 2001 The Constitutional Tribunal explained that performing public duties concerns all forms of country functioning, local self – government and other public institutions, which include varied forms of activity. Performing these functions is usually, but not always, connected with the possibility of imperious creation of the individual’s situation32. Public duties | 575 can be performed by the body of this authority or entities, who these tasks were entrusted to on the basis of specific and clear statutory regulations. The Supreme Administrative Court noticed that the act on access to public information uses the notion ‘ public task’ and not ‘public authority’s duty’ as it was stated in the Article 61 of the Constitution. The notion ‘ public task’ ignores entity element and means that public tasks can be performed by various entities, which are not organs of government and with no need of transferring those tasks. ‘Public task’ as it is understood is characterised by universality and usefulness for the society and also favours achieving goals as they were defined in the Constitution or the law. Performing public duties is always connected with performing the basic public subjective rights of citizens’33. Bodies of public authority were not mentioned in the law. Interpretation of this expression on the basis of judicial decision of 4th December, 2001 of the Constitutional Tribunal means an institution, organizational structure, public authority unit, not a body of legal entity according to civil law. According to M. Bednarczyk „(…) until now no adequate catalogue of entities entitled to make public information available has been prepared, what can be explained by the generality of article 4, paragraph 1 of act on access to public information. Such a catalogue has not been prepared in decree concerning PIB, despite the fact that the project of that decree included initial list of public authority entities (…)”. In this context the author states that provisions of the law are so inaccurate that they cause disputes in the doctrine and judicial decisions34. According to The Supreme Administrative Court, legislator identifies with the notion of body of public authority all administrative authorities functioning in existing state authority body and also entities, which are not included in organisational terms in administration and which are appointed according to the law for organisation and performance of public tasks35. Review of judicial decisions confirms the theory, which talks about difficulties in defining the group of entities entitled to make public information available. The following judicial decisions are the best illustrations of these difficulties and indicate subject of public information at the same time: 1) Public prosecutor’s office, during performance of public tasks such as keeping law and order and watching prosecution of offences, is included in bodies of public authority. Article 16, paragraph 1 applies to public prosecutor’s office as a body of public authority. According to this article, refusal to make the public information available and discontinuation of proceedings to make the information available in the case defined in Article 14 it. 2 by the body of public authority takes place by means of a decision36. 2) Police authorities are undoubtedly included in the subjective scope of the act and as a body of public authorities are entitled to make held information, which is characterised as public information, available. Town Police Commander is an entity entitled to make available information, which has the value of public information and is held by him. Case files conducted by the police, regardless of their kind and function, include information about their activities. Official notes taken by the police officers irrespective of the fact if they were handwritten or in electronic form or in a form of typescript, interrogation protocols from offence cases, and all other official notes prepared by Police authorities together with documents connected with offence cases, which are submitted to them, are regarded as public information, because they concern facts, they were prepared in the scope of public administration, and they include information on a particular case37. 3) A rector who is in charge of a public university, and makes administrative decisions and manages public funds is an entity obliged to make public information available. The demand to disclose a request for disciplinary measures concerning punishment and initiating disciplinary proceedings is the demand to make public information available as regards performing public activities by a rector of a university. Public information is not only what is included in documents directly edited and written by people responsible for disciplinary proceedings concerning an aca- 576 | demic teacher, such as a request for disciplinary measures and disciplinary judgment, but also an expert opinion and an appeal, which were used by a particular authority to perform tasks entrusted to it by the law38. 4) The fact that a company performs collective transport services at the request of the commune does not mean that it performs public tasks. This is because the commune does not assign any of its competences as far as transport service is concerned to this company, but only performance of its own duties39. 5) Regional Medical Chamber performs public tasks and therefore it is an entity obliged to consider a request for making available public information connected with its activities, including making meetings minutes available40. 6) The use of funds from the state budget donations by universities as public funds results in the fact that a university is in a group of entities performing public tasks and having public funds, while data concerning the above is considered to be public information, which is obliged to be made available by this university at any request of a citizen41. 7) Hospital as Independent Public Healthcare Centre as regards its use of public funds is an entity obliged to make available information considered as public information42. 8) Private Healthcare Clinic, which is contracted by National Health Fund to provide health and finance services financed by public funds, belongs to a group of entities performing public tasks43. 9) If an entity performs public tasks, it is obliged to make public information available regardless of the scope of these tasks concerning particular people and possible employees’ competence limitations with regards to it. Information on business phone numbers and electronic addresses together with assigning them to particular organisational units and to posts constitutes public information44. 10) In general the National Chamber of Statutory Auditors as a body of statutory auditors – the Chambers of Statutory Auditors, is entitled to make public information available, but it concerns the following aspects of its activities: passing appeals, enquiries, and explanations directed to public authorities by means of statutory resolutions, which are extensively interpreted activities defined in Article 4, of act on access to public information. Under no circumstances can issues concerning the obligation to prepare training materials and doing publishing activity be included in subjective scope of this provision45. 11) Public schools should be included in a group of entities which are obliged to make public information available46. 12) Education should be included in public tasks, even when it is performed by private schools. Entities representing non-public schools with public school accreditation are obliged to make public information available as far as their public tasks performance is concerned47. 13) The headmaster of a private kindergarten is a different entity performing public tasks and if he or she manages public funds he or she is obliged to make public information available in a particular scope48. 14) Information concerning rural meeting is not included in public matters in accordance with act on access to public information, because of the lack of subjective and objective premises defined in article 1, paragraph 1 of this law. Presence lists are not made by public entities49. 15) Voivodship Inspector of Building Control is an entity obliged to make information he possesses available, which is regarded as public information, pursuant to act on access to public information50. 16) President of Polish Chamber of Patent Attorneys is a body of local government, obliged to make public information concerning this local government’s actions available51. | 577 17) A Member of Parliament is an entity having public authority in accordance with article 4, paragraph 1 of act on access to public information, or performing public tasks. He does not also have public authority, because he does not have a statutory right of enforcement of particular tasks and purposes52. 18) An entity who was entrusted with performance of a task belonging to ones assigned to voivodeship local government competences, where local self – government has a huge share, performs public tasks in accordance with article 4, paragraph 1, subparagraph 5 of act on access to public information and meanwhile should be a subject to principles of transparency and social supervision such as local self – government’s funds53. 19) Both Forest Inspector and The State Forests National Forest Holding Director are entities obliged to make public information available. They both represent State Treasury as far as civil law relationships are concerned as regards their activities and The State Forests National Forest Holding Director manages public funds54. 20) PKO S.A. is a bank in which the State Treasury holds a stake of 35 % and is the biggest shareholder of this Bank and holds majority shareholding in companies, which are shareholders in the Bank. Because of such significant position of the State Treasury the PKO Bank is an entity obliged to make public information available55. 21) Assembly of Court Martial is not a body, which is obliged to disclose public information pursuant to the act on access public information56. 22) Article 4, paragraph 1 of act on access to public information shall not be applied to cooperative housing associations if they do not have public funds57. 23) Entities, who were entrusted with performing public tasks on the basis of a specific regulation, are obliged to make public information available. Association of Polish Architects is also such entity58. Public Information Bulletin which shall be made available was mentioned in Article 6. In judicial decisions, it was pointed out that there are 34 subparagraphs in this article and that the legislator used a phrase ‘in particular’, which means that the bulletin included in this regulation has not been completed yet. Such a solution was accepted, because in a democratic country the bulletin of public information should be a subject of extensive social control. Making public information available in the course and according to principles expected in this particular law should become a rule. An entity, who received a request for making public information available, should first of all aim at making information available59. If an entity obliged to make public information available does not take any actions as far as request is concerned or refuses to make public information available in a legal form, unexpected for this activity, then idleness of this entity as regards access to public information, appears. Actions which are considered as not sufficient are the following: presenting information, which is different from the one expected by a petitioner, incomplete information or inadequate with the request, which can cause recipient’s grounded doubts if a body responded to his request at all60. In judicial decisions, there is a fixed belief that a complaint connected with failure to take up actions by a body concerning public information does not have to be preceded by any legal proceedings by administrative means. The Code of Administrative Procedure does not apply to making public information available, because the act on access to public information includes reference how to use this code only in respect of decision on refusal to public information access and not in respect of factual activity involving granting the access61. 6. Limitation of the right to public information 578 | According to Article 5, the right to public information is subject to limitation to the extent and on the principles defined in the provisions on the protection of confidential information and on the protection of other secrets being statutorily protected. It will apply to the Classified Information Protection Act 62 of 5th August, 2010 in particular and also Personal Data Protection Act 63 of 29th August, 1997. It is interesting that a judicial decision of The Voivodship Administrative Court in Gdańsk of 20th January, 2005, which was passed as a result of complaint connected with failure to take up actions by a rector of a public university, who did not present the applicant the recruitment results. The Court indicated that ‘the fact, that rules and course of disclosing recruitment results in Law on Higher Education had not been regulated anyhow, it says that it is not a particular regulation in connection with the Act on access to public information’64. So, when a legal document, on basis of which an entity obliged to make public information available functions, does not include any separate kind of secret or course of disclosing information, cannot be interpreted in a way when it could really create a secret, which would prevent obtaining information. The act on access to public information is a general act, having priority over other legal documents, defining other courses of making information available65. Moreover the right to public information is subject to limitation due to natural person’s privacy or entrepreneur’s secret, but this limitation does not concern information on people performing public functions, connected with performing public tasks and on conditions of entrusting a person with duties and performing those duties and a situation when a natural person or an entrepreneur renounce a right. Regulation in this scope is consistent with accepted interpretation of European convention by European Court of Human Rights. In the light of this law, request for making available information associated with average salaries of clerks does not concern worker’s personal data, but is an enquiry about having public funds and this is a subject to being made available in accordance with Openness of public finance principle66. 7. Entitlements concerning exercising the right to public information including processed information The right to public information covers the entitlement to (Article 3): 1) obtain public information, including obtaining information processed within such a frame, in which it is particularly essential for the public interest, 2) insight into the official documents, 3) access to the board meetings of public authorities bodies chosen by general elections. The right to public information covers the entitlement to obtain immediately the information containing the knowledge on present public matters (art. 3). Thus, obtaining processed information is only possible when: firstly, the proposer presents a petition showing information which he wants to obtain. Secondly, when he indicates that this information is significant for public interest. This means that such information is beyond his interest and its importance is particular and the proposer acts in the public interest 67. The premise of ‘particular relevance for public interest’ should be considered as fulfilled in situation in which obtaining definite information and disclosing it is not only in the proposer’s interest, but also in the citizens’ interest 68. In case when the entity obliged to disclose information acknowledges that the petition concerns processed information he should call the proposer to show within the time schedule particular and relevant public interest. After the lapse of the time limit the entity rejects the petition to give processed information on the grounds of art.16 Act 1. The processed information is public information elaborated by an entity, who is obliged to use additional resources, on the grounds of possessed data, in connection with the proposer’s demands and on the grounds of his advisable criteria. In other words it is information, which should | 579 be prepared ‘especially’ for the proposer according to his criteria. It constitutes the sum of information so-called basic public information, which is accessible without showing the premise of public interest. Considering the content of the demand, the release of specific public information even the simple one can entail the need of carrying out certain analyses, specifications, extracts or deleting data protected by law. The above-mentioned steps make such simple information processed information, making available of which is correlated with the need of existence of the premise of public interest69. The notion of processing means all actions taken by the employees of the obliged entity, which demand intellectual contribution in order to create the content of information. In this light the processed information is new information, which has not existed so far in accepted form and content, although its source are documents (materials), which are possessed by the obliged entity. The processing takes the form of actions, which demands carrying out thorough document analysis, which are owned by the obliged entity as well as those, which prove useful in preparing different comparisons, final calculations, reference to other periods and combining datasets etc. which are not the outcome resulting from reporting actions of rules of law 70. Preparation of specific document copies is public information and it should not be credited as processed information therefore their preparation does not lead to formation of new information, consisting of partial basic information. There is no doubt that a construction log is a document which is possessed by the investor. If the investor is an individual of the local government meaning a public law entity who realizes public actions, the construction log also serves as a realization of public actions by this entity and its body. Therefore, the access to this document should be treated as an access to public information71. 8. A way of making public information available There are many ways of making public information available, specified by the act We can distinguish the following: 1) disclosure on the initiative of the obliged body, 2) disclosure on the petition, 3) participating in the meetings of board bodies chosen by election. Art. 8 of the Act obliges the organ which is responsible for disclosing public information to create an official teleinformatics publicator – Public Information Bulletin PIB in order to make public information available. Disclosing public information in PIB excludes the obligation of its another disclosure on the petition even when the announcement of the information took place in PIB after the proposer had filed the application to get access to public information72. This means that the information, which was disclosed in PIB is not subjected to disclosure on the petition and at the same time the body responsible for print-outs from the Bulletin is not subjected to disclose information to the proposer73. The Provincial Administrative Court in Szczecin claimed that the acceptance in PIB Act as a basic source of familiarizing with public information was accepted as a rational solution as the familiarization with this information via WWW, realizes basic assumptions of the right to access information. The validity of this solution is not excluded from the circumstance that the interested party may not have a computer or an access to the Internet, as these days when the computerisation develops he can use the Internet not only in Internet cafes but also in many other public utility places like a library for free. Moreover, in such places he can use the help of their qualified personnel74. In the judicial decision of 20th June 2012 the Provincial Administrative Court in Warsaw paid attention to the fact that PIB disclosed information about the administrative officer of the commune, the secretary, the treasurer and the managers of administrative units of local government’s income via publication of financial interest. It does not mean that the information 580 | about salary cards in PIB is publicly available in this way. The information included in salary cards is more detailed information defining particular salary components, which are actually paid out75. The Administrative Court also pays attention to the fact that disclosing public information in PIB is general, ex lege takes place, and covers round-the-clock, continuous access to public information and it does not require a petition of any entity. Making information available on the petition is a supplementary way but not optional, and it does not matter whether the information which is made available by the Bulletin is classified as information, which is mandatorily made available via data communication network or by the will of the obliged entity76. According to art. 9a, public information which has particular meaning for the development of innovativeness in the country and the development of information society, due to the way of storage and access, allows itself to be reused in a way, which is effective and useful, constitutes a collection called ‘information resources’ and is made available in central repository. The central repository is run by the minister competent to computerisation issues77. He is ‘a sort of database, which can be used for developmental purposes’78. Placing public information in the central repository constitutes the second way of making information available at the initiative of the body. The Act stipulates making public information available via its display, put up or via an installed device in publicly available places (art. 11). This way is supplementary in the group of making information available at the initiative of body and it is not supplementary for this body (the legislator used the following phrase: public information can be made available in this way). This means that the choice of this form depends on the entity which makes information available. According to art. 10, public information which was not made available in PIB or the central repository is made available on the petition. Information which can be made available immediately is then made available in the oral or written form without a written petition. Judicial decisions state that simplification of this proceeding is up to the employer. Because of this, the legislator set short dates of submitting and examining the complaint, without setting any additional requirements to bring in79. It is worth indicating the judgment in which the administrative court states that ‘indicating the entity demanding disclosure of information from Public Information Bulletin site as its source, constitutes the right settlement of the petition only in case when the information it contains directly and concretely applies to the essence of the action. Moreover, when it directly contains data essential from the questioning’s point of view and its obtainment does not require undertaking any additional actions (basic information). It is improper to settle the petition via referring to the Public Information Bulletin website, as the access to the asked information demands familiarisation with different source documents which the website contains, and then selecting data and theses from the information it contains. It is also improper when accessing information involves the interpretation of extensive data available in PIB and finally its individual ‘formation’ basing on it’80. ‘The access to public information is realised in the first place by insight into official documents. This means that the person interested in getting access to certain information can realise his or her right to public information by visiting the body in order to familiarise himself or herself with the content of the documents. It may also happen in other way indicated by the person accessing the information, mainly asking for the photocopies’81. The last way of making public information available is connected with direct participation in the meetings of board bodies . This way is embodied in so-called local government acts 82, defining that everybody has the right to access information, enter the sessions of public bodies constituting a unit of local government, committee meetings, and also access documents resulting from execution of public duties, including protocols from the meetings of board bodies of local government unit. Provincial Administrative Court stressed that the notion of ’admission to the sessions | 581 of commune council and its committee meetings’ used in art. 11b Act 2 on local government at the level of a commune, similarly as the notion of ‘access to board meetings of public authorities bodies’, used in the act on access to public information should be broadly interpreted, not only as the possibility of ‘being present’ during commune council sessions or its committee meetings but also in the content of art. 61 paragraph 2 of The Constitution of the Republic of Poland as the citizen’s right to make sound and visual recording during the commune council sessions and its committee meetings 83. 9. Conclusion The review of judicial decisions of all administrative courts presented above together with the outline of those of the Constitutional Court and ECHR, leads to the conclusion that despite the fact that the constitutional right to public information has been guaranteed for 16 years and the law on access to public information has been in force for 12 years, those who perform public tasks do not like providing information at the request, which results in inaction within this scope. It is a common knowledge that democracy is related to the transparency of actions and public information expresses this transparency. Therefore, those performing public tasks, responsible for public authority, shall accept more extensive interference in their private zone and recognise the fact that a lot of such information constitutes public information. In response to an article published in ‘Gazeta Prawna’ titled: ‘Judges have problems with abusing the right to information’84, there appeared a response on the website prawo.vagla.pl ‘Citizens have problems with violating their right to information’, in which the following statement appeared: ‘Has the municipality got difficulty providing information due to hundreds of petitions? Then it should change its procedures and make all information available in Public Information Bulletin. (...) The solution to the problem does not lie in separating from citizens by the concept of ‘abusing the right to information’, but in the structural, system change of the procedures used by the entities making information available’. This statement could be the conclusion of the presented issue. It presents two perspectives, the first one being the actions of those obliged to make information available who due to various reasons are not willing to provide public information which go beyond this made available in Public Information Bulletin, the second one being the actions of those entitled to public information who frequently happen to eagerly exercise their right. But it is the cost of democracy and transparency of public authorities’ actions, which should be obvious for both parties. Therefore courts should not expect the fall of the number of actions brought against inactivity of those not making public information available, or making it available but not in the extent demanded by petitioners. Democratisation of public life is a long-term process. What is recommended, though, is that those who perform public tasks should regularly become acquainted with judicial decisions, which constitute complementary, informal source of law, but are significant as regards the interpretation of laws in the process of their exercising. References Barczewska-Dziobek A., (2013) Społeczeństwo informacyjne wyzwaniem dla państwa i administracji, in: Wpływ przemian cywilizacyjnych na prawo administracyjne i administracje publiczną, eds. J. Zimmermann, P.J. Suwaj, Warszawa, Wolters Kluwer; Bartoszcze R., (1995) Gwarancje wolności wypowiedzi w Europie Zachodniej, Kraków; Bernaczyk M., (2008) Obowiązek bezwnioskowego udostępniania informacji publicznej, Lex Oficyna; Bidziński M., Chmaj M., Szustakiewicz P.,(2010) Ustawa o dostępie do informacji publicznej: Komentarz, Warszawa; C.H. Beck; Dębicka A., Dmochowski M., (2004) Nowoczesne technologie informacyjne i komunikacyjne jako 582 | czynnik profesjonalizacji administracji publicznej, in: Profesjonalizm w administracji publicznej, eds. A. Dębicka, M. Dmochowski, B. Kudrycka, Białystok, Libra; Doktorowicz K. ,(2005) Europejski model społeczeństwa informacyjnego. Polityczna strategia Unii Europejskiej w kontekście globalnych problemów wieku informacji, Katowice; Flasiński M., (1991) Swobodny przepływ informacji a interesy Polski, Warszawa; Górzyńska T., (1999) Prawo do informacji i zasada jawności administracyjnej, Kraków, Zakamycze; Górzyńska T., (1999) Kilka słów o prawie do informacji i zasadzie jawności, w: Państwo prawa. Administracja. Sądownictwo. Works dedicated to Prof. Janusz Łętowski, Dr habil. on his 60th birthday anniversary, eds. A. Łopatka, A. Wróbel, S. Kiewlicz, Warszawa; Gronowska B., Jasudowicz T., Mik C., (1993) Prawa człowieka. Dokumenty międzynarodowe, Toruń; Jabłoński M., (2005), Konstrukcja prawna tzw. kosztów dodatkowych w ustawie o dostępie do informacji publicznej (problem ustalania i pobierania kosztów dodatkowych przez organy gminy) University of Wroclaw Academic Issues ‘Administrative Law Review’, (65); Jasudowicz T., (1998) Ochrona danych. Standardy europejskie. Zbiór materiałów, Toruń, TNOiK; Korczak J., (2012) Konstytucyjne podstawy struktury i funkcji samorządu terytorialnego, in: System prawa administracyjnego, vol. 2 – Konstytucyjne podstawy funkcjonowania administracji publicznej, eds. R. Hauser, Z. Niewiadomski, A. Wróbel, Warszawa, C.H. Beck; Kościuk D. J., Modrzejewski A. K., (2013) Nowe technologie komunikacji w działaniu administracji – korzyści wynikające z ich wykorzystania, in: Wpływ przemian cywilizacyjnych na prawo administracyjne i administracje publiczną, eds. J. Zimmermann, P.J. Suwaj, Wolters Kluwer; Mikłaszewicz P., (2008) Obowiązki informacyjne w umowach z udziałem konsumentów na tle prawa Unii Europejskiej, Lex Oficyna; Mituś A., (2013) E-administracja: korzyści i zagrożenia, in: Wpływ przemian cywilizacyjnych na prawo administracyjne i administracje publiczną, eds. J. Zimmermann, P.J. Suwaj, Wolters Kluwer; Nowicki M. A., (1999) Konwencja Praw Człowieka. Wybór orzecznictwa, 2nd ed., Warszawa; Orzech K. Z.,(2005) Kształtowanie społeczeństwa informacyjnego poprzez kreowanie nowoczesnego dostępu do usług publicznych. Polskie dokonania na tle Europy, in: Oblicza Internetu. Internet a globalne społeczeństwo informacyjne, red. M. Sokołowski, Elbląg; Puzyna W., (2004) Wpływ technik informatycznych na funkcjonowanie administracji, in: Profesjonalizm w administracji publicznej, eds. A. Dębicka, M. Dmochowski, B. Kudrycka, Białystok, Libra; Rydlewski G., (2012) Dostęp do informacji publicznej w administracji publicznej jako przedmiot międzynarodowych regulacji normatywnych oraz systemów normatywnych w państwach członkowskich Unii Europejskiej, in: G. Rydlewski, P. Szustakiewicz, K. Golat, Udzielania informacji przez administrację. Teoria i praktyka, Warszawa; Szustakiewicz P., (2012) Dostęp do informacji na podstawie przepisów ustawy o dostępie do informacji publicznej, in: Udzielanie informacji przez administrację. Teoria i praktyka, Warszawa; (Endnotes) 1 See K. Doktorowicz, (2005), Europejski model społeczeństwa informacyjnego. Polityczna strategia Unii Europejskiej w kontekście globalnych problemów wieku informacji, Katowice; P. Mikłaszewicz, (2008), Obowiązki informacyjne w umowach z udziałem konsumentów na tle prawa Unii Europejskiej, Lex Oficyna; 2 See K. Z. Orzech,(2005) Kształtowanie społeczeństwa informacyjnego poprzez kreowanie nowoczesnego dostępu do usług publicznych. Polskie dokonania na tle Europy, in: Oblicza Internetu. Internet a globalne społeczeństwo informacyjne, red. M. Sokołowski, Elbląg, p.55; A. Barczewska-Dziobek, (2013) Społeczeństwo informacyjne wyzwaniem dla państwa i administracji, in: Wpływ przemian cywilizacyjnych na prawo administracyjne i administracje publiczną, eds. J. Zimmermann, P.J. Suwaj, Warszawa, Wolters Kluwer, p.80.f. | 583 3 4 5 6 7 8 9 10 11 12 13 14 15 See e.g.: A. Dębicka, M. Dmochowski, (2004) Nowoczesne technologie informacyjne i komunikacyjne jako czynnik profesjonalizacji administracji publicznej, in: Profesjonalizm w administracji publicznej, eds. A. Dębicka, M. Dmochowski, B. Kudrycka, Białystok, Libra, p.360. f. ; D. J. Kościuk, A. K. Modrzejewski, (2013) Nowe technologie komunikacji w działaniu administracji – korzyści wynikające z ich wykorzystania, in: Wpływ przemian cywilizacyjnych…, p.185.f. also cp. W. Puzyna, (2004) Wpływ technik informatycznych na funkcjonowanie administracji, in: Profesjonalizm w administracji …, p.368. f. ; D. J. Kościuk, A. K. Modrzejewski, (2013) , op. cit., p,188; A. Mituś, (2013) E-administracja: korzyści i zagrożenia, in: Wpływ przemian cywilizacyjnych…, p.115.f. See M. Bernaczyk, (2008), Obowiązek bezwnioskowego udostępniania informacji publicznej, Lex Oficyna. See M. Flasiński, (1991) Swobodny przepływ informacji a interesy Polski, Warszawa, p.18; P. Mikłaszewicz, (2008), op. cit, Lex Oficyna. Poland ratified this treaty in 1977 (Journal of Laws No. 38 item 167). The Convention was published in Polish in Journal of Laws of 1993 No. 61 item 284. In the article 10 of the Polish translation there is a statement ‘wolność wyrażania opinii’ (the freedom of expression), instead of ‘prawo do wolności wypowiedzi’ (right to freedom of expression), which is pointed out by scholars (see e.g. B. Gronowska, T. Jasudowicz, C. Mik, (1993) Prawa człowieka. Dokumenty międzynarodowe, Toruń, p.21; R. Bartoszcze, (1995) Gwarancje wolności wypowiedzi w Europie Zachodniej, Kraków, p.107; M. A. Nowicki, (1999) Konwencja Praw Człowieka. Wybór orzecznictwa, 2nd ed., Warszawa). E.g. Council of Europe Parliamentary Assembly Resolution 1165 (1998) of 26th June 1998 on the right to privacy; recommendation No R (81) 19 of 25h November 1981 of the Committee of Ministers of the Council of Europe on access to information held by public authorities; recommendation No R (91) 10 of 9th September 1991 of the Committee of Ministers of the Council of Europe on making personal data held by public authorities available to third parties (see: T. Jasudowicz, (1998) Ochrona danych. Standardy europejskie. Zbiór materiałów, Toruń). The analysis of the documents comes from the justification of the Constitutional Court’s judgment of 20th March 2006 (file. no. K 17/05, OTK-A 2006 no. 3, item 30). The Court expressed a similar position to this present in the Council of Europe’s documents indicated above, regarding the fact that right to privacy of public figures shall be limited. A similar position was held by the Constitutional Court in an earlier judgment of 13th July 2004, (ref. no. K 20/03, OTK ZU no. 7/A/2004, item 63). However, the Court emphasises that when two values collide, the constitutional right to information and the right to privacy, the first one cannot be prioritised. There is no rule of ‘guaranteeing citizens access to information at all costs’ and too much interference in somebody’s private life is out of the question (judgment of 19th June 2002, K 11/02; OTK ZU no. 4/A/2002, item 43). See the Recommendation 854 (1979) of 1st February 1979 of the Parliamentary Assembly of the Council of Europe on public access to governmental documents and the freedom of information (cit. per: P. Mikłaszewicz,( 2008) op. cit., Lex Oficyna). Cit. per: G. Rydlewski, (2012) Dostęp do informacji publicznej w administracji publicznej jako przedmiot międzynarodowych regulacji normatywnych oraz systemów normatywnych w państwach członkowskich Unii Europejskiej, in: G. Rydlewski, P. Szustakiewicz, K. Golat, Udzielania informacji przez administrację. Teoria i praktyka, Warszawa, p.33. Official Journal of the European Communities L 145 of 31st May 2001. See e.g. judgment of ECHR of 8th July 1986 Lingens v Austria ( paragraph 42 of the justification); judgment of ECHR of 4th May 2000 Rotaru v Romania file. no. 28341/95 ( paragraph 43 of the justification); judgment of ECHR of 24 June 2004 von Hannover v Germany file no. 59320/00 (paragraph 63 of the justification). 584 | 16 See judgment of 9 June 1998 McGinley and Egan file no. 10/97/794/995-996. 17 File no. 38433/09 Centro Europa 7 S.r.l. and Di Stefano v Italy, LEX no. 1164402. 18 See J. Korczak, (2012) Konstytucyjne podstawy struktury i funkcji samorządu terytorialnego, in: System prawa administracyjnego, vol. 2 – Konstytucyjne podstawy funkcjonowania administracji publicznej, eds. R. Hauser, Z. Niewiadomski, A. Wróbel, Warszawa, C.H. Beck, p.240. 19 T. Górzyńska, (1999), Prawo do informacji i zasada jawności administracyjnej, Kraków,Zakamycze, p.11. 20 T. Górzyńska, (1999) Kilka słów o prawie do informacji i zasadzie jawności, in: Państwo prawa. Administracja. Sądownictwo. Works dedicated to Prof. Janusz Łętowski, Dr habil. on his 60th birthday anniversary, eds. A. Łopatka, A. Wróbel, S. Kiewlicz, Warszawa, Ossolineum, p.116. 21 T. Górzyńska, (1999) Prawo …, p.21. 22 File no. I OSK 678/11, LEX no. 1082797. 23 Journal of Laws No 112, item. 1198 with changes; more information connected with work on a bill cp. M. Bidziński, M. Chmaj, P. Szustakiewicz,(2010) Ustawa o dostępie do informacji publicznej: Komentarz, Warszawa, C.H. Beck, p.X f. 24 In accordance with paragraph 2, act regulations do not violate regulations associated with other acts, defining different rules related to the access to information and the procedure for access to public information, which are regarded as public information. 25 Judicial decision of The Voivodship Administrative Court in Warsaw, 7th October, 2010, file no. II SAB/Wa 119/10, LEX no. 756168. 26 Judicial decision of The Voivodship Administrative Court in Gdańsk, file no. II SAB/Gd 7/13, published in Rzeczypospolita on 11th April, 2013, C6 . 27 Judicial decision of The Voivodship Administrative Court in Gliwice, 22nd November, 2012, file no. IV SAB/Gl 122/12, LEX no.1229952: the Court indicated that enquiry about the regulations concerning employing ticket inspectors on buses, managed by state legal person, what the address and name of external company is, what the agreement validity is, what the amounts of money and principles of remuneration for ticket controlling services and the number of people controlling tickets in collective communication are, encompasses issues concerning entity organisation and managing funds. If it is an entity having public funds it is obliged to make this information available. 28 File no. II SA/Gd 545/12, LEX no. 1228223. 29 Judicial decision of The Supreme Administrative Court, 18th August, 2010, file no. I OSK 851/10, LEX no. 737513. 30 This article states that everyone shall have the right to compensation for any harm done to him by any action of an organ of public authority contrary to law. 31 Judicial decision of The Constitutional Tribunal, 18th October, 2003, file no. SK 48/03, OTK-A 2005, no. 9, position.101. 32 file no. SK18/00, OTK 2001, no. 8, item.256. 33 Judicial decision of The Supreme Administrative Court, 18th August, 2010, file no. I OSK 851/10, LEX no. 737513. 34 M. Bernaczyk,(2008) op. cit, Lex Oficyna. 35 Judicial decision of The Supreme Administrative Court, 6th March, 2008, file no. I OSK 1918/07, LEX no. 505424. 36 ibidem. 37 Judicial decision of The Voivodship Administrative Court in Warsaw, 14th January, 2010, file no. II SAB/Wa 200/09, LEX no. 600238. 38 Judicial decision of The Voivodship Administrative Court in Lublin, 9th October, 2012, file no. II | 585 SAB/Lu 77/12, LEX no. 1229772. 39 Judicial decision of The Voivodship Administrative Court in Cracow, 5th September, 2012, file no. II SAB/Kr 74/12, LEX no.1222422. 40 Judicial decision of The Voivodship Administrative Court in Szczecin, 8th August, 2012, file no. II SAB/Sz 26/12, LEX no. 1224067. 41 Judicial decision of The Voivodship Administrative Court in Gdańsk, 1st august, 2012, file no. IISAB/Gd 42/12, LEX no. 1224064. 42 Judicial decision of The Voivodship Administrative Court in Lublin, 13th June, 2012, file no. II SAB/Lu 51/12, LEX no. 1212292. 43 Judicial decision of The Voivodship Administrative Court in Poznań, 14th December, 2010, file no. II SAB/Po 54/10, LEX no. 756143. 44 Judicial decision of The Voivodship Administrative Court in Warsaw, 18th April, 2012, file no. II SAB/Wa 22/12, LEX no. 1220590. 45 Judicial decision of The Voivodship Administrative Court in Warsaw, 28th March, 2012, file no. II SAB/Wa 493/11, LEX no. 1139145. 46 Judicial decision of The Voivodship Administrative Court in Warsaw, 22nd February, 2012, file no. II SAB/Wa 2291/11, LEX no. 1122884. 47 Judicial decision of The Supreme Administrative Court in Warsaw, 1st December, 2011, file no. I OSK 1630/11, LEX no. 1109517. 48 Resolution of The Voivodship Administrative Court in Cracow, 16th November, 2011, file no. II So/Kr 11/11,LEX no.1101347. 49 Judicial decision of The Voivodship Administrative Court in Kielce, 1st February, 2012, file no. II SAB/Ke 1/12,LEX no. 1110831. 50 Judicial decision of The Voivodship Administrative Court in Warsaw, 12th January, 2012, file no. II SAB/Wa 316/11, LEX no. 1109071. 51 Judicial decision of The Supreme Administrative Court, 20th December, 2011, file no. I OSK 2026/11, LEX no. 1149289. 52 Resolution of The Supreme Administrative Court, 14th December, 2011, file no. I OSK 2287/11, LEX no. 1149326. 53 Judicial decision of The Supreme Administrative Court, 16th November, 2011, file no. I OSK 1464/11, LEX no. 1149179. 54 Judicial decision of The Voivodship Administrative Court in Cracow, 7th September, 2011, file no. II SAB/Kr 77/11, LEX no. 899093. 55 Judicial decision of The Voivodship Administrative Court in Warsaw, 11th August, 2011, file no. II SAB/Wa 166/11, LEX no. 1086375. 56 Resolution of The Supreme Administrative Court, 16th September, 2010, file no. I OZ 685/10, LEX no. 741936. 57 Resolution of The Voivodship Administrative Court in Lublin, 8th July, 2010, file no. II SAB/Lu 49/10, LEX no. 668153. 58 Resolution of The Supreme Administrative Court, 19th April, 2010, file no. I OZ 125/10, LEX no. 619731. 59 Judicial decision of The Voivodship Administrative Court in Warsaw, 12th October, 2010, file no. II SA/Wa 933/10, LEX no. 755493. 60 Judicial decision of The Supreme Administrative Court, 7th December, 2011, file no. I OSK 1505/11, LEX no. 1134288. 61 Judicial decision of The Supreme Administrative Court, 24th May, 2006, file no. 601/05 (The Supreme Administrative Court judicial decisions database). 586 | 62 63 64 65 66 67 68 69 70 71 72 73 74 75 76 77 78 79 80 81 82 83 Journal of Laws, no. 11, item 95 with changes. Unified text of Journal of Laws, 2010, no. 182, item 1228 with changes. File no. II SAB/Gd 66/04, ONSA I WSA 2007, no. 1, item 16. also cp. P. Szustakiewicz, (2012) Dostęp do informacji na podstawie przepisów ustawy o dostępie do informacji publicznej: Udzielanie informacji…, p.55. Judicial decision of The Voivodship Administrative Court in Gliwice, 17th May, 2012, file no. IISAB/Gl 46/12, ‘Wspólnota’ 2012, number 25-26, page.47. The Voivodship Administrative Court in Kielce passed a similar judgement (file no. II SAB/Ke 3/13), stating that the inhabitant’s application on making public information available in a form of a list of employees’ salaries in a road engineering office. In fact, it does not concern commune’s employee’s personal data, but is only limited to a question about managing public funds, in this situation for salaries. Information concerning commune’s budget expenditure can be considered to be public information. Cp. M. Jabłoński, (2005) Konstrukcja prawna tzw. kosztów dodatkowych w ustawie o dostępie do informacji publicznej (problem ustalania i pobierania kosztów dodatkowych przez organy gminy) University of Wroclaw Academic Issues „Administrative Law Review”, issue: (65) p. 265 f. Judicial decision of The Supreme Administrative Court, 7th December, 2011, file no. I OSK 1505/11, LEX no. 1134288. Judicial decision of The Voivodship Administrative Court in Szczecin, 10th January, 2013, file no. II SAB/Sz 51/12, LEX no. 1254775. M. Jabłoński, (2005) op. cit., p. 265 f. Judicial decision of The Voivodship Administrative Court in Cracow, 20th March, 2012, file no. II SAB/Cr 4/12, LEX no. 1139112. Judicial decision of The Voivodship Administrative Court in Warsaw, 7th March, 2012, file no. II SAB/Wa 365/11, LEX no. 1145983. Judicial decision of The Supreme Administrative Court, 21st June, 2012, file no. I OSK 730/12, LEX no. 1216574. Judicial decision of The Voivodship Administrative Court in Szczecin, 3rd September, 2008, file no. II SA/Sz 505/08, LEX no. 516011. Judicial decision of The Voivodship Administrative Court in Warsaw, 20th June, 2012, file no. VIIISAB/Wa 15/12, LEX no. 1215854. Judicial decision of The Voivodship Administrative Court in Gliwice, 21st February, 2012, file no. IV SAB/Gl 72/11, LEX no.1139702. Currently it is the Minister of Administration and Digitization. P .Szustakiewicz, (2012), Dostęp…, p. 61. See e.g. Judicial decision of The Supreme Administrative Court, 24th May, 2006, file no. I OSK 601/05; judicial decision of The Voivodship Administrative Court in Warsaw, 8th September, 206, file no. II SAB/Wa 40/2006; judicial decision of The Voivodship Administrative Court in Łódź, 8th February, 2012, file no. II SAB/Łd 99/11, publication http://orzeczenia.nsa.gov.pl, Judicial decision of The Supreme Administrative Court, 15th July, 2011, file no. I OSK 667/11- LEX no. 969478. Judicial decision of The Voivodship Administrative Court in Warsaw, 4th January, 2012, file no. II SAB/Wa 184/11, LEX no. 1104373. Judicial decision of The Voivodship Administrative Court in Warsaw, 18th April, 2012, file no. II SAB/Wa 6/11, LEX no. 994277. The Local Government Act of 8th March, 1990 (Unified text of Journal of Laws, 2011, no. 142, item.1591 with changes.); The Act of 5th June, 1998 on Poviat Self – Government (Unified text of Journal of Laws, 2011, no. 142, item.1592 with changes.; The Act on Voivodship Government of 5th March, 1998 (Unified text of Journal of Laws, 2011, no. 142, item.1590 with changes.) Judicial decision of The Voivodship Administrative Court in Łódź, 9th July, 2008, file no. II SA/Ld | 587 89/08, LEX no. 602953. 84 One of The Supreme Administrative Court Judge’s remarks: “There are two complaints waiting for a review which were filled by two applicants who filled hundreds of complaints about lack of access to public information each. Those applicants filled about 1000 of complaints to the same municipal body”. 588 | Marcin Kazimierczuk [email protected] Dobrochna Ossowska-Salamonowicz [email protected] University of Warmia and Mazury in Olsztyn The right to public information in journalistic activity Abstract Access to information is a fundamental human right, because in order to fully conscious, rational decisions subtract , the individual must have knowledge of the surrounding world and the provisions adopted by other entities, which may affect its fate. It seems to be obvious that the tendency to possession of information is a natural human need and the access to it, because of its importance, is now an inherent condition of civil society treated in European countries as a standard. The right to information is therefore associated with the development of democracy, but democracy understood in institutional terms - parliament whether the right to vote - but most of all as an opportunity to consciously participate in the life of the community. The origins of the right to information in the modern world are associated with the development of democratic institutions. The right to public information primarily related to freedom of expression enshrined in the Constitution as freedom of expression and the acquisition and dissemination of information in general, especially through the media . The scope of the freedom of information is of course broader than the right to information . The practice enhances systemic forms of the learning activities of the public authorities, which should be regarded as a very important element of conscious participation of citizens in public life and the implementation of the principle of sovereignty by the people. Thus, the right to information about government activities is an important part of public life and public control over the activities of bodies and authorities . Key words: public information, the right, journalistic activity, the constitutional regulation 1. Introduction Today, information is able to influence the shape of society, through direct impacts on the lives of individuals and entire communities of people. One can even say that anyone who has information has power. Therefore, the standard of a democratic state should be the multiplicity and diversity of independent means of mass communication, which is the best guarantee pluralism of information. The right to public information primarily related to freedom of expression enshrined in the Constitution as freedom of expression, but also the acquisition and dissemination of information, particularly through the media, which will be the main focus of the authors. Monopolizing the media information vested interests leads to the fact that individuals deprived of the opportunity to reach the important information about social, political, or economic, are susceptible to manipulation, and they lose the ability to think independently. However, we must remember that the right to be treated as public information tool for journalistic work subject to appropriate restrictions. | 589 2. The concept of information In Polish law there is no legal definition of “information”. This term originated Latin word informatio, which means “give form (Korpanty, 2005, p. 230). In everyday language, the information is meant as a message, a message, a hint instruction ( Szymczak, 1988, p. 788). On the other hand, in Encyklopedia powszechna it is interpreted as an object thought to reflect any factor reducing the degree of ignorance of the examined phenomenon that allows a man to recognize his surroundings more accurate and efficient way to carry out purposeful action (Encyklopedia Powszechna PWN, 1975, p.281). Information can thus be called anything that is used to a more informed choice of activities leading to the attainment of the objective (Pierzchała, 2010, p. 24). Each piece of information has a measurable value plotted due to the fact of its having as a resource that can provide not only specific economic effects, but also serve as a factor in developing and enriching the human personality, forming the basis of his intellectual development. 3. Origin of the right to information and the rules of public international law Access to information is a fundamental human right, because in order to fully conscious, rational decisions subtract p, the individual must have knowledge of the surrounding world and the provisions adopted by other entities, which may affect its fate. It seems to be obvious that the tendency to possession of information is a natural human need and the access to it, because of its importance, is now an inherent condition of civil society (Winczorek, 1996, pp. 170-171) treated in European countries as a standard (Jaśkowska, 2002, p. 1). The Supreme Administrative Court in its resolution of 11 April 2005 (I OPS 1/05, OSAiWSA 2005, No. 4, pos. 63) has rightly pointed out that the right to information is to enable real participation of citizens in public life, but also serves openness public life, commonly referred to as the transparency of public authority and persons performing tasks that power. The law is also used to control the operation of civil authority. The right to information is therefore associated with the development of democracy, but democracy understood in institutional terms - parliament whether the right to vote - but most of all as an opportunity to consciously participate in the life of the community (Szustakiewicz, 2008, p. 13). In psychology it is emphasized that suspension of the information flow in humans causes a feeling of isolation, leads to confusion, stupor, makes an impression on him useless, which in turn means that it becomes vulnerable to manipulation, it loses the ability to think for themselves (Zalewski, 2001, p. 112). The origins of the right to information in the modern world are associated with the development of democratic institutions. Pioneer solutions in this area had Sweden, where an appropriate adjustment in 1766 was adopted (Aleksandrowicz, 2002, p. 11). Later, solutions for the access of citizens to information appeared in the American Declaration of Independence (1776) and the French Declaration of the Rights of Man and of the Citizen of 1789. The right to receive information and to use them was then associated with freedom of expression and press releases. Further extension of the right to information - no longer merely combined with the press, but the privilege of any person to receive information about the activities of state institutions - is associated with the development of international institutions after World War II. The first document in this respect was the Universal Declaration of Human Rights adopted by the United Nations General Assembly December 10th, 1948 (Kocot and Wolfke, 1978, pp. 97-209) . Article 19 of the Declaration states that “everyone has the right to freedom of opinion and expression, this right includes freedom to hold opinions without interference and to seek, receive and impart information and ideas through any media and regardless of frontiers.” This statement leaves no doubt that the right to the desired information is one of the human rights of everyone from the fact of being a human being. The problem of restrictions on the exercise of this right was to normalize the overall formula of Article. 29 section. 2 and 3 of the Declaration according to which “in the 590 | exercise of his rights and freedoms, everyone shall be subject only to such limitations as are determined by law solely for the purpose of securing due recognition and respect for the rights and freedoms of others and of meeting the just requirements of morality, public order and the general welfare in a democratic society. These rights and freedoms may in no case be exercised contrary to the objectives of the principles of the United Nations. “ The declaration, though not a legally binding, has become an important benchmark of international legislation, including the Convention for the Protection of Human Rights and Fundamental Freedoms, adopted by the Council of Europe at Rome on 4th of November 1950 (Acts Laws of 1993 No. 61, item. 264, as amended. d) and the International Covenant on Civil and Political Rights, adopted in New York on 19th of December 1966 (Acts. Laws of 1977 No. 38, item. 167). In both of these acts occurred the provisions constituting the right to information as a fundamental human rights. Article 10 paragraph. 1 of the Convention states that “Everyone has the right to freedom of expression. This right includes freedom to hold opinions and to receive and impart information and ideas without interference by public authority and regardless of frontiers (...). However, article 19 paragraph. 2 of the Covenant states that “Everyone has the right to freedom of expression, this right includes freedom to seek, receive and impart information and ideas regardless of frontiers, either orally, in writing or in print, in the form of art, or through any other media of their own choice. “The law however does not carry absolute. It is for this paragraph. 3 presented an article which says that “the implementation of the rights provided for in paragraph 2 of this article carries with it special rights and responsibilities. It may therefore be subject to certain restrictions, which should be such as are provided by law and are necessary: ​​respect for the rights or reputations of others, protection of national security or public order or public health or morals.” It was a new solution that does not involve the right to information, the issue of freedom of the press, but pointed to the individualization of rights (Sitniewski, 2005, pp. 19-22). However, as noted by Tomasz R. Aleksandrowicz legislation does not expressly refer to the right of citizens to obtain information on public matters, and so when it comes to the functioning of the government, their intentions, and so the decision making process, then they do not relate directly to access to public information (Aleksandrowicz, 2002, p. 29). Their primary task was therefore quite right to the free exchange of ideas and information - on any subject - between people. Instead, they impose the obligation of public authorities to provide information on their own performance, but of course such a right can be provided out of these provisions (Aleksandrowicz, 2002, p. 29). A more balanced approach to the international provisions would have to be considered as a condition of openness in public life, public space filled with the activities of public authorities and public office holders. Guarantees for citizens to obtain public information found only in the Recommendation of the Committee of Ministers of the Council of Europe on access to information held by public authorities (Recommendation of the Committee of Ministers of the Council of Europe Recommendation No. R (81) 19 of 25 November 1981). The actual development of the right to public information was only in the nineties of the twentieth century due to the deepening and acceleration of the process of European integration (Kondak, 2007, p. 81). The European Union recognized the right to information as one of the fundamental rights of the citizens of both countries forming the Community, and any natural or legal person residing or having its registered office in a Member State. This principle is based on Article 255 of the Treaty establishing the European Communities, jurisdiction is the one establishes a right of access to European Parliament, Council and Commission. Provisions of art. 255 EC were then developed in Regulation No 1049/2001 of the European Parliament and of the Council of 30th of May 2001 regarding public access to European Parliament, Council and Commission . As it is clear from the preamble, the purpose of the regulation is to increase the knowledge about the activities of the Community of entities entitled to receive information and greater transparency in the functioning of the Union (Czarnow, 2007, p. 115). | 591 4. The constitutional regulation of the right to public information Chapter II of the Constitution of 1997, entitled “Freedom, rights and duties of man and citizen” includes a very extensive, but very important - especially for functioning of a civil society the part that regulates freedom and political rights. This part of Chapter II contains the freedoms and rights of already known in Poland earlier adjustable in previous constitutions and applied in practice. The weight of these regulations is high, and it results from the priority for political freedom and the right to play in the implementation of such a fundamental principle of the political state as the principle of the sovereignty of the nation. Bogusław Banaszak defines freedom and political rights as an entity with the tools to ensure active participation in the government of the country in shaping its policy (Banaszak, 2002, p. 28). It should be emphasized that the described freedom and related rights are clearly in a state with a democratic political system. By analyzing the doctrine one can find the distinction of political rights: political rights in the strict sense and political rights in the broad sense (Nowak, 1988, pp. 11-14). The purpose of the first category is to provide the possibility of complicity in the institutionalized forms of influence on the will of state policy (these include: the right to public information, the right to vote, the right to vote in the referendum). The second group includes distinguished political rights and socalled strict sense of political freedom, which includes freedom of assembly and association. Issues of access to public information emerged in the discussions on the draft constitution. During the work on a new constitution that seeks to use the achievements of international law. In accordance with Article 61 Paragraph 1 of Polish Constitution of 2 April 1997 ( Acts. Laws No. 78, item. 483) “citizen has the right to obtain information about the activities of public authorities and persons exercising public functions”, also “the activities of self and work, as well as other persons or organizational units in the field in which they perform the duties of public authorities and manage communal assets or property of the State Treasury. “ Article 61 paragraph. 2 of the Constitution adds that “the right to obtain information shall ensure access to documents and entry to sittings of collective organs of public authority formed by universal elections, with the possibility of recording audio or video.” Paragraph 3 of this article concerns the reasons to limit this right, which should be “determined by the laws to protect the freedom and rights of other people and businesses, and the protection of public order, security or important economic interests of the state”, and paragraph. 4 take the procedural aspects and statutory autonomy is an expression of the parliament, which was allowed to self-regulate the issue of the provision of information mode . In accordance with Art. 61 paragraph. 4 of the Constitution of 1997, the course of providing the information referred to in paragraph. 1 and 2, determined by the laws, and in relation to the Sejm and the Senate by their rules. It should be noted that the constitutional provisions which guaranteeing the right to public information can be used directly and are enforceable on the basis of the general rules of art. Paragraph 8. 2 of the Constitution (See. judgment of the Supreme Administrative Court of 30 January 2002, II SA 717/01), although the access mode should be specified in the acts of lower rank, as provided in the Articles. Paragraph 61. 4 (Zaremba, 2009, pp. 15-16) . The Constitution refers to the global trend of constitutionalization of the right to information, but included in the art. 61 does not have any historical Polish counterpart in the Basic Law. As stated by the Supreme Court in its judgment of 22 January 2003 (I KZP 43/02) should note that the Constitution of 1997 for the first time on the basis of Polish constitutional grounds specified in both freedom of the press, speech and expression and the right to information. So far, despite international commitments, freedom of press and of expression was merely semantic, the right to information was limited and only had the parties and other participants in the proceedings, and amounted to an obligation to inform the authorities of the proceedings in which they have an interest. The right to information is becoming a hallmark of many modern constitutions, especially 592 | in the countries of Central and Eastern Europe, for which it is a symbol of transformation in relations between unit and the State into a quite different model (Bednarczyk, 2008, p. 24). In the countries of real socialism, the state apparatus not only decide on the freedom to disseminate information, but also distributed knowledge of their own business (Klesza, 2006, p. 191). The right to information is the result of a constitutional amendment to establish the concept of axiology and individualistic. It means recognition of the need of acquiring, collecting, recording and processing of information by the unit (Górzyńska, 1999, p.21) . Obtaining public information included in the Constitution is a civil right. Therefore, the legislator made a distinction between “law” and “freedom”. The granting citizens the “right” to be informed means that the legislature is empowered to regulate all forms of the exact use of this “law”. Citizens can not at the same time go beyond the ability to act upon them (Chmaj, 2002, pp. 11-13) . With much wider dimension is “freedom.” The doctrine of constitutional law is dominated by the view that the concept of “freedom” to refer to the individual possibilities afforded independent and free of conduct according to his own will, autonomous choice of behaviour. Freedom is not clear so the will of the state, expressed by the law in the sense of the present, its source is the very essence of human nature. The unit uses the freedom thus hopes that it will be guaranteed the freedom to determine their behaviour. Duty of the state is failing to take action that would constitute interference in the sphere of behaviour within the scope of a particular freedom. Basic requirements of social life, however, justify a legislative activity in the rationing of freedom and the establishment of the framework, which citizens must not be exceeded. The constitutional right to public information of public character took on a subjective (Jakimowicz, 2002, p.174) the right of a citizen of a political nature, ensuring that citizens can effectively require public authorities to conduct, enforceable - if necessary - by the relevant institutions of process (Sokolewicz, 2005, p. 5). Literal wording of Art. Paragraph 61. 1 indicates that the right to public information is a civil right. The Constitution provides that “a citizen has the right ...”. Therefore it should be considered that the Basic Law, granting the right to information, limited them to only those individuals who have Polish citizenship, except it both legal and other entities without legal personality, as well as individuals who do not have Polish citizenship (Juchniewicz and Kazimierczuk, 2008, p. 136) . Opposite view, declaring that beneficent of the right of access to information in addition to the Polish citizens are also other entities, including legal entities which are under the jurisdiction of the Polish law, took Mariusz Krzysztof Jablonski and Convenience (Jabłoński and Wygoda, 2002, pp. 107-110) . The authors emphasize that the extended scope of art. 61 paragraph 1 speaks, inter alia, that the statutory regulation, which is the development of constitutional norms, broadly conceived directory entities addressed the right to information. Article 2, paragraph. 1 of the Act of 6 September 2001 on access to public information (Journal of Laws No. 112, item. 1198, as amended.) states: “Everyone shall be entitled, subject to paragraph. 5, the right of access to public information (...) “. Evidence of this use by the legislature of the normal return “everyone”. Therefore, any person falling under the jurisdiction of the Polish state, regardless of whether it is individual or organizational unit, may apply for the implementation of its right to public information (Tarnacka, 2003). Provision of Art. 61 of the Constitution should be seen in the light of the common for the whole of Chapter II of “general principles” relating to freedom of the citizen’s rights and responsibilities (Szmyt, 1999, p. 68). It means admissibility of restrictions on the right to information under the terms of art. 31 paragraph. 3 of the Constitution. The wording of that provision that the restriction of constitutional rights and freedoms may be: - only by law; - if it is necessary in a democratic state of law; - for the protection of one of the following values: safety, public order, the protection of the envi- | 593 ronment, public health or morals, freedom and rights of others; - restrictions should not affect the substance of the rights; - restrictions must be proportionate to the need to protect the threat Superior good. The right to public information primarily related to freedom of expression enshrined in the Constitution as freedom of expression and the acquisition and dissemination of information in general, especially through the media (Bidziński, Chmaj, Szustakiewicz, 2010, p. X) . The scope of the freedom of information is of course broader than the right to information (Sokolewicz, 2005, p. 9). The practice enhances systemic forms of the learning activities of the public authorities, which should be regarded as a very important element of conscious participation of citizens in public life and the implementation of the principle of sovereignty by the people. Thus, the right to information about government activities is an important part of public life and public control over the activities of bodies and authorities (Skrzydło, 2009, p. 65). 5. Journalistic right to public information The statutory right to obtain information is one of the fundamental guarantees of press access to information. Agreed that because of the art. 11 of the Press act, journalist (and not, as under Article. 61 of the Constitution - each) is entitled to obtain information on the activities of organs included in the public finance sector. The Public Finance Act provides that public finance  sector  consists of: 1)   public authorities, including government bodies, bodies of state control and protection of the law and the courts and tribunals; 2)   local government units and their associations; 3)   budgetary units; 4)   government budgetary establishments; 5)   executive agencies; 6)   fiscal management institutions; 7)   state funds; 8)   Social Insurance and funds managed by it and the Agricultural Social Insurance Fund and the funds managed by the President of the Agricultural Social Insurance Fund; 9)   The National Health Fund; 10)   independent   Public   health care; 11)   public universities; 12)   Polish Academy of Sciences and its organizational units; 13)   state and local cultural institutions and public institutions movie; 14)   other state or local legal entities established under separate   set   to complete tasks   public, with the exception of companies, research institutes, banks and commercial companies. Thus, the journalist has the right to obtain from the heads of these units, their deputies, spokespersons (if such exist in the unit) or other authorized persons information about their activities (Article 11. 2 of the press act) From Pilate example spokesman is required (within the limits of his duties) to provide only information about the activities of the body, and not opinions, comments and information provided on its own behalf by the Ombudsman. This view is expressed, the Supreme Court in its judgment of 15 April 2004, IV CK 275/03, LEX No. 585860. In addition, department heads are required to facilitate a journalist gathering information and 594 | contact with employees (Article 11. 3 of the press act). On the other hand, against the background of those provisions of the press law also emerges from the head of the right to designate the persons “obligated” to official con tact with the media or the definition of the persons shall be prohibited from contact with the press. However, in case of employees referred to in Article. Paragraph 11. 3 of the Press act, while not performing a function, as referred to in art. Paragraph 11. Press release 2 of the ego, there is no obligation to provide any information the press and opinion and the reconciliation of the conversation with reporters. “Privates” workers, as opposed to employees referred to in art. Paragraph 11. 2 of the press act (heads of units, their deputies, spokespersons) have the right, not the obligation of official contact with the media, contact on behalf of the entity for which they work. Every attempt to prevent contact with the journalists of these workers, however, are illegal and may be regarded as an attempt to suppress criticism of the press. Down criticism of the press, according to Art. 44 of the press law punishable by a fine or restriction of liberty.In the opinion of the Court (here: the Provincial Court of Appeal in Bydgoszcz) record specifies the mayor orders a person “only” allowed to come into contact with the media, is just due to the restrictive nature of art. 11 paragraph 1 called the press law journalistic right to information such as the right of journalists to contact the staff of certain business units, as well as the right of employees of these units to provide press information and express opinions about their business. Such limitation the right to obtain and provide the information is contrary to the law of the press (which the regulator required the annulment of the act, Judgment of the Administrative Court in Bydgoszcz on March 8, 2010, II SA / Bd 511/10, LEX No. 603375). As is clear from the judgment of the administrative court of Cracow journalist, go back to the person not designated to provide information does not justify a refusal to provide information and is a violation of the statutory duty to provide press information ( Judgment of the Supreme Administrative Court in Kraków on June 27, 1996, II SAB / Kr 36/96). In addition to the problem posed by to ask for information to unauthorized persons, a problem may be the very findings is not the concept of “public information”. As is clear from the judgment of the Administrative Court in Cracow “word” information “should be interpreted as the transfer of knowledge, certain statements regarding the facts - regardless of whether such claims public administration are consistent with reality or not. Understood as forms of information can be found in writing or orally. In general, however, the information with which every citizen has the right to be consulted, not based on direct contact with the reality of it interesting, but the description of the reality created by the responding authority. (...) The right to information can not be transformed into a power to conduct by any person as a function of the process almost as examination subject ( Judgment of the Administrative Court in Kraków on 28 February 2008, II SA / Cr 1292-1207, Legalis). Analysis of the law on access to public information in connection with art. 61 of the Constitution of Poland, speaks in favour of the view that the legislation is not clear either explicitly or implicitly, that public information can take the form of presentation, or inspect the object produced in the performance of the contract entered into by public authorities ( Judgment of the Supreme Administrative Court on 25 September 2008, I OSK 741/08, Legalis). Public information is any message created or referenced to the public authorities, as well as created or referenced to other entities performing public functions in the performance of tasks of public authority and management of communal assets or property of the State Treasury. Public information applies to the sphere of facts. It is the content of the documents produced by public authorities and entities other than public administration, the content of speeches, opinions and assessments made ​​by them, regardless of the entity to which it is addressed and how things relate. Public information is therefore content any document relating to a public authority, the associated, or in any way related to him. They are both the content of the documents it directly produced by the body, as well as those that are used in the implementation of the tasks provided for by law (including those only in part to it), even when they do not come directly from it (​​Judg- | 595 ment of the Administrative Court in Warsaw on September 2, 2009, II SA / Wa 696/09, Legalis). Mandatory obligation to provide information to the press in practice boils down to the creation of only journalists an opportunity to review the information. Request the press so a continuous supply of documents or materials by the obligated to inform the press about his activities beyond the scope of this obligation (Judgment of the Supreme Administrative Court in Warsaw on February 23, 1999, II SA 73/99) . But it is hard to agree with the statement that any lack of objectivism of questioner does not fit in the catalogue of reasons justifying the refusal to provide information ( Judgment of the Administrative Court in Warsaw on November 7, 2007, II SA / Wa 749/07).   The primary duty of the journalist is in fact acting in accordance to professional ethics and rules of social interaction, and within the limits of the provisions of law (Article 10. 1 of the press act) and especially the behaviour of special care and accuracy in the collection and use of press releases (Article 12. 1 point 1 of the press act). Lack of objectivity on the part of journalist violates such principle audiatur et altera pars (please listen to the other side) . Properly implemented rule allows the caller journalist for attaining two objectives: ensure protection of the interests informant (the caller), and provides the public with access to diverse information. Moreover, as noted by the Supreme Court in its judgment of June 2, 2011, in the freedom of the press can not be understood as a right to communicate to the public the facts inconsistent with reality, the consequence of which is to put certain people in false, detrimental to their personal view, for no particular reason. It is not in the interest of citizens to be familiar with press releases that the false facts distort reality, misleading, and thus undermine the confidence to press communications. Both freedom of the press and the right of citizens to information, are not absolute, as they should be appropriately weighed individual’s right to a fair presentation of its activities, which are subject to public judgment ( Judgment of the Supreme Court on June 2, 2011, I CSK 548/10, Legalis). Circumstance justifying unfairness and lack of objectivity of the journalist is not the fact that a journalist working for the “tabloid” (“tabloid”) pointing to the sensational topics. Tabloids are newspapers. Neither the Penal Code nor the press law stating that the rights and duties of journalists, nor any other act does not make a distinction between the standards to be met by a serious newspaper headlines, addressed to educated reader and those requirements, which must reply letter popular, sensation seeking, including the tabloids (Judgment of the Supreme Court dated 29 May 2008, the second KK 12/08, LEX No. 448953). Press can sometimes instruct, moralize, but it must also be remembered that they are moralizing intentions voivodship borders parent values ​​associated with the individual human being. However, it can not be denied in the press and social and educational values, they show negative social phenomena, social anomalies can not occur at the expense of honour and peace of individuals, whose personal face breach of them ( Judgment of the Court of Appeal in Katowice on 13 July 2007, I ACa 439/07, Legalis). The press is also in accordance with the art. 6 of the press act, entitled to criticism (of course, only in real) state agencies, state enterprises, other state agencies and cooperatives, trade unions, local government and other public organizations that are required to respond to the criticism passed, not later than a month. Often, however, the authorities required to provide an answer at all, or give the time and how unsatisfactory editors. No response to the criticism is tantamount to denying the award of the information, and is subject to appeal to the administrative court, but not when the answer is unreliable, incomplete (See Supreme Court resolution dated August 19, 1987, III AZP 2/87, “OSNC” 1998 No. 2-3, pos. 25 and the judgment of the Supreme Administrative Court in Warsaw on September 29, 1999, II SA 1397/99). Often, journalists mistakenly consider refusal to an application for accreditation to participate in a mass event identical with the right to request for press release (in accordance with art. 4 of 596 | the press act). Refusal of accreditation, according to the order but the NSA in Warsaw on October 30, 2008, should be considered as public event organizer right to free choice of media representatives interested in participating in the event on privileged terms, and as such is not subject to jurisdiction of the Administrative Court (Order of the Supreme Administrative Court in Warsaw of 30 October 2008, I OSK 955/08, LEX No. 515400 and the provisions of the Administrative Court in Warsaw on April 24, 2008, II SA / Wa 1536 to 1506, “ONSAiWSA” 2010 No. 1, pos. 13th). ‘Accreditation’ is a concept different from the term “press release” and therefore the refusal to grant accreditation is not the same as refusing to grant release. For the journalist in this case there is no longer any possibility to bring an action against a refusal to grant accreditation as a refusal to provide the information the press (on the basis of art. 4 of the release) with reference to the protection of personal data and the right to privacy complains to the administrative court, and refusal of the press information under Article. 3a of the press act and art. 22 of the act and the Access to Public Information complains to court. In this context, it is worth considering the form of the request for release. This information is always provided at the request of and in addition are instantiated, i.e., one that clearly defines the scope of the desired release. There is no doubt that the press release relates to the sphere of facts, not opinion or comments (as is the case with public information). Speaking therefore a request for a press release, an authorized person should so determine the scope of the information requested to be able to even consider his application and to provide such information. First of all, the application must be sufficiently detailed to the entity required to provide the information could determine what specific information remains an issue of concern to the applicant - the press, i.e. what “slice” business entrepreneur and an unaccredited subject to public finance newspaper wants to know. In other words, the request for information is a press request for access to the facts, and thus to what happened in business or in connection with the entity responsible for the provision of information. In the opposite case, because the entity required to provide the information could not fulfil art. 4 of the press act. Both the press law in art. 4, as well as in pond with access to public information in the art. 5 (in connection with Art. 3a of the press act) defines it grounds for refusal to provide information to the public. However, according to the ruling of the Constitutional Court of 18 April 2012, the limitation on the right to information due to the important interest of the State is inconsistent with the Constitution of the Republic of Poland from 1997. However, the reporter can refuse to provide information for the protection of classified information, or other secrets protected (protected by law). Regardless of the discrepancies in the literature and doctrine acceptable reason for refusing to provide information such as a reference to the “trade secret” (or another “trade secret”), or any information in relation to which the trader has taken steps to preserve its confidentiality. The protection of privacy as a condition of the legality of the refusal of the reporter information (by entities not included in the public sector, non-profit organizations and private entrepreneurs) does not allow to preserve the secrecy of the identity of the person who acts on behalf of the entity performing public tasks  (i.e. legal entity local government units, Judgment WSA in Gorzow Wielkopolski on May 6, 2010, II SAB / Go 10/10, Legalis). In practice, the right to privacy can affect only individuals, not businesses, even if the individual carries on business under the surname (in the first place if it has the protection which the legislature granted to entrepreneurs). For the entrepreneur does not apply the concept of privacy ( Judgment of the Administrative Court in Warsaw on November 24, 2009, II SA / Wa 1584 to 1509, Legalis). The right to public information is also restricted because of bank secrecy. A request of a journalist to the tax office information such as a copy of an order concerning waiver of interest on arrears of tax on goods and services can not be met. According to art. 293 § 1 of the Tax Code the individual data contained in the Declaration and other documents filed by taxpayers or tax collec- | 597 tors are confidential ( Judgment of the Administrative Court in Warsaw on October 25, 2006, II SA / Wa 970/06, Legalis).   It often happens that the refusal to provide the information because of the Privacy Protect (Article 5, paragraph. 2 of the Law on Access to Public Information) is related to the performance of other acts (eg Art. 100 sec. 1 of the Act on Social Assistance). Regional Administrative Court in Wroclaw found that the dignity of the established case-law, pursuant to the provisions of the law on access to public information may be disclosed only collective data, and not from the point of view of a particular subject and the decision taken by the authority in his case. Thus, it is not possible to disclose information such as the journalist who specifically and how much Welfare Centre provided assistance (Judgment WSA in Wroclaw on November 4, 2009, IV SA / Wr 249/09, Legalis). However, regardless of the possible difficulties of obtaining bound by a journalist information must remember that the laws guaranteed (press law, the law on access to public information) or the Constitution of the Republic the right to obtain information from the press release is not an obligation to collect information on their own and even more does not entitle the shifting of the duties of the entities obliged to inform the press about his activities. Working journalists can not be reduced only to press demands continuous supply documents or materials by such spokespersons or other persons authorized to contact the press. As is apparent from the judgment of the Supreme Administrative Court in Warsaw on February 23, 1999 denial of such benefits (a constant supply of press materials, official documents, file) does not violate the constitutionally protected freedom of the press ( Judgment of the Supreme Administrative Court in Warsaw on February 23, 1999, II SA 73/99, LEX No. 1027357). Moreover, the journalist must keep in mind that the implementation of the press rights to obtain information on the following two ways: to provide information to the public (e.g. at a conference) or by providing relevant documents (at the request of the journalist). But one can not refuse to provide the information for investigative journalist, citing the fact that he demanded access to the entire file. Any other action involving the extortion of the entities required to provide information other behaviors are unacceptable. Newspapers, as it has been already said can critically assess the performance of individual players, but there is no such provision which requires state and local authorities to carry specific press lists, summaries and other studies ( Judgment of the Supreme Administrative Court in Warsaw on June 24, 1999, II, SA 686/99, LEX No. 46190). On the other hand, the constitutional right to information is a right of the citizen and the public is the guiding principle, and any of the exceptions should be interpreted strictly. If we assume that the right to information is a rule of interpretation of the Constitution, the laws determining the mode of access to information (Article detailing. 61 of the Constitution) should be interpreted in such a way as to guarantee that citizens (and not only) broad powers in this regard. As practice of public life shows there is large number of exemptions for access to public information resulting from the principle of lex specialis derogat legi generali (e.g. adoption of the primacy of the protection of personal rights of people using welfare of the public right to information may lead to a situation in which the public will not be able to control the legality and advisability of public administration activities. 6. Summary Public information concerns the realm of facts. It is the message created or recognized by public authorities, as well as created or referenced to other entities performing public functions in the performance of their tasks of public authority and management of public property or the property of the State Treasury. Therefore, access to public information creates man to supervise the surrounding reality and those who make this a reality. Law of the various actors of civil society that is controlling and evaluating those who have power and exercise authority. 598 | However, freedom of the press and the right of citizens to information, not absolute, as should be properly weighted, among others. the right of an individual to a fair presentation of its activities, which are subject to public judgment. Obligation to provide public information to the media boils down to in practice only to the creation of journalists an opportunity to review the information. They must remember that the laws guaranteed (press law, the law on access to public information) or the Constitution of the Republic the right to obtain information from the press release is not an obligation to collect information on their own and the more does not authorize the shifting of the duties of the persons required to report its activities. References Aleksandrowicz, T.R. (2002). Komentarz do ustawy o dostępie do informacji publicznej. Warszawa: LexisNexis. Banaszak, B. (2002). Ogólne wiadomości o prawach człowieka, in: Banaszak, B., Preisner, A. (red.), Prawa i wolnosci obywatelskie w Konstytucji RP. Warszawa: C. H. Beck. Bednarczyk, M. (2008). Obowiązek bezwnioskowego udostępniania informacji publicznej. Warszawa: Zakamycze. Chmaj, M. (2002). Pojęcie i geneza wolnosci i praw człowieka, in: Chmaj, M. (red.), Konstytucyjne wolności i prawa w Polsce, t. I, Zasady ogólne. Kraków: Zakamycze. Górzyńska, T. (1999). Prawo do informacji i zasada jawności administracji. Kraków: Zakamycze. Jakimowicz, W. (2002). Publiczne prawa podmiotowe. Kraków: Zakamycze. Jaśkowska, M. (2002). Dostęp do informacji publicznej. Warszawa: Zakamycze. Kazimierczuk, M., Juchniewicz, J. (2008). Wolności i prawa polityczne, in: Chmaj, M. (red.), Wolności i prawa człowieka w Konstytucji Rzeczypospolitej Polskiej. Warszawa: Wolters Kluwer. Kopaliński, W. (2005). Podręczny słownik wyrazów obcych. Warszawa: Oficyna Wydawnicza Rytm. Korpanty, J. (2005). Mały słownik łacińsko-polski. Warszawa: PWN. Motyka, K. (2001). Prawo do prywatności. Aspekty prawne i psychologiczne. Lublin: Oficyna Wydawnicza Verba. Pierzchała, E. (2010). O pojęciu informacji publicznej, in: Pierzchała, E., Wodniak, M. (red.), Dostęp do informacji publicznej w Polsce i Europie – wybrane zagadnienia prawne. Opole: Wydawnictwo Uniwersytetu Opolskiego. Sitniewski, P. (2005). Dostęp do informacji publicznej w jednostkach samorządu terytorialnego. Białystok: Wyższa Szkoła Administracji Publicznej im. Stanisława Staszica. Skrzydło, W. (2009). Konstytucja Rzeczypospolitej Polskiej: Komentarz. Warszawa: Wolters Kluwer. Sokolewicz, W. (2005). Komentarz do art.61 Konstytucji RP, in: Garlicki, L. (red.), Konstytucja Rzeczypospolitej Polskiej, t. IV. Warszawa: Wydawnictwo Sejmowe. Szustakiewicz, P. (2008). Dostęp do informacji na podstawie ustawy o dostępie do informacji publicznej, in: Gardocka, T. (red.), Obywatelskie prawo do informacji. Warszawa: Oficyna Wolters Kluwer. Szymczak, M. (1988). Słownik języka polskiego. Warszawa: PWN. Winczorek, P. (1996). Wstęp do nauki o państwie. Warszawa: Liber. Zaremba, M. (2009). Prawo dostepu do informacji publicznej. Zagadnienia praktyczne. Warszawa: Difin. | 599 600 | Paul Romaniuk University of Warmia and Mazury in Olsztyn [email protected] The right to public information, as the basis for control of civil Abstract The right to public information under Polish law is the possibility of insight into the issues not only public institutions, but also includes access to information in the field of social, political, or economic. The purpose of this article is to identify the legal possibility to access to public information. Of course, not all information may be disclosed to the public. It is here, for example, the protection of information entrepreneur, or the protection of classified information. Author indicates that most of the information held by public bodies, is not subject to any restrictions, and therefore has access to numerous large companies, both individuals and legal entities. The test method of the issues focused on a comparative analysis of legal regulations, supported by practical examples of access to public information. Moreover, the right of access to public information, is also related to transparency of the administration, which is a manifestation of the powerful ability to citizens to control such activities, being a manifestation of social control. Keywords: public information, control, control of citizens, access to public information, legal protection, public administration. 1. Introduction The right to public information is an important part of the Polish state law. Poland, as a lawabiding state, defines the rights and responsibilities of all entities operating in the public and private activities. In addition, shapes the relationship between all entities operating in the administrative and legal. The aim of the article is to present information in the field of public information, which is essential to the proper understanding of the main principles of the functioning of public administration. Access to public information, standardized both in the Polish Constitution, as well as regulatory legal acts, including the law of 6 September 2001 on access to public information. The following discussion will focus also on issues of social control over the functioning of public administration. Citizens increasingly expect people performing important functions in the structures of the public administration, which were chosen by universal suffrage, and representing the interests of their constituents that decisions and actions are taken in a correct and honest. 2. The essence of public information Modern access to public information, either through independent media and implemented independently, has become an indispensable tool and an attribute of democracy. He became a part of transparency in public life; the more control the representatives of the people, who exercise power on their behalf (Szewc, 2007, p. 45-87). You can easily see that today gathering information, mostly related to education and freedom of scientific research. Access to information resources, not only public, but also the world, it has become very simple and easy with the advent of new communication technologies. Their extremely rapid development has made the freedom to communicate, exchange ideas, and above all, knowledge acquisition ceased to be a privilege | 601 of the few. The use of any information resources is of interest to legislators - both national and international, in the Community. The freedom to acquire information and communicate with others is today regarded as one of the fundamental human rights, submitting, inter alia, the scope of freedom of expression. The right to access to public information in Polish law should be assessed as one of the fundamental rights as citizens. It is also a manifestation of the active participation of citizens in public life and politics. Fullest right is realized mostly at the lower levels of local government, which - by virtue of their legal location - opposite case involves people, their interests, different interests, and activities. Opportunities for access to public information at the same time makes it to the individual socialized - becomes an instrument to participate in shaping interpersonal relations (Zaremba, 2009, p. 45-76). This does not mean, however, that the rights enjoyed by citizens can also take the nature of the political struggle. You have to bear in mind also that the right to public information, in addition to purely informative, as most should also fulfill the task of social control (civic) activities of public authorities. The right to information is one of the main instruments to exert this kind of pressure, and the branches of government. Citizens also require the management to disbursement of public funds also meet the requirement of a reasonable approach, referring to the management of such resources as economically, purposeful, honest and reasonable. If, however, citizens recognize that the actions of these people do not meet their expectations, they can then, based on existing legislation - to be able to have access to all information and public decisions that determine how data management communities, local governments and administrations of the institutions of government, the central the chief. Often such actions often lead directly to show pathology in the exercise of such power. The issue of pathology in the contemporary operating public is undoubtedly an important topic, and will be the subject of discussion in another study together. Today I will focus on the identification of opportunities of social control, resulting from the ability to access public information. Most importantly, do not be afraid of this type of social control (civic). It needs to praise indeed, since the transparency of government - especially in the comfort of offices rulers - is in the interests of the general community and in the interests of power. This authority, respecting the right to receive and impart information, it should show its true intentions, capabilities, plans, but also indicate weaknesses. And as you know, this happens much differently (Aleksandrowicz, 2002, p. 65-87). It also gives ensure that the government will not be able to hide their failures and inability to govern. However, this may open up the social dialogue and begin participation of citizens in the exercise of power. 3. Legal basis for access to public information The right to obtain information is guaranteed in article 61 of the Polish Constitution (the Polish Constitution). According to this record, every citizen has the right to obtain information about the activities of public authorities and public office holders. This is an extremely important legal, are a manifestation determination by the legislature specified permission. The right to public information includes obtaining information about the activities of self and professional development. It also provides the ability to access information of other persons or organizational units to the extent to which they perform the duties of public authorities and manage communal assets or property of the State Treasury. The right to obtain information includes within its scope, inter alia, access to documents and entry to sittings of collective organs of public authority formed by universal elections, with the possibility of recording audio or video. Indicated above article 61 of the Polish Constitution is also a kind of guideline interpreta- 602 | tion. This means that the right to public information can rank of basic civil rights. Therefore, the provisions of the acts downstream should be read in accordance with the intention of the legislature. However, the very notion of public information will be subject to broad interpretation rather sooner than narrowing. It is also imperative that the right to receive information is also derived from article 10 of the Convention for the Protection of Human Rights and Fundamental Freedoms signed in Rome (Convention for the Protection of Human Rights and Fundamental Freedoms). Broadly defined civil liberty on the expression of opinion has the right to obtain public information, allowing the free flow. However, the basic act of governing in a complete issue of access to public information is the act of 6 September 2001 on access to public information (law on access to public information). Interestingly, this act uses the term “everyone” as entitled to request information, and thus not only the citizen. The right to public information includes the right of citizens and other stakeholders to make use of public information. Legislation in this area can be found in article 3 of the law on access to public information. On the basis of this provision, the citizens, using the power of control by citizens, have the right to:  obtain public information, including information processed to the extent to which this is particularly important for the public interest;  access to official documents;  attend meetings of the collegial organs of public authority of universal suffrage. Importantly, the right to public information shall include the power to immediately obtain public information containing the current knowledge of public affairs. The issue of identifying the concept of prompt and public information governed by article 13 of the law on access to public information (law on access to public information). Providing public information at the request shall without undue delay, but no later than within 14 days from the date of filing. If, however, public information can not be made available within 14 days, the operator shall make available to her, it shall within that period, the reasons for the delay and the date by which provide information, but no later than two months from the date of filing. 4. Aspects of public information Article 1 of the law on access to public information indicates that any information about public affairs is public information and is subject to availability of and use of the principles and procedures laid down in the act (law on access to public information). The primary, so the determinant of the concept of public information is the issue of the so-called public affairs. It refers to the activities of a public authority in a very broad sense. We here indicate activity imperious, Organizing, and civil liability. Public information is both every action of public authority under the action of a decision to the tasks of the public administration and all activities of an economic nature which are made by legal persons or other entities, provided that such action fell within the category of public affairs. The definition of public information referred to the Supreme Administrative Court, stating that it should be considered for the information produced by the public authorities and persons exercising public functions and other entities that perform public functions or managed by public property, as well as information relating to those authorities, individuals and other entities, regardless of by whom they were created (Judgment of the Supreme Administrative Court of 30 October 2002, II SA 181/02, judgment of the Supreme Administrative Court of 20 October 2002, II SA 1956/02 and the judgment of the Supreme Administrative Court of 30 October 2002, II SA 2036-2037/02). | 603 Thus understood public information, it must provide coverage include virtually all the activities of public authorities. It is hard to imagine that the actions of public authorities were not available to the general public. There is no place to hide public information (like non-proprietary) to the citizens. There is also space for blocking the flow and the use of barriers which would prevent its flow. Exceptions are limits, of course, beyond the constraints of other rights and civil liberties and national security - under article 5, paragraph 1 and 2 of the law on access to public information (law on access to public information). According to these regulations - the right to public information is restricted in scope and under the terms of the regulations on the protection of classified information and the protection of other secrets protected by law (law on the protection of classified information). Moreover, the right to public information is restricted because of the privacy of a natural person or a trade secret. This limitation does not apply to information on persons performing public functions, related to the performance of these functions, including the conditions of entrusting and performing these functions, and if the person or entrepreneur to forgo their right. Public information, in accordance with the law on access to public information is, therefore, among other things:  content of administrative acts (decisions, decisions, acts of public administration);  draft resolutions and the resolutions of the governing bodies of local governments (law on the publication of normative acts and certain other acts);  content of audit documentation and any position that took a public official in public affairs;  information on the functioning of local governments and their entities: organization and powers, authorities, mode of operation, how to receive and deal with any matters, handled state affairs, and the order of their consideration;  information about the recruitment of candidates for the vacant post of clerical;  information on the status of local governments and their agencies;  content of civil agreements and settlement and the content of decisions in public affairs. 5. Types of civic control The right to control citizens, it is also very important that everyone enjoyed the right to assess and analyze the situation. The legal environment shows special connection between the right man and the right man to control citizens. Citizen control is the foundation of any democratic development of the rule of law. Poland has more than 20 years is regarded as a legitimate, democratic state that in their legislation gave the possibility of direct and indirect influence on the way of governance in all levels of public administration management. The term social control (citizens) has been formulated by the American sociologist Edward Alsworth Ross in the nineteenth century, in 1890. It was not until 1901 he published his most famous work called Social Control. E. Ross separated the social control of social impact. However, the criterion of taking the desired impact assessed the control of citizens in terms of social influence. Generally speaking, control functions at different levels of society and involves all of us (Jagielski, 2012, p. 34-51). Citizen control is the emphases on the individual communities have to bring them to survive according to a specific prohibition or injunction. It is a complex system of psychosocial mechanisms that correct knowledge can contribute to the understanding of the functioning of public administration (Wierzbowski, 2001, p. 102-108). It is worth noting that the control of citizens is primarily a system of many orders, prohibitions and sanctions. These activities are aimed at a particular group or community to maintain conformity to known and held values. Moreover, the theory of social groups, civic control is usually 604 | considered as a set of tools and measures the general populations, which are aimed at ensuring its integration. It is also to subdue all members of the standards group, which has not always been easy or acceptable. Citizen’s control is also offered various types of negative and positive sanctions. This is a legal action, economic, ethical, which depend on the type of community. It is worth noting that in contemporary European societies prevailing civic control. It is based largely on the respective national legal system and the judiciary. To display different may indicate that in primitive societies played a crucial role above all moral sanctions that had no regulation in the legal norms. The polish legal system can be divided into several types of civic control. These include:  formal control type - to be covered in the rules of the various organizations, professional associations, whether in state legal codes;  type of informal control - includes any patterns of behavior that are or may be provided through interpersonal relations with separation of all sanctions, however, used spontaneously and on the basis of custom;  type of external control - it’s all kinds of penalties and rewards;  type of internal control - it is locked with the outside world and can lead to the manipulation of information that is sometimes dangerous tool in the proper communication process (Hauser, 2008, p. 45-76). In the current legal situation, not every organization needs to be an organization that acts as protective of their resources. These, however, that can play such a role - can be implemented in very different ways. Starting from the control even indirectly (single), which concerned citizen who sees illegal activities or contrary to the public interest - the usual response to such manifestations of public administration. Often, therefore, these are actions that do not always have their reasons of substance. They have no legal basis, and sometimes that happens more and more often only due to the lack of sufficient knowledge of the citizen. This does not mean that the nature of the control is less important. And we know that concerned citizens, his steps can often be much more efficient than specialized public institutions of control. Such actions on the part of citizens indicate that they indicated the problem could be undetected or treated as a matter of course, on what you should pay attention (Jagielski, 2012, p. 104-132). Another type of control can be control civil investigation. It is particularly distinctive and visible especially for the activities of so-called third power, the media (newspapers, radio, television), whose main purpose is to prove guilt and failure and breaking the law. Experience shows that some investigative journalists, specializing in the fight against pathologies in public administration and human rights not only moving to a broader surveillance, but also willing to challenge journalists whose goal is to prove violations of the law. An example of an investigative audit are parliamentary committees of inquiry, which are designed to eliminate bad practices that adversely affect the public image and reduce the level of public confidence in these institutions. Another form of control is the monitoring of citizens, which assumes sequential study of a selected area of public administration. This is to ensure the provision of objective, whether and to what extent there is a violation of the law. 6. Citizen control - practical aspects Citizens using their rights are increasingly using these opportunities to directly or indirectly influence the decisions taken by the management. The greater this knowledge, the more efficiently it can be used in practice. You must be very strongly emphasized that the sittings of collective organs of public authority formed by universal elections (municipal council, city council, county council, council of the province) are open and available. Meetings of the auxiliary bodies are open | 605 and available, provided that it is specified in laws or measures adopted on the basis thereof or the subsidiary body so decides. Citizens are increasingly aware that public authorities at all levels of management are required to ensure that the premises and technical measures to allow the law relating to access to meetings of collegial public authorities. However, there are restrictions on access to meetings of bodies that result from the premises or technical reasons (law on access to public information). It is known that the obligation under the public information available is undoubtedly a very important and not always respected by the public authorities. Observe, however, that public officials are increasingly aware of the obligation to state facilities and provide public information. The consequences of failure to do so results directly from the law on access to public information. He talks about art. 23 of the law on access to public information. “Who, contrary to the obligation imposed on them, not make public information available, the penalty of restriction of liberty or imprisonment for a year.” The consequences of failure in the transmission of information to the public can not be too large, and the real possibility of criminal law, is the part that nevertheless becomes a tool for public officials doping in respecting and complying with the law. In addition to criminal liability a person who has illegally refused to provide public information might be liable to disciplinary or ordinal. Its behavior can also be classified as a felony violation of the fundamental duties of employees and support a solution to the person of an employee without notice (due to employee) on the basis of article 52 § 1 item 1 of the labour code (The Labour Code). Interestingly, the control of citizens may also be enhanced in various ways by institutions controlled. It is observed more often in informal control (without authorization procedures). Such control encounters a fairly significant reluctance to control. Worryingly, however, is that such control is not so much a treat as the solution to the emerging problem, but unfortunately, as a trial of strength. It is known that the position of the inspection is relatively stronger than the controlled entity. However, the former often use their advantage to settle their own affairs. Increasingly, we also have the opportunity to observe the inspection is accepted. It is a control in which the representatives of the institutions accept the right of control of social factors. Often treat such control as a necessary evil - but for your own peace and sanity - cooperate with the inspection. There are also cases where the control of citizens is part of a complete system of public administration. In this case, most often encounter the institutionalized control. It is focused on the appointment of various advisory bodies, monitoring and control, which invited representatives from the public. Although this form of control is often a term referring success, where representatives from the civic gain a real impact on the functioning of the institutions however, it can not entirely replace formal control, which is incorporated in the legal system of public administration (Hausner, 2005, p. 78-98). Noteworthy is also the fact that the lack of a strong legal regulations concerning the rules of the economic exploitation of public information - not to protect businesses from unfair practices. This is not only a situation in which the operator does not provide information to the public or gives them selectively. Does not apply to the circumstances where the public authorities to protect public databases against unauthorized use of unfair competition. If, for example, any state body forms the basis of official documents must strictly with its release set rules for the use of the database by other businesses. It may decide that any operator can such a database copy and distribute it, without any restrictions or subject to payment of a fee. It may also provide that the file may not be copied and distributed. The duty of the authority to settle the matter and inform the stakeholders about the content of that decision. If you do not, exposes companies operating in the market to unfair competition. Applies here also the Law on Personal Data Protection, which also determines the way, the entrepreneurs, but also other entities (including individuals), protect, change, remove, or make available to third parties (Law on the 606 | protection of personal data). Right and even informal obligation to contribute to civic control over public institutions are entitled, therefore, not only citizens, but also to organizations nominated by the public. These are non-governmental institutions, not classified to the general government sector, which the main emphasis focused on the wider support. Important is the need enacting the principles of openness in government at all levels of public administration management. This mechanism is an essential preventive measure against, inter alia, corruption, or other pathological phenomena in these institutions. This means, inter alia, incorporation of the principles of freedom of access to public information, including the real implementation of the provisions of the Public Information Bulletin. An important element of transparency is to strengthen the institutions of civic control, the independent non-governmental organizations that are committed to the goal of monitoring the functioning of the public administration, business at each of three levels: local, regional and central level (Ochendowski, 2009, p. 67-87). 7. Summary It seems indisputable that without a well-functioning communication between citizens and public authorities at all levels - making any system changes, and implementing reforms to the political system has no chance of success. It is recognized increasingly that the problems of ordinary citizens are for the government, unfortunately, far cognitive plan. Moreover, the ruling power is increasingly raises its privileges and restricts your own risk. This does not mean that this negative phenomenon encompasses the entire sphere of functioning of public administration bodies. They are after all public bodies that have successfully and legally carry out their tasks, set goals, and are fully responsible for their decisions. And for those public authorities who do not fully understand their public role, using his privileges, protection is an important link here civic control, which quite often is dictated by the need to respond to evil practices or expressions of pathology in public administration. However, one should also be aware that citizens do not always control is a direct result of improper actions by public institutions. In many cases, the activity of citizens in an effort to obtain public information, resulting from the opportunities offered by the law on access to public Information, motivated by the desire to gain important information. It can be used for scientific purposes, cognitive, consultation, or expressions in their position on the matter, based on reliable information obtained from public authorities. It is noteworthy that without the participation of citizens in the system and method of governance at all levels of the public administration; there can be no effective control of the public administration system and all its activities. In times of globalization must be remembered that not all the objectives set by public institutions are being implemented. Civil society can be a guide in monitoring progress in the work of government and business on the implementation of new laws. Citizens should have a level of trust in public institutions, but not always the case. Some people are aware that direct control of public institutions, including the process of using access to public information, it can give a greater sense of responsibility and the rule of law decisions by the highest public officials. The problem of control in modern public administration occurs on two levels. The first regards the control of the public institutions by others, and the second plane includes control that is exercised by the same public administration over others. Theorists and practitioners capture control of the organization of work, as a necessary area of the state functions related to management, management, administration and the exercise of power. Control in this approach is the fastest legal management to determine whether his subordinate administrative apparatus properly carry out its tasks. It also includes activities that have relied on the detection of abnormalities diagnosed and, if possible, their removal or neutralization. Control of civic, social administration is the | 607 control of public opinion, the press control, control of informal groups in the government apparatus. Citizen control diagnosed as activities residents over public institutions by making complaints and requests. Diagnosis of fact concerning the control of civic initiatives clearly shows that social activity is increasing and it is growing quite rapidly. We are seeing a growing public awareness that it is worthwhile to use the legal possibilities for the control of citizens, using regulations regarding access to public information. It becomes obvious, therefore, believe that the control of citizens - particularly at a time where ubiquitous internet gives you the ability to quickly share information (not just public information) and mobilizing and encouraging people to work together. The condition is only the desire of citizens from the use of such opportunities. The challenge, which is addressed in the next generation, becomes the development of civil society, which is based on building awareness of the right to information and the enforcement of the rights of citizenship. Observations, however, show that it is increasingly difficult to govern the exercise of power in a closed, uncontrolled by anyone and not taking into account in particular the needs of society. References Aleksandrowicz T. R. (2002),, Commentary on the law on access to public information, Warszawa: LexisNexis Hausner J. (2008), Public administration, Warszawa: Wydawnictwo Naukowe PWN Jagielski J. (2012), Government control, Warszawa: LexisNexis Szewc T. (2007), Public-information protection, Warszawa: C.H. Beck Wierzbowski M. (2001), Administrative Law, Warszawa: Issune IV LexisNexis Zaremba M. (2009), Right of access to public information. Practical issues, Warszawa: Difin The act of 2 April, 1997, The Polish Constitution (Journal of Laws No. 78, item. 483 ​​as amended). The Convention of 4 November 1950, for the Protection of Human Rights and Fundamental Freedoms (Journal of Laws of 1993 No. 61, item. 284 as amended) The act of 6 September 2001 on access to public information (Journal of Laws of 2001, No. 112, item. 1198, as amended) Judgment of the Supreme Administrative Court of 30 October 2002, II SA 181/02, judgment of the Supreme Administrative Court of 20 October 2002, II SA 1956/02 and the judgment of the Supreme Administrative Court of 30 October 2002, II SA 2036-2037/02 for M. Jaśkowska, Access to public information in the light of the case law of the Supreme Administrative Court, Torun, 2002, p. 28] The act of 5 August 2010 on the protection of classified information (Journal of Laws No. 182, item. 1228) The act of 20 July 2000 on publication of normative acts and certain other acts (Journal of Laws of 2011, No. 197, item. 1172 as amended) The act of 26 June, 1974, Labour Code (Journal of Laws of 1998. No. 21, pos. 94, as amended) The act of 29 August 1997, on the protection of personal data (Journal of Laws of 2002 No. 101, item. 926, as amended) 608 | Rudolf Kasinec Comenius University in Bratislava [email protected] Movies as a social source of information about human rights Abstract The paper presents actual problem in Europe and the rest of the world which is the violation of human rights and the accessibility of information about this problem. Creation of legal norms is still growing in EU. Consequences of this legislative inflation are the impossibility of the orientation in legal rules and the loss of people´s trust in legal regulation. Although there are many ways to find information about human rights today, the violations of human rights still exists in countries around the world. What is the best way to get proper information? In my opinion it is important to find a new source of information. New source must be available, easily distributable, and universal with a strong meaning. Movies are a modern source of communication. We can find a lot of interesting information in movies. People are constantly seeking for movies about human rights. These films have extraordinary informative value, which is appreciated by the audience and film critics. It is hard to choose really good movies today. Keywords: human rights, human rights violations, movies, source of information, genocide, slavery, prisons camp 1. Movie as a source of information “It may be a little problematic issue that the majority of the film production touches the Anglo-American legal system, which is reflected in them. Nevertheless, they still offer a useful tool for the illustration of various concepts of justice and they address to several substantive legal issues.”1 It does not really matter where the film about human rights was created. These movies have a universal character. Ordinary citizen, who behaves accordingly with law, is confronted in his lifetime only in minimal extent with judicial authorities. He follows more often the course of the litigation in the movie, series, or on television. In this media find the citizens information on law, on its service for society, about the threats of sanctions for the violation of the law and also some information about the procedural rights in civil or public trial. Films and other forms of art get into the position of the epistemic source of law - epistemological concept to the right source of knowledge. This concept is broader than the formally known concept. This is all of the law with its social reflections; a source of knowledge of the legal system based not only on laws, respectively on the precedents, international treaties, as well as decisions of public authorities’ intrinsic nature, individual legal acts, in particular law, contracts, corporate literature, documentation, etc. legislative procedure. Simple and natural way to such a large number of entities present significant information that may be relevant to the subjects because of their potential conflict with the law. 2. About human rights Many international and national documents show the protection and the need of the abidance of human rights. “Human rights are an issue both in theory and in practice. It is related with philosophy, ethics and history in theory. In practice, it is closely related with people’s life, and is | 609 becoming an increasingly sensitive issue in international relations.”2 Human rights have universal character. “When a right is said to be a human right, it is quintessentially general or universal in character, in some sense equally possessed by all human beings everywhere including in certain instances even the unborn. In stark contrast to the divine rights of kings and other such conceptions of privilege, human lights extend in theory, to every person without discrimination.”3 Human rights are part of moral system in boundaries of natural law. It exists a lot of topics about morality (e.g. the philosophy of Ronald Dworkin, who “considered both, the morality and the law, as objective phenomena, among which is located a continuity on the epistemological level.”4 Human rights have some specific characteristics: 1. Universality- means that human rights goes along with the progress of human society and has always been a universal concern of human beings in various historical periods. 2. Particularity- Everyone enjoys a particular period of lifetime and particular living space. Therefore, the illustration of human rights is different in both time and space, thus the emphasis and forms of human rights protection are concretely different. 3. Expansion (in three aspects): a) Influenced by scientific, technological and social development, the extension of human rights will be expanded. b) People’s acknowledgement of human rights, that is the concept and theory, are perfected and expanded as time goes by. c) With the development of society, the common requirements for human rights will be expanded. 4. Relativity- human rights concerns with relations between people and people. The rights of individuals Coexist and contradict each other, and therefore, the human rights of an individual is limited relative to others’ human rights and collective human rights.5 “World War II saw such predations by the Japanese in China, Korea, and elsewhere in Asia; by the Germans from one end of Europe to the other; by other Europeans, such as the Croats´ exterminating of Serbs and others; and by the Americans in Hiroshima and Nagasaki. These constitute a spate, geographic scope, and variety of mass annihilation unequaled during our or any time.”6 Numerous movies have been created on these sad episodes in human history. 3. Movies about human rights “Human rights are a modern concept, yet they are an integral part of human history. Finding examples of human rights abuses is easy throughout history, from the ancient world to the modern one. “7 Also the movies are a new source of information and nowadays exist quite lot of movies considering human rights, especially on the violations human rights. We can find movies about the first generation8, the second generation9 and the third generation10 of human rights. In my opinion the most important is the subject of the first generation of human rights and the movies which talks about civil rights and political rights. We can also find the Universal Declaration of Human Rights in movies11- all of its articles are part of different movies. Movies are a specific tool (instrument) for shaping human opinion. They can be used for right or bad purpose. “It is not easy to differ between good and evil…. That is also one of the main reasons why is it so difficult to find an appropriate respond to the human rights.”12 There is a large group of movies - documentary movies, mini-series, TV-series and independent movies and on the other hand there exist a smaller group of movies - popular movies played in cinema and TV (produced by Hollywood famous filmmakers and big movies studious). Many 610 | people watch these movies. Big money with big star makes a great success which is very important for presentation. Movies awards are important too. Most precious award is Academy awards (as called Oscars). Movies about human rights violations are popular between writers as they can create a powerful story based on such an actual events. We can find a many examples in academy award history - movies which include holocaust, 2nd war prison camp, genocide, slavery, oppression of minorities, poor working conditions and many others. The characteristics of movies about human rights: 1. Universality - movies like methods of communication. They communicate with viewers in different countries in the same way through the video and sound. 2. Available to a large number of people - people can watch movies in television, theaters, on the internet, mobile phones, tablets, DVD and Blu-ray recorders. 3. Based or inspired by real events - life is a creator of the most powerful stories. Consequently the screenwriters can write exquisite script and then director can create a prize-winning blockbuster. 4. Popularity between people - everybody likes true stories. This group of movies is close to people. 5. Awarded by movie prices - many of human rights movies were awarded or nominated to various movie prices around the world. 4. Violations of human rights in movies “Can the horrors of the Holocaust be filmed without trivialising them? Can life under fascism be filmed without showing images which everybody has seen before? Steven Spielberg came up whit one solution in his film about the German industrialist Oskar Schindler. The story he tells is unique, eccentric even, but the message is crystal clear: responsibility cannot be passed on to someone else, but is always a matter for the individual.”13 Steven Spielberg is not the only director who could create an interesting film about human rights. We are able to recognize a large number of movies about genocide, slavery, racism, political prisoners, and war conflicts- e.g. Hotel Rwanda, Amistad, Life is beautiful, Killing fields, Platoon and a lot of others. Each director contributes to these films important message about humanity, tolerance, mutual understanding and horrors of war and local conflicts. „Moral relativism is based on the notion that the perception of the difference between good and evil or right and wrong is the result of education, religion and traditions, which is influenced by a person claims that there are no criteria by which to this or that situation objectively morally evaluate.“14 Movies can form people’s opinions in moral sphere (we can find differences between good and evil). Culture is an important part of our life. We have to create our own opinion about every story in movies. „Films present a world somewhat like our own, a world we sometimes think of as real, sometimes as fictional. In the fictional / real world of films, lawyers sometimes act like us, and sometimes they do not. And sometimes, we simply don‘t know how lawyers act or are supposed to act. Exactly what the relationship of film lawyers may be to real-world lawyers is the one question the reality critique purports to address and then fogs up with confusion.”15 Violation of Human rights is one of the most significant problems in our world. A lot of organizations protect (defend) human rights, but this rights are still violated. We can discover a large (huge) group of movies about human rights violation. For better overview I will try to provide representative classification of these movies. Human rights are universal in character. Every movie has specific location where the story is situated therefore the position will be the main criterion | 611 for our purpose. In this way we can create the following specific groups: 1. Violation of human rights in Europe 2. Africa 3. America- South and North 4. Asia 5. Australia- violations of the rights of indigenous peoples 5. Violation of human rights in Europe Europe has had an interesting history of the development of human rights as the idea of human rights was born in Europe. “Europe is a small region but has many peoples, cultures and nations. Throughout history, this region has seen many wars and conflicts, as well as progress and developments. The 20th century, described as many as the “Century of War”, saw two world wars (centered on Europe), amongst other terrible conflicts. Millions of people were killed. There were human rights violations throughout.”16 Groups: a) 2nd World War- movies about holocaust17 a consequences18 “The Holocaust has been accepted as one of the most, to many the most, disastrous happening(s) in the history of humankind. As it is known, for about 6 millions of Jews were killed under the rule of the third Reich in the mid 1900’s. “19 b) War prison camps20- “Prisoners of war are a product of any war. By the end of World War Two, hundreds of thousands of soldiers, airman and sailors had been held as prisoners of war in all the theatres of war - Western Europe, Eastern Europe, the Far East, Asia and North Africa. There were rules that governed the treatment of prisoners of war (the Geneva Convention) though a document formulated in Switzerland in times of world peace was always going to be hard pushed to be accepted by all those involved in World War Two.”21 c) situation after 2nd World War22- “But even though Western Europe is freer than most regions around the world, there is a marked increase in racism and anti-immigrant policies, as well as a rise in poverty. Eastern parts of Europe have seen a marked increase in conflicts since the breakup of the former Soviet Union. Numerous conflicts have resulted in gross human rights violations and a lot of suffering and killings of civilians.”23 d) Today’s problem24- (modern slavery, racism). Schindlers list (director- Steven Spielberg, won 7 academy awards in 1994) is one of the most important movies about human rights violation in Europe. “When Spielberg announced that he wanted to make a movie about Holocaust, everyone was appalled. The Jewish World Congress forbade him to film on the Auschwitz site. Spielberg’s image as a maker of successful entertainment movies was too strong, and he was considered too lightweight. Today his Holocaust Foundation is the archive of materials on Holocaust survivors in the world.”25 Africa We can find many cases of the violation of human right in Africa. “The situation of human rights in Africa is generally reported to be poor, and it is seen as an area of grave concern according to the UN, governmental, and non-governmental observers. Extensive human rights abuses still occur in several parts of Africa, often under the oversight of the state. Most of such violations can be attributed to political instability, often as a ‘side effect’ of civil war.”26 Reported violations include extrajudicial execution, mutilation and rape. Group of movies about Africa include: a) Genocide in Rwanda27- „In the weeks after April 6, 1994, 800,000 men, women, and children perished in the Rwandan genocide, perhaps as many as three quarters of the Tutsi popula- 612 | tion. At the same time, thousands of Hutu were murdered because they opposed the killing campaign and the forces directing it.”28 b) Other countries29- “There have been over 9 million refugees and internally displaced people from conflicts in Africa. Hundreds and thousands of people have been slaughtered from a number of conflicts and civil wars.”30 A lot of movies about Africa were creating in the period from 2003 to 2011. Movies inspire people to provide humanitarian assistance in Africa. People from all over the world go to Africa for humanitarian mission. They are constantly helping African children and woman with health care, food, education and clothes. America- South and North “Police abuse is one of the most chronic and widespread forms of human rights violations in Latin America today. Even in recent years, as democratic states have replaced dictatorships, and political targeting has diminished, police abuse has remained rampant throughout Latin Americain many cases, practiced with the same techniques, and by the same state agent, as before. Extrajudicial executions, torture, and arbitrary detention are common.”31 a) Slavery in USA32 and fight against slavery33 and racism34 - there is another aspect of slavery in USA- slave trade. “Unlike colonial predations in the sixteenth through the nineteenth centuries- which include the colossally murderous trans-Atlantic African slave trade that took 15 million to 20 million Africans’ lives, more than the roughly 10 million who survived to become slaves- most of our age’s murders and eliminations have not been perpetrated by colonial or conquering powers. They have been wholly or principally within the country the perpetrators and victims both inhabit.”35 b) Problems in south and middle America36- “In many Latin American countries, including Argentina, Brazil, Chile, Colombia, El Salvador, Guatemala, and Honduras, murderous regimes created shadowy death squads that struck anywhere, descending upon targeted individuals and groups, killing or abducting them (usually to kill them later), and then melting away.”37 c) movies about immigrants38 Asia Asia “is the continent with the most human rights violations, this according to the 2007 Country Reports on Human Rights Practices by the United States Department of State. According to the survey, the “countries in which power was concentrated in the hands of unaccountable rulers remained the world’s most systematic human rights violators. “39 Many people were killed in Asia. “Asia has suffered the largest number of gargantuan mass slaughters, with every major country being the site of eliminationist projects. In addition to the Japanese mass murders during World War II of several million people, mainly in China, though also in Burma, East Timor, Korea, Manchuria, Philippines, and elsewhere.”40 a) War prison camp41 and prison today42 b) War in Vietnam43- more than 3 million people (including 58,000 Americans) were killed in the Vietnam War; more than half were Vietnamese civilians. c) Human rights violations44 in other countries. Australia There is main problem in violation of the rights of indigenous people.45 “1788-1967 Aboriginal people restricted in their movements; many confined to reserves or not allowed access to public places, such as theatres or swimming pools.”46 Most interesting movie about Aboriginal people is Rabbit-Proof Fence (director Phillip Noyce, nominated fo golden globe in 2002). “In 1931, three aboriginal girls escape after being plucked | 613 from their homes to be trained as domestic staff and set off on a trek across the Outback. Government policy includes taking half-caste children from their Aboriginal mothers and sending them a thousand miles away to what amounts to indentured servitude, “to save them from themselves.”47 6. Conclusion In the movies you can find a lot of interesting information about great people, war conflicts, actual events, powerful stories and sadness. “Our knowledge of these horrors, past and present, is unused by us primarily to reassure ourselves of our righteousness and superiority, rather than to spur us to compassionate action. This normalization of such crimes has made us spectators and analysts of inhumanity, passive viewers of the ongoing horror show. And so even as we proclaim our own justification we hide from ourselves the hardening of our hearts.”48 Our mission is to prevent these events and provide help for the people who need it. Information is the most powerful weapon in the world. We can use movie for good or we can manipulate with large group of people for a bad cause. We may choose movies with real important ideas. We can find the theme of the violation of human rights in cinematic dramas and TV series, but what’s more interesting, we can find this particular issue also in numerous sci-fi movies and series (discrimination - Gattaca (1997), slavery- Matrix (1999), human extinction- Terminator (1984), racism- X-men (2000), lost of freedom- V for Vendetta (2005) and many others).“ For example the TV sci-fi series Battlestar Galactica has scored a great success in late seventies, although its quality was questionable. However, the remake of this series in the early 21.century was one of the world’s top television productions, not only in science-fiction area. Then the crushing military assault of Cylons occurred. Planets passed atomic holocaust. The entire fleet remained without power and finally it was destroyed.”49 It is important to talk about the violations of human rights. Movies are undoubtedly a source of information which is general and global. We can’t find solution this bad situation from past, but we can prevent these situation in future. What can be found in movies? 1. A lot of interesting information about the great people, war conflicts, actual events, HR, etc. 2. Intention to prevent these events and help for the people in the need. 3. Information is the most powerful weapon. 4. Usage of the movie for good or evil: help or manipulation. 5. Movies are an important communication tool. References AsiaNews.it, 2008. Most human rights violations in Asia. (online) Available at: ˂http://www.asianews.it/news-en/Most-human-rights-violations-in-Asia-11744.html˃ (Accessed 22 June 2013). Australian Broadcasting Corporation, 2000. The responsibility of protecting human rights. (online) Available at: ˂http://www.abc.net.au/civics/rights/what.htm˃ (Accessed 27 May 2013). Aydemir, N. (1996). Hitler’s Willing Executioners: Ordinary Germans and the Holocaust. (online) Available at: ˂http://www.usak.org.tr/dosyalar/dergi/b0TCVxdeLgCuKjMiIqzNPyda8IAyEh. pdf˃ (Accessed 15 June 2013). Burda, E. (2012). Proces s Gaiom Baltarom a novela trestného zákona (pp. 640-647). In: Míľniky práva v stredoeurópskom priestore 2012 II. časť. Bratislava: Univerzita Komenského v Bratislave Právnická fakulta. 614 | Embassy of the Republic of Mali, 2012. Human rights in Africa. (online) Available at: ˂http://maliembassy.us/files/Speeches/Speech_at_the_African_League_for_Human_Rights_and_Democracys_Forum_on_Human_Rights_in_Africa_on_Monday_May_7_2012.pdf˃ (Accessed 15 June 2013). Elkins, J. R. (2007). Popular culture, legal films, and legal films critics. Loyola of Los Angeles Law Law Review. Vol. 40, No. 2. pp. 745-792. Fábry, B. (2012). Human rights, role of the state and the EU eastern policy: The Khodorovsky case (pp. 213-220). In: Integration and neighborhood policies- New rights and new economies. Bari: Cacucci editore. Global Issues, 2010. Conflicts in Africa- Introduction, (online) Available at: ˂http://www.globalissues.org/article/84/conflicts-in-africa-introduction˃ (Accessed 15 June 2013). Global Issues, 2001. Europe and Human Rights, (online) Available at: ˂http://www.globalissues. org/article/150/europe-and-human-rights˃ (Accessed 15 June 2013). Goldhagen, D. J. (2010). Worse than war. London: Little, Brown. History Learning Site, 2000-2013. Prisoners of War, (online) Available at: ˂http://www.historylearningsite.co.uk/prisoners_of_war.htm˃ (Accessed 15 June 2013). Human Rights Wiki, The First Generation, (online) Available at: ˂http://humanrights.wikia.com/ wiki/First_Generation_Human_Rights˃ (Accessed 28 May 2013). Human Rights Wiki, The Second Generation, (online) Available at: ˂http://humanrights.wikia. com/wiki/Second_Generation_of_Human_Rights˃ (Accessed 28 May 2013). China Society For Human Rights Studies, 2010. The Characteristics of Human Rights and the Challenges for World Human Rights in the 21st Century. (online) Available at: ˂http://www.humanrights.cn/zt/scholarsviews/200512005119103630.htm˃ (Accessed 27 May 2013). IMDb.com, Inc., 2002. Rabbit-Proof Fence. (online) Available at: ˂http://www.imdb.com/title/ tt0252444/˃ (Accessed 3 July 2013). International human rights clinic (Human rights program at Harvard Law school) , 2011. Police Abuse in Latin America, (online) Available at: ˂http://harvardhumanrights.wordpress.com/ criminal-justice-in-latin-america/criminal-justice/police-abuse/˃ (Accessed 22 June 2013). Mészáros, T. (2013). Philosopher and Pope. Projustice, (e-journal), Available through: Open Elibrary ˂http://www.projustice.sk/teoria-prava/filozof-a-papez˃ (Accessed 27 June 2013). Müller, J. (2005). Best movies of the 90s. Kőln: Taschen GmbH. Patheos, 2012. Human Rights and Film, (online) Available at: ˂http://www.patheos.com/blogs/ dannyfisher/2012/09/human-rights-and-film/˃ (Accessed 30 May 2013). Shikyil, S. (1998). The generations of human rights. Current Jos Law Journal, (e-journal) Vol. 4 No. 4, Available through: Open E-library ˂http://dspace.unijos.edu.ng/handle/10485/221˃ (Accessed 27 May 2013). Smolin, D. M. (1999). The Future of Genocide: A Spectate for the New Millenium?. Fordham International Law Journal, (e-journal) Vol. 23 Issue 2 Article 11, Available through: Open E-library ˂http://ir.lawnet.fordham.edu/ilj˃ (Accessed 3 July 2013). Škop, M. (2011). Právo a vášeň. Brno: Masarykova univerzita. Turčan, M. (2012). Objektivistický a relativistický prístup k morálnym hodnotám (pp. 113-122). In: Acta facultatis iuridicae universitatis Comenianae Tomus XXX. Bratislava: Univerzita Komenského v Bratislave Právnická fakulta. United human rights council, 2013. Genocide in Rwanda, (online) Available at: ˂http://www.unitedhumanrights.org/genocide/genocide_in_rwanda.htm˃ (Accessed 15 June 2013). | 615 (Endnotes) 1 Škop, M.: Právo a vášeň, p. 169 2 http://www.humanrights.cn/zt/scholarsviews/200512005119103630.htm (visited on 27.5.2013) 3 Shikyil, S.: The generations of human rights, http://dspace.unijos.edu.ng/ handle/10485/221(visited on 27.5.2013) 4 Mészáros, T.: Philosopher and Pope, http://www.projustice.sk/teoria-prava/filozof-a-papez (visited on 27.6.2013) 5 http://www.humanrights.cn/zt/scholarsviews/200512005119103630.htm (visited on 27.5.2013) 6 Goldhagen, D. J.: Worse than war, p. 40 7 http://www.abc.net.au/civics/rights/what.htm (visited on 27.5.2013) 8 The first generation of human rights is based on the principles of individualism and noninterference—they tend to be “negative” rights, based on the Anglo-American principles of liberty. This first generation of rights developed under a strong mistrust of government and has since evolved into what are now known as “civil” or political” rights. (http://humanrights. wikia.com/wiki/First_Generation_Human_Rights- visited on 28.5.2013). 9 The second generation of human rights is based on the principles of social justice and public obligation—they tend to be “positive” rights, based on continental European conceptions of liberty as equality. This generation of human rights developed through those who had a strong desire for the state to provide protection for its neediest inhabitants via providing relief to the less fortunate. This second generation of rights has since evolved into what are now known as “social” or “economic” rights. (http://humanrights.wikia.com/wiki/Second_Generation_of_Human_Rights- visited on 28.5.2013). 10 Environmental, cultural and developmental rights (also called third generation rights). These include the rights to live in an environment that is clean and protected from destruction, and rights to cultural, political and economic development. (http://www.abc.net.au/civics/rights/ what.htm- visited on 27.5.2013 ) 11 See eg: http://www.patheos.com/blogs/dannyfisher/2012/09/human-rights-and-film/ (visited on 30.5.2013) 12 Fábry, B.: Human rights, role of the state and the EU eastern policy: The Khodorovsky case. p. 213 13 Müller, J.: Best movies of the 90s, p. 86 14 Turčan, M.: Objektivistický a relativistický prístup k morálnym hodnotám, p. 113 15 Elkins, J. R.: Popular culture, legal films, and legal films critics, p. 767-768 16 http://www.globalissues.org/article/150/europe-and-human-rights (visited on 15.6.2013) 17 Schindlers List (1997), Life Is Beautiful (1997), Grey Zone (2001), Pianist (2002), Ghetto (2006), Courageous Heart of Irene Sendler (2009), Boy in the Striped Pyjamas (2008), Last Train (2006), Fateless (2005), Anne Frank: The Whole Story (2001), Diary of Anne Frank (1959) 18 Judgment at Nuremberg (1961), Sophie’s Choice (1982), Music box (1989), Reader (2008), Odessa file (1974) 19 http://www.usak.org.tr/dosyalar/dergi/b0TCVxdeLgCuKjMiIqzNPyda8IAyEh.pdf (visited on 15.6.2013) 616 | 20 Great Escape (1963), Stalag 17 (1953), Lost in Siberia (1991), Way Back (2010), Harts War (2002), As Far As My Feet Will Carry Me (2001) 21 http://www.historylearningsite.co.uk/prisoners_of_war.htm (visited on 15.6.2013) 22 Warriors (1999), Harrisons Flowers (2000), Welcome To Sarajevo (1997), No Man’s Land (2001), Hunting Party (2007), 5 Days of War (2011), Savior (1998), Pretty Village Pretty Flame (1996), Shot Through the Heart (1998), Whistleblower (2010) 23 http://www.globalissues.org/article/150/europe-and-human-rights (visited on 15.6.2013) 24 Lilja 4ever (2002), Import/Export (2007), Taken (2008), Human Trafficking (2005) 25 Müller, J.: Best movies of the 90s, p. 89 26 Speech given by Ambassador AL-Maamoun Keita, at the African League for Human Rights and Democracy’s Forum on Human Rights in Africa,on Monday May 7, 2012, http://maliembassy. us/files/Speeches/Speech_at_the_African_League_for_Human_Rights_and_Democracys_ Forum_on_Human_Rights_in_Africa_on_Monday_May_7_2012.pdf (visited on 15.6.2013) 27 Shake hands with devil (2007), Hotel Rwanda (2004), Shooting Dogs (2005), Sometimes in April (2005) 28 http://www.unitedhumanrights.org/genocide/genocide_in_rwanda.htm, (visited on 15.6.2013) 29 Blood Diamond (2006), Constant Gardener (2005), Last King of Scotland (2006), Machine Gun Preacher (2011), Tsotsi (2005), Beyond Borders (2003), Catch a Fire (2006), Dry White Season (1989), Cry, the Beloved Country (1995), Sarafina! (1992), Cry Freedom (1987), Endgame (2009), Goodbye Bafana (2007), Bang Bang Club (2010) 30 http://www.globalissues.org/article/84/conflicts-in-africa-introduction, (visited on 15.6.2013) 31 http://harvardhumanrights.wordpress.com/criminal-justice-in-latin-america/criminal-justice/police-abuse/ (visited on 22.6.2013) 32 Amistad (1997), Mandingo (1975), Django Unchained (2012), Roots (1977- TV series), Glory (1989) 33 Amazing Grace (2006- fight again slavery in Britain), Birth of Nation (1915), The Help (2011), Great Debaters (2007), Lincoln (2012), 42 (2013) 34 Mississippi Burning (1998), The Klansman (1974), To Kill a Mockingbird (1962), Betrayed (1988), Ghosts of Mississippi (1996) 35 Goldhagen, D. J.: Worse than war, p. 36-37 36 Under Fire (1983), Salvador (1986), Imagining Argentina (2003), City of God (2002), Mi mejor enimego (2005) 37 Goldhagen, D. J.: Worse than war, p. 111 38 Immigrants (2009), Crash (2004), Sin Nombre (2009), Better Life (2011), In America (2002), Frozen River (2008), Eden (2012) 39 http://www.asianews.it/news-en/Most-human-rights-violations-in-Asia-11744.html (visited on 22.6.2013) 40 Goldhagen, D. J.: Worse than war, p. 53 41 Bridge to river Kwai (1957), Merry Christmas, Mr. Lawrence (1983), Rescue Dawn (2006), To end All Wars (2001), Great Raid (2005), Empire of the Sun (1987), Brotherhood of war (2004) 42 Brokedown place (1999), Return to Paradise (1998), Red Corner (1997), Bangkok Hilton (TV series 1989), The Lady (2011), National Security (2012) 43 Platoon (1986), Heaven and Earth (1993), Casualties of war (1989), Deer Hunter (1978), Good | 617 44 45 46 47 48 49 Morning, Vietnam (1987), Tour of Duty (TV series 1987) Killing fields (1984), City of Life and Death (2009), City of War: The Story of John Rabe (2009), Beyond Rangoon (1995), Children of Hung Shi (2009), Flowers od War (2011), Waltz with Bashir (2008), Hiroshima (1995), Black rain (1989) Rabbit-Proof Fence (2002), Australia (2008), Quigley Down Under (1990), Tracker (2002) http://www.abc.net.au/civics/rights/what.htm (visited on 22.6.2013) http://www.imdb.com/title/tt0252444/ (visited on 3.7.2013) Smolin, D. M.: The Future of Genocide: A Spectate for the New Millenium?, p. 472 Burda, E.: Proces s Gaiom Baltarom a novela trestného zákona (Trail with Gaius Baltar and amendment of criminal code), p. 640 618 | Paweł Błażejczyk University of Warmia and Mazury in Olsztyn [email protected] Lobbying activities as a form of right to information. Sanction for illegal lobbying activities on basis of the Polish Lobbying Act on 7th of July 2005yr in theory and practice Abstract The subject of refer is to analyze the phenomenon of lobbying for the constitutional right to information as regulated in Art. 61 of the Polish Constitution of 2nd April 1997y. Nowadays, lobbying can be a form of normal activity of legal entities or form of establishment. However abuses and violations of constitutional norms relating to the right to information is purely statutory standards. Lobbying is based on the acquisition and management of information. But certain forms of an acquisition of information are not in accordance with the law. In refer discussed disclosed formally illegal behavior and analyze it on the basis of Chapter V of the Act of 7th July 2005 on lobbying activities in the legislative process in the context of the definition of legal lobbying activities contained in the Act. The author analyzed the source material received from the Ministry of the Interior and the Ministry of Administration and Digitization and he prepared a summary of the system of penalties for violation of regulations of the Act and Constitutional right to information and the activities of State authorities in this regard. Since the entry of the Act of 7th March 2006 till the date of preparing this paper, there was formal drawn up a one proposal to initiate the procedure under Art. 17 of the Act. The proposal of 14 October 2009 was sent by the Marshal of the Sejm, Bronislaw Komorowski, to the Minister of the Interior and Administration. According to the assessment of the Marshal and the content of the proposal, the subject - a practicing journalist, not included on the register of entities engaged in professional lobbying activities kept by the proper Minister and the register kept by the Chancellery of the Sejm – performed illegal lobbying activities in the area of the Sejm of the Republic of Poland on behalf of subjects of the gaming industry. In the reply of 23 December 2009, The Minister did not find grounds to impose a penalty of Article 19 of the Act. He alleged only breach of professional ethics of journalist. The arguments used by the Minister resulted from the analysis of Article 19 of the Act and the jurisdiction of the Supreme Administrative Court, but only concerning the procedural matters. During the time when the Act was in force, the state authorities didn’t initiate any other proceedings, the Ministers also didn’t take action in accordance with Article 19 of the Polish Lobbing Act in the lawmaking process. Up to this moment we note one case of alleged illegal lobbying activity. The exact sequence of events and the argumentation of State authorities will be presented in the main body of the paper. In the main part of the paper there is also analysis of the legal concepts defined by the legislator which is the direct inducement to the assessment of sanction procedures set out in the Chapter V of the Act. The refer also sets out the final conclusions. Key words: lobbying, lobbing, pressure groups, lobbying in legislative process, sanction for illegal lobbying activities, right for public information. | 619 1. Introducion Lobbying is a term which base of regulation includes art. 61 Constitution of the Polish Republic from 2nd of April 1997y. This regulation ensures that everyone has access to public information, the entity in this standard is general, so it is possible there are special categories of subjects. Lobbyist is the special subject. In many Polish special laws, there are numerous threads relating to lobbying, the most important variable is, of course, the Act of 7th of July 2005y. on lobbying in the legislative process, but also the Act of 6th of June 1997y. The Penal Code, Act of 23th of April 1964y. The Civil Code and the Act of 7th of September 2001y. on access to public information and the Act 29th of August 1997y. the protection of personal data. It’s only the most important legal regulation of lobbying, which I used for the preparation of this paper. Certainly plenty of practical value will be part of the analysis on source materials obtained from public authorities in the exercise of sanctioning for lobbying activities in accordance with the provisions of the Act on Lobbying in the lawmaking process. The analysis of materials and drawing a conclusion I made it in the last part of the work. Survey hypothesis to resolve is: When Lobbying is an illegal activity under Polish law??? 2. Explication The starting point a discussion of lobbying is regulation Art. 61 of the Constitution of 2 April 1997. Well, this provision states in paragraph 1 that, “The citizen has the right to obtain information about the activities of public authorities, and on persons performing public functions. This right also includes obtaining information about the activities of economic self-government and professional self-government, as well as other persons or organizational units to the extent to which they perform the duties of public authorities and manage communal assets or property of the State.1 „ Article 61 of the Constitution laid the foundation for the definition and action of lobbying in the Polish legislation. The object of legal norm describe in Art. 61 of the Constitution is general, so every Polish citizen has the right to request information which have the public status. Lex specialis to the Constitution regarding access to public information is the Act of 6 September 2001. on access to public information. The legislature has defined the public information in art 1 paragraph 1 of the Act2. The above definition has characteristic elements of a legal definition, but in in the judge model application of law can meet judicial interpretations or supplement3. The problem in the application of law on access to public information have administrative authorities. In support of the decision SA / WA 721/08, the Court stated that, „public information relates to the sphere of facts. It is the content of the documents produced by public authorities and entities other public administration organs, the content of speeches, opinions and assessments made by them, regardless of the entity to which it is addressed and how things relate. Public information is therefore the content of any document relating to a public authority or associated in any way related to him. These means of both the content of documents produced by the authority directly, as well as those that are used in the implementation of the legal tasks (including those only in part to it), even if not come directly from him4. The next part of support of decision follows, a report on the functioning of the Central Anticorruption Office met the conditions of public information. The Court stated that, the report concerned the operation of the executing organ which perform public functions. Weighty issues are subjective and objective scope of access to public information. The legislature in art. 2, paragraph 1 of the Act defined the scope of the described problems. Additional restrictions laid down in Article. 5 In that provision, the legislature pointed to the special protection of classified information and the protection of secrets protected by law. The apparent practice of the authorities are obliged to provide information is either erase classified information of prepared copies, or submit statements to applicants of criminal liability for the disclosure or use of confidential information obtained in the course of access to public information5. 620 | However in art. 2 par. 2 of the law regulated access to public information, the legislature established the subjective and indicated no requirement to demonstrate an interest in the entity applying for public information. The lobbying activities6 of such information is a kind of commodity, which govern lobbyists. Thus, if relatively simple to obtain information from state administration authorities, it is relatively simple to perform lobbying activities at all. This thesis consciously unite with the concept of lobbying contained in the Act of 7th of July 2005y. on lobbying in the legislative process. Well, on the basis of this act the legislature adopted two variants of the definition of lobbying activity. Article 2, par. 1 of the Act provides a definition of lobbying and qualified for the lobbying activities of a professional in the par. 2 of that provision7. Currently in the Polish legislation concept of lobbying is contained in the Act of 7th of July 2005y. on lobbying in the legislative process, lobbying the legislature has defined two perspectives: • in the meaning of Act the lobbying activity is any activity conducted legally permitted methods designed to influence public authorities in the legislative process, • in the meaning of Act the lobbying profession is gainful lobbying carried out on behalf of third parties for inclusion in the lawmaking process interests of these people8. It is pointed out that the government’s proposal envisaged to cover regulation and application of the law within the definition, but in the course of work in the Sejm commission narrowed the scope of the Act only to the lawmaking9. Projectors pointed to any action in the forms permitted by law, creating an exhaustive list of activities that will be considered lobbying. The lobbying activities are therefore considered not only the activities aimed at the process of law by public authorities, but also to influence the decisions in individual cases (appointment to the position, contracting, etc..), so activity in the sphere of application of the law. The conflict about the control range, and so here is whether the Act is to regulate only the process of law, has been in the work of the Special Committee - appointed to work on the lobbying Act - the most serious dispute10. Thus, in the currently legislation can freely perform lobbying activities related to the organization or a third parties as non professional character. However, if these measures cover all features of the professional activity, then the person performing such activities shall be entered in the register of lobbyists currently held by the Minister of Administration and Digitization, who took over the duties of the previous structure of the Ministry of Internal Affairs and Administration. It would be worthwhile to consider the issue of the professional nature of lobbying activity. Thus, the lobbyist is a person who his profession, is an entrepreneur who professionally engaged in influencing those in power by providing expert opinions or draft legislation. In countries where it is required, must meet additional requirements - the registration of business reporting. Lobbyist is simply an intermediary in the transfer of all data, acting in the name and for the account of the client11. The Supreme Court of Polnad in its resolution of 18th of June 1991y. III CZP 40/91, found that, a professional nature of the activity, is granted the status of a relatively permanent, professional, not amateur and occasional. Professional nature means that the entrepreneur has a certain knowledge, skills and abilities that allow him to perform his obligations under the agreements. Indicated concept of the Supreme Court, was reflected in the definition of legitimate business activity under the Act of 2nd July 2004y. freedom of economic activity12. So the lobbyist may be president of the foundation or association or political party gaining information or acting in any other respect to such an organization without an additional agreement and pay. Lobbyist may also be professional, knowledgeable trader acting as an agent for his principal, who receives in return for payment. Lobbying is an integral part of the democratic order of the State. The essence of the lobbying are actions to influence on institution governmental, parliamentary and local law-making process, using legitimate methods and techniques. Advocacy involves the development of democracy and civil State, because in this process with different business groups reach a consensus13. The past | 621 has shown, however, the second face of lobbying in Poland. Lobbying, however, still associated pejoratively due to a many cases of scandals involving lobbyists, their relationship with the world of politics and business either criminal word. The Act regulating lobbying activities in Poland is regulated by the elements of the sanction for carrying out lobbying activities in accordance with law. It is the sanction of an administrative-law determined by the legislature in art. 19 of the Act. The legislature sets a fine ranging from 3,000 to 50,000 PLN for the performance of professional lobbying activities without proper registration14. The lively discussions in the literature on the nature of the administrative penalty imposed by an administrative decision, however, the issue of a another paper. The Act’s procedure in range for monetary penalty is initiated pursuant to art. 17 by the relevant public authority, an important feature of this procedure is the prompt action and the authority to whom the notice is directed to the Minister responsible for public administration - that is, de fact, the registering authority for professional lobbyists. The Act merely legitimizes the behavior of lobbyists, other issues resulting from the acts of a lex generalis15. In my paper I want to focus, however, the administrative sanction to norm in art. 19 of the Act based on the actual and practical decisions of public authorities. My workshop will provide information obtained from the Ministry of Administration and Digitization in the way of access to public information. These materials are very practical application of administrative sanctions for lobbyists. The information obtained also summarize the operation of the Act in this regard to the date of the paper. Well, 14 October 2009y. Chief of Sejm, acting pursuant to Art. 17 of the Act of 7th of July 2005y. on lobbying in the legislative process announced by the then Minister of Internal Affairs and Administration of the opportunities within the Sejm illegal lobbying activities by an entity to unauthorized - a magazine journalist16. Chief of the Sejm was informed on the matter on 9th of October 2009y. Chairman of the political party “Law and Justice”, as well as details of another Member. From the information received showed that the suspected journalist is not listed in the register of professional lobbyists led by the Minister of Interior and Administration, as well as never figured in the records of persons representing entities authorized to engage in lobbying activities - carried out by the Office of the Parliament. Sejm Guard has established that, the journalist did not have any periodic card access to buildings remaining on the board of the Chancellery of the Sejm. Attached to this letter was accompanied by a copy of the letter sent by members, and a copy of the letter Sejm Guard Commander. In Such a notice was issued to the competent Minister, the Registry Office of the Ministry was registered on 15th of October 2009y17. In response to a letter from the Chief of Sejm, the Minister replied by letter dated on 23th of December 2009y., in which he explained that, in accordance with Art. 2 of the Act regulating lobbying can be of two types of professional and non-professional - which is consistent with the above-cited views of the doctrine. Furthermore, the Minister will appreciate that, Art. 19 of the Act provides for a penalty (a fine) in relation to entities that perform actions within the scope of professional lobbying without registration. The sentencing authority shall take into account: the degree of influence of the entity engaged in professional lobbying activities on specific decision of a public authority for regulation and the scope and nature of activities undertaken by the entity in the field of professional lobbying. The assessment of the facts by the Minister, the Authority notes that a journalist during a meeting with a member of Sejm proposed a cooperation action aimed at regulating the statutory gambling industry. However, according to the Minister that this is critically regarded as a violation of professional ethics. Thus, the conclusion of the assessment of the facts is that it does not have sufficient reason to believe that, in breach of the provisions of the Law on Lobbying. The Minister notes that the journalist did not provide any concrete proposal to regulate the gambling industry. The meeting did not relate to the settlement of any public authority in the field of law but only to the extent that the above-mentioned. Act defines the liability for illegal lobbying18. The minister also defended the position of the judgment relating to the imposition of the way of the specific provisions of the administrative penalty or obligation to comply with its other obligations, 622 | this is the case for action of a coercive nature, the authority is required to conduct the proceedings in such a way as to leave no doubt about the taken decision. The material in this case should be complete and clearly indicate the entity that is subject to a monetary penalty as the punishment of the perpetrator of the infringement of the law19. In the course of the study determined the source material that, since the entry into force of the law regulating lobbying activities to the date of the paper, the relevant. Minister has not made the situation any violation of the Act, the Minister has not made any decision on the basis of Art. 19 of the Act20. Final conclusion is therefore as follows, in the years 2006 - 2013 there was a one reaction of state authorities on the possibility of violation of the Act on Lobbying in Chapter V and a proper response of the Minister regarding the procedure of Art. 19 of the Act. Mark on to that, this sanction applies to entities engaged in professional lobbying activities without proper registration. The register of performing lobbying activities carries on the same relevant Minister, who is a trustee of penalties of Art.19. Currently, the register contains 286 entities and the number is constantly growing21. Apart from the question of the effectiveness of the Act in relation to the conduct of lobbyists, it should be noted lobbying interdisciplinary phenomenon. The legislator has very cleverly and skillfully brought this issue to the canvas a number of laws - initially I wrote about above. However, it should be upheld arguments that, from a theoretical point of view, the issue of lobbying - it seems - is a constitutional law, although it should be connected with criminal and administrative22. In retrospect, the fifteen years of the Constitution, seven years after the Act of 7th of July 2005y. on lobbying in the legislative process, and eleven years after the Act of 6th of September 2001y. access to public information, it seems that the issue of lobbying is not only in theory but also practice. Evidenced that many cases of positive and negative legal consequences23. 3. Conclusion Moreover, during of scientific researches and academic teaching notices I see great need for all forms of discussion on lobbying. The phenomenon is still presented in negative terms, as a pathology in the administration or as an aspect of privatization of State. Although in principle this is a typical reaction and evaluation of the “unknown”. Many writers and political activists in U.S.A. wrote about the “lobby” and “lobbyists” using such epithets as octopus, jackals, plague, locusts, lice, etc. 15-20 years ago24. Currently, the U.S. lobbying is considered to be the most efficient and mature. Meanwhile, I think, lobbying has neutral character, that the behavior of lobbyists and state authorities as well as pages of this interesting law relationship causes distortion issues. Should accede to the conclusion that, lobbying is an integral part of the democratic order of the State. Illegal lobbying behaviors are set out in the Penal Code as well as the Act of 7th of July 2005y. about lobbying activities. However, the legislature has fairly liberal in its approach to the definition of lobbying, so many problems qualify as illegal lobbying activities. In unclear situations on the ground indicated above, in some cases, the law will apply the Criminal Code as lex generalis, but only when the behavior of the lobbyist complete elements of the offense action for the offense category. The source material that it’s hard to find a reason to punish lobbyists, such qualification is based on the general criteria - hypothesis, disposition, sanction. The essence of the lobbying are actions to influence to government, parliamentary and local institution in law-making process, by using legitimate methods and techniques. Advocacy involves the development of democracy and civil State, because in this process groups with different businesses reach a consensus25. | 623 References Acts Art. Constitution of Poland Republic on 2nd of April 1997y., art. 61, Act of 6th of September 2001y. about access to public information, art. 1, Art 2 of the Act of 7th of July 2005y. on lobbying in the legislative process, art. 2, 17,19, Art. 2 of the Act of 2nd of July 2004y. freedom of economic activity, art. 2, Act of 6th of June 1997y. Penal code, art. 228,229,230,231,266, Books M. M. Wiszowaty, Lobbying regulations in the world, Warsaw 2008. , p. 20th. P. Kuczma, Lobbying in Poland, Toruń 2010y.,p. 37. B. Piwowar, J. Świeca, Lobbying, business, law, politics, Warsaw 2010y., p. 13, reprinted in “Communications in business practices, Warsaw University of Life Sciences Press”, Warsaw 2011y. A. Sylwestrzak, communication on issues of constitutional regulation of political parties, the powers of the Constitutional Court, the problem of the party and the trade unions and lobbying issues, [in:] Legal aspects of the functioning of political parties in the countries of Central and Eastern Europe, edited by A. Domańska, K. Skotnicki, Lodz 2003y. , p.273.. S. Ehrlich, Lobby, State and Law Warsaw 1961y., no.3, p. 464. Jurisdiction Decision of the Administrative Court in Bydgoszcz on 6th of February 2008y, II SAB/Bd 31/07, Decision of Administrative Court in Krakow of 15th of October 2007y. II SAB / Kr 56/07, Decision of the Administrative Court in Warsaw II SA / WA 721/08 Decision of the Supreme Administrative Court of 14th of November 2007y. I OSK 1519/06. Public documents Sejm document No 2188 of 2004y. art. 2 par. 1 point 2 of the government’s project Act of lobbying activities. Letter from the Chief of Sejm of 14th of October 2009y. addressed to the Minister of Interior and Administration No. BKS-321-42/09. Letter from the Minister of Interior and Administration of 23th of December 2009y. addressed to the Chief of Sejm No. BMP-071-10266/09/EG. Letter from the Minister of Administration and Digitization of 10th of April 2013y. No. DAPWAR-0667-2/13/MPi. Websites Website of the Ministry of Administration and digitization record updated on 7 June 2013, http:// mac.bip.gov.pl/dzialalnosc-lobbingowa/dzialalnosc-lobbingowa-akty-prawne-informacje-formularz-rejestr_62_62_62_62_62_62_62_62_62.html. (Endnotes) 1 Art. 61 of Constitution of Poland Republic on 2nd of April 1997y. 2 Act of 6th of September 2001y., art. 1 par. 1. Any information about public affairs is public information in meaning the Act sense and shall be made accessible and reuse, on based principles and procedures set forth in this Act. 3 Decision of the Administrative Court in Bydgoszcz on 6th of February 2008y, II SAB/Bd 31/07, the Court proposed the following understanding of public information “Taking the above into 624 | 4 5 6 7 8 9 10 11 12 13 14 consideration,the division of public and private cases in the content of the file of case, opted for in the Administrative Court in Krakow of 15th of October 2007y. II SAB / Kr 56/07, which states that the authorities authorized to carry out public tasks, are not intended to take other steps for the handling of public affairs. “ Decision of the Administrative Court in Warsaw II SA / WA 721/08 on the case imposition of a Prime Minister’s refusal to disclose the Minister Julia Pitera’s report on the activities of the CBA. I acquired the materials for the preparation of this paper on base the Act of 6 September 2001. access to public information, sent by the Ministry of Administration and Digitization has been truncated to personal data. The case of criminal liability is based on the legal basis of Art. 266 § 1 of the Act of 6th of June 1997 Penal code. These types of statements are used by the courts and administrative authorities in relation to the parties involved and third parties requesting access to documents of case with the agree of the authority. On basis of the paper I used the concept of the English-speaking “lobbying”. The importance of the phenomenon is the same in both languages​​, but interesting conclusions can be drawn from the surgery polonization spelling concepts lobbying. In the Polish language has not adopted a form of lobbying supplanted by an unfortunate version of “lobbing” which in English means the term boost athletic ball high arch. Commonly football player playing the ball through the field towards the goal over the head of goalkeeper extended in the front crease determined is the “lob”. So currently valid polonized spelling lobbying phenomenon, although the field of science with the spell may cause misunderstandings and communication in relation sender - receiver. See M. M. Wiszowaty, Lobbying regulations in the world, Warsaw 2008., p. 20. Art 2 of the Act of 7th of July 2005y. on lobbying in the legislative process: par. 1 In the meaning of the Act lobbying activity is any activity conducted legally permitted methods designed to influence public authorities in the lawmaking process. Par. 2 In the meaning of the Act lobbying profession is gainful lobbying carried out on behalf of third parties for inclusion in the lawmaking process interests of these objects. Art 2 par. 1 i 2 of the Act of 7th of July 2005y. on lobbying activities in the legislative process. Sejm document No 2188 of 2004y. art. 2 par. 1 point 2 of the government’s project Act of lobbying activities. It is worth noting that very critical of this and other articles of the project P. Radziewicz in Journal of legal studies and surveys office of the Sejm Chancellery, I-III, 2004y. p. 87. Author criticizes extending the scope of the definition of lobbying on the sphere of local government. P. Kuczma, Lobbying in Poland, Toruń 2010y.,p. 37. P. Kuczma, Op.Cit. p. 20. Art. 2 of the Act of 2nd of July 2004y. freedom of economic activity: Economic activity is gainful manufacturing, construction, trade, service and prospecting, exploration and exploitation of minerals from deposits, as well as the professional activity carried out in an organized and continuous form. B. Piwowar, J. Świeca, Lobbying, business, law, politics, Warsaw 2010y., p. 13, reprinted in “Communications in business practices, Warsaw University of Life Sciences Press”, Warsaw 2011y. Act of 7th of July 2005y. the activities of lobbying in the legislative process Art. 19 par.1. The entity that performs within the scope of professional lobbying without registration, shall be liable to a fine of between 3 000 and 50 000 PLN. Par. 2 The penalty referred to in paragraph. 1, imposes an administrative decision the minister responsible for public administration. Par. 3 | 625 15 16 17 18 19 20 21 22 23 24 25 In determining the amount of the fine takes into account the impact of an entity referred to in paragraph. 1, the specific decision of a public authority on the law and the scope and nature of the measures taken by the this object activities in the field of professional lobbying. Par. 4 The fine may be imposed repeatedly, if the action in the field of professional lobbying continues without registration. The provisions of the Act of 6th of June 1997y. Penal code section XXIX, art. 230 and 230a, and the Act of 23th of April 1964y. The Civil Code of business damages. Personal data found in photocopied source materials have been erased, both names of magazines. Letter from the Chief of Sejm of 14th of October 2009y. addressed to the Minister of Interior and Administration No. BKS-321-42/09. Letter from the Minister of Interior and Administration of 23th of December 2009y. addressed to the Chief of Sejm No. BMP-071-10266/09/EG. Decision of the Supreme Administrative Court of 14th of November 2007y. I OSK 1519/06. Letter from the Minister of Administration and Digitization of 10th of April 2013y. No. DAPWAR-0667-2/13/MPi. Website of the Ministry of Administration and digitization record updated on 7 June 2013, http://mac.bip.gov.pl/dzialalnosc-lobbingowa/dzialalnosc-lobbingowa-akty-prawne-informacje-formularz-rejestr_62_62_62_62_62_62_62_62_62.html, A. Sylwestrzak, communication on issues of constitutional regulation of political parties, the powers of the Constitutional Court, the problem of the party and the trade unions and lobbying issues, [in:] Legal aspects of the functioning of political parties in the countries of Central and Eastern Europe, edited by A. Domańska, K. Skotnicki, Lodz 2003y. , p.273. In many cases involving focus groups noted to be “Rywingate”. Lew Rywin on 26th of April 2004y, he was non-binding convicted by the Court in Warsaw for two and a half years in prison and a fine of 100 thousand PLN. The court changed the classification of the criminal prosecution of accepting bribes to cheat. S. Ehrlich, Lobby, State and Law Warsaw 1961y., no.3, p. 464. B. Piwowar, J. Świeca, Op.cit., p. 13. 626 | Sylwia Łazarewicz Anna Kurzyńska University of Warmia and Mazury in Olsztyn [email protected] Effects of cultural policy of the European Union on the freedom of audiovisual services Abstract The development of audiovisual policy of the European Union has been affected for many years by the dispute between those who emphasise the social and cultural value of the media and those who focus on their economical and commercial importance. The adjustment of existing legal regulations to the new reality of the media market changed by technological progress was an opportunity to introduce new solutions oriented towards the protection of the cultural identity and diversity of Europe. However, the Audiovisual Media Services Directive adopted in 2007 does not provide any significant changes in this regard. The principles of the EU audiovisual policy are still shaped, first of all, on the basis of economic priorities while the cultural policies of Member States are treated as, admittedly acceptable, but still a limitation on the freedom of providing audiovisual services. The European Union continues to take the view that the best way to protect culture is to promote European works. Therefore, among all instruments used to promote culture, the so-called programme quotas seem to be particularly important, as their aim is to support and increase the competitiveness of the European audiovisual industry. Keywords: audiovisual policy – cultural policy – media – freedom of services – Audiovisual Media Service Directive 1. Introductory remarks Over the period of more than ten years, the audiovisual media market has been subject to violent changes and constant development. Technological progress, particularly digitization and, consequently, the increasing convergence of the sectors of telecommunications, information technology and audiovisual media have enforced the need to update existing legal regulations in this respect. While new solutions were searched for, an old dispute was revived between those who emphasize the social and cultural role of the media and those who focus on their economic and commercial value (Williams, 2008, pp. 171). It is obvious that the audiovisual market cannot be viewed only in legal and business categories. Although the activities of the European Union have focused, for years, on economic priorities, the cultural influence of the media should also be taken into consideration. The principles of the EU audiovisual policy, particularly those created under the conditions of rapid technological changes, should take into consideration the social role which media are to fulfil, specifically regarding the audiovisual media. Among various functions attributed to them, their culture-forming character is particularly important. Therefore, the audiovisual policy is conducted within the framework of the cultural policy. However, the complexity of the matter, resulting from the difficulties in reconciling business aims (a drive towards stronger integration) and cultural aims (supporting diversity) has led to the audiovisual policy exceeding the limits of the cultural policy. The aim of this text is to point the main instruments of the EU cultural policy and to conduct | 627 an analysis of its effect on the application of the EU internal market rules, in particular on limiting the free flow of audiovisual services. Thus, it should be necessary to trace the process in which audiovisual policy principles were formed and analyse its major instruments. These principles can be interpreted from the perspective of both primary legislation and secondary legislation – mainly the Television without Frontiers Directive. The influence of the Court of Justice of the European Union on the creation and development of the audiovisual policy of the European Union is also very important. Therefore, crucial decisions of the Court in this regard must be taken into account. 2. Audiovisual policy of the European Union The Treaty on the functioning of the European Union does not contain any provisions directly referring to audiovisual services. It only establishes general principles of the internal market, basing its operations on five freedoms of movement. For the sector under discussion, the most important is the freedom to provide services. Already in the case of Sacchi (Italy v. Sacchi 155/73, 1974 ECR 409, para 6), the Court of Justice clearly stated that: the transmission of television signals, including those in the nature of advertisements, comes, as such, within the rules of the Treaty relating to services. The dynamic growth of the media market caused that the regulations of the Treaty soon proved insufficient. The development of satellite television, an increase in the number of broadcasters and, above all, the growing deficit in audiovisual trade with the USA in the mid-1980s led to the efforts to create a separate audiovisual policy of the Community. Its origins are traced to the Green Paper on the Establishment of the Common Market for Broadcasting of 1984 (Commission, Television Without Frontiers: Green Paper on the Establishment of the Common Market for Broadcasting, Especially by Satellite and Cable, COM(84)300 (May 1984) (Burri-Nenova, 2007, pp. 1693-1694). Five years later, in 1989, the Television Without Frontiers Directive (Council Directive 89/552/ EEC of 3 October 1989 on the Coordination of Certain Provisions Laid Down by Law, Regulation or Administrative Action in Member States Concerning the Pursuit of Television Broadcasting Activities, O.J. 1989, L 298/23) was adopted (hereinafter referred to as the TVWF directive). It has been amended twice to date: in 1997 (Directive 97/36/EC of the European Parliament and of the Council of 30 June 1997 amending Council Directive 89/552/EEC, O.J. 1997, L 202/60) and in 2007 (Directive 2007/65/EC of the European Parliament and of the Council of 11 December 2007 amending Council Directive 89/552/EEC, O.J. 2007, L 332/27), when the name of this act was also changed into the Audiovisual Media Services Directive (hereinafter, the AVMS directive). As a part of secondary legislation, the directive duplicates basic freedoms: the freedom to provide services and the freedom of establishment, set forth in Art. 49 and 56 of the Treaty, and it is an instrument of harmonization, which is to ensure that those freedoms are not unduly limited (Burri-Nenova, 2007, pp. 1695). The directive is constructed according to purely economic rules. Its aim is primarily the liberalization of the European market of audiovisual media by removing barriers in the free movement of television transmissions between the Member States. In its adoption, the role of television in shaping European cultural identity was noted, as well as its importance in ensuring access to information but the directive primarily protects the economic interests of the EU and not the interests of culture (Wyrozumska, 2008, pp. 579). The media and the audiovisual industry were then regarded not as cultural assets, but as the driving force of economy and a sector creating new jobs (Williams, 2008, pp. 152). With the development of the European Union, increasing significance was attached to culture and media. It was noted that competitive pressure and the search for the maximisation of profits made programme contents resemble one another and distorted the traditional informational role of television (Burri-Nenova, 2007, pp. 1697). In 1992, in response to these phenomena, The Green Paper on Pluralism and Media Concentration in the Internal Market – An Assessment of the Need 628 | for Community Action (Pluralism and Media Concentration in the Internal Market - An Assessment of the Need for Community Action. Green Paper, COM(92)480 final (December 1992) was published, indicating the necessity to maintain media pluralism. The economic approach towards media represented so far was supplemented with social and political ones (Stasiak-Jazukiewicz, 2005, pp. 15). However, essential changes in the issue of competences of the European Communities as regards mass media were not introduced until the Treaty of Maastricht came into effect. Establishment treaties regarded culture as a non-economic activity, and as such, remaining outside the EC competences (Wyrozumska, 2008, pp. 567). The Treaty of Maastricht formally recognized that the EU should handle the subject matter of culture. Art. 151 of the EC Treaty (now art. 167 of the Treaty on Functioning of the European Union) was introduced to become a legal basis for the enlarging of Community activities in the sphere of media, which are, after all, a significant carrier of cultural values. According to its content: The Community shall contribute to the flowering of the cultures of the Member States, while respecting their national and regional diversity and at the same time bringing the common cultural heritage to the fore. Action by the Community shall be aimed at encouraging cooperation between Member States and, if necessary, supporting and supplementing their action in the following areas: improvement of the knowledge and dissemination of the culture and history of the European peoples; conservation and safeguarding of cultural heritage of European significance; non-commercial cultural exchanges; artistic and literary creation, including in the audiovisual sector (Art. 151 § 1 and 2). Such a regulation assumes that audiovisual policy should realize some tasks in the field of culture, consisting in, first of all, the protection of the cultural diversity of the individual Member States, at the same time preserving the cultural identity of Europe. Paragraph 4 is an important provision of Art. 151 of the Treaty. It imposes an obligation on the EC to take cultural aspects into account in its action under other provisions of the Treaty, in particular in order to respect and to promote the diversity of its cultures. Audiovisual policy is an example of such intersection of culture and execution of economic competences. Within the audiovisual policy framework, the European Union should protect and develop not only the internal market, but also its achievements in the field of culture. Audiovisual media are therefore not only an economic investment, but also a cultural one (Otheguy, 1998, pp. 89). Since the aim of the Community is not standardization, but supporting the cultural diversity of Europe, the content of Art. 151 paragraph 5 of the EC Treaty is not surprising. It clearly indicates that activities in the field of culture should not include harmonization, which means that their legal basis cannot be directives. Nevertheless, it is the AVMS directive which is an act regulating the audiovisual policy of the UE. Its original version was adopted before the Treaty of Maastricht took effect, and it was not based on regulations of the primary legislation concerning culture, but on those concerning the internal market (Adamski, 2007, pp. 911). If the activity of television is treated as a service, then it should involve the application of the same provisions as other fields of economy. The EU interference in audiovisual issues is not interference in the cultural policy of the individual Member States, but a regulation concerning the free movement of services (Szewczyk, 2002, pp. 37). 3. Culture as a basis to restrict the freedom of audiovisual services The complex nature of audiovisual content, constituting on the one hand a subject of business trade, and on the other – a carrier of cultural values (Adamski, 2007, pp. 910), is not properly reflected on the ground of the EU regulations. The lack of definition of the notion of culture itself is the reason why it can be understood in different ways, as including e.g. cultural heritage, protection of national minorities, education (Wyrozumska, 2008, pp. 568), and access to information. | 629 Originally, it was emphasized that audiovisual policy should help to demonstrate the richness and diversity of European culture and should contribute to the cultural identity of Europe. Later on, it was also observed that audiovisual media, while ensuring freedom of information and access to various opinions, have great significance for societies and democracies (Burri-Nenova, 2007, pp. 1717-1718). In view of the lack of precise regulation, the EU protection and scope of support for the development of cultures of the Member States basically depends on the opinions of EU institutions, particularly the Court of Justice of the EU (Wyrozumska, 2008, pp. 568). The judicial decisions of the Court, together with the regulations of the AVMS directive, actually allowed the Member States to conduct their own policies, coordinated within the EU cultural policy. Even before the foundation of audiovisual policy was formed, the Court of Justice, in its decision concerning Cassis de Dijon (Rewe-Zentral A.G. v. Bundesmonopolverwaltung fur Branntwein C-120/78, 1979 ECR 649, para 8), considered it acceptable to limit the freedom of the internal market, if it was dictated by a vital public interest. Therefore, it initiated an open list of imperative requirements. Thus, the protection of significant values was made possible, while preserving the basic aim of the EU – the creation of a uniform market. Since audiovisual media undoubtedly constitute a part of the broadly understood sphere of culture, arguments referring to culture began to be raised, in order to justify departures from freedom of movement of audiovisual services. The Court of Justice repeatedly stressed that measures of cultural policy (ensuring freedom of speech, observance of copyrights, fulfilling other cultural tasks) constitute a justified basis for the restriction of the most fundamental freedoms. It explicitly expressed its opinion in the so-called “Dutch cases”. In the case of Gouda (the so-called Mediawet I) (Stichting Collectieve Antennevoorziening Gouda and others v. Commissariaat voor de Media C-288/89, 1991 ECR I-4040-41, para 22 – 23), the Court of Justice directly stated that a cultural policy with the aim of safeguarding the freedom of expression of the various (in particular, social, cultural, religious and philosophical) components of a Member State may constitute an overriding requirement relating to the general interest which justifies a restriction on the freedom to provide services. On the other hand, as regards advertising, it emphasized that: restrictions on the broadcasting of advertisements may be imposed for an aim relating to the general interest, namely protection of consumers from excessive advertising or, in the context of a cultural policy, maintaining a certain level of program quality. This standpoint was confirmed by the Court in its decision concerning the case of Commission v. Holland (the so-called Mediawet II) (Commission v. Holland C-353/89, 1991 ECR I-4093-94). At the same time, it implied that the reason for limiting freedom cannot be of a commercial nature and that in its judgments it is inclined to set business interest above cultural interest (Wyrozumska, 2008, pp. 571). In both quoted cases, the Court perceived the role of media in providing access to information. The Court resolved that if a Member State decides to limit freedom of providing audiovisual services in order to protect culture, such justification must be assessed in the light of the fundamental rights guaranteed by the Community legal order. In the decision concerning the case of ERT v. DEP (Elliniki Radiophonia Tileorassi AE and Panellinia Omospondia Syllogon Prossopikou v. Dimotiki Etairia Pliroforissis Thessalonikis C-260/89, 1991 ECR I-2925), the Court specified that (Sage, 2008, pp. 741), as regards rules relating to television, this means that they must be appraised in the light of freedom of expression, as embodied in Article 10 of the European Convention on Human Rights (hereinafter the ECHO), as a general principle of law, the observance of which is ensured by the Court. 4. Promotion of European works Broadly understood cultural issues, including, first of all, the protection of diversity as well as ensuring pluralism and access to information, are used today as a common justification for limiting freedom of movement of audiovisual services and freedom to compete in this sector. Cultural 630 | arguments are raised both in the discussion concerning admissibility of state aid for public broadcasters, and as justification for excluding the so-called short reports and programmes of crucial importance for society from the scope of the freedom of trade. The protection of culture was also referred to when the freedom of the viewers’ choice was limited, imposing an increased share of European-produced programmes and independent television production (Sage, 2008, pp. 757). Among the actions carried out in order to meet the requirements of cultural policy, the earliest ones seem to be the most significant. As early as in 1989, the TVWF directive introduced the so-called “screen quotas” and “independent producers’ quotas” (Art. 4-5), specifying a minimum amount of air time which is to be allotted for broadcasting programmes of European producers and of independent producers (Miąsik, 2000, pp. 76). The aim was to support the cultural growth of the Member States and to facilitate the preservation of diversity within the EU (Matlak, 2008, pp. 90-91). The promotion of European culture was confirmed also in both amendments of the directive, where the regulations concerning this issue were only slightly modified. Art. 4 of the AVMS directive, establishing screen quotas, is of crucial importance. Pursuant to its provisions, Member States shall ensure, where practicable and by appropriate means, that broadcasters reserve for European works a majority proportion of their transmission time. The directive specifies that this majority proportion should be achieved progressively, on the basis of suitable criteria. Consequently, the obligation of the Member States is not an absolute one, but is gelatinized against actual possibilities (Van den Bogaert, 2004, pp. 13). Another regulation (Art. 5 of the AVMS directive) introducing the so-called independent producers quotas, demands that Member States shall ensure, where practicable and by appropriate means, that broadcasters reserve at least 10 % of their transmission time or alternately at least 10 % of their programming budget, for European works created by producers who are independent of broadcasters. As in the previous case, this proportion should be achieved progressively, on the basis of suitable criteria. The directive does not specify the notion of an independent producer, leaving the definition of this term to the Member States. The AVMS directive, while amending the content of the previous text, broadened the scope of services covered by it, at the same time introducing a division of audiovisual media services into linear and non-linear ones. Linear services include, above all, television media and the broadcasting of audiovisual content on the Internet. Non-linear services include e.g. video-on-demand. The obligation to ensure a specific share of European works and independent productions was maintained with reference to linear services, while less restrictive requirements were provided for the second type of services. Art. 3i of the AVMS directive provides only that Member States shall ensure that on-demand audiovisual media services provided by media service providers under their jurisdiction promote, where practicable and by appropriate means, the production of and access to European works. Such promotion could relate, inter alias, to the financial contribution made by such services to the production and rights acquisition of European works or to the share and/or prominence of European works in the catalogue of programmes offered by the on-demand audiovisual media service. Despite a common agreement regarding the need to support the culture of the Member States, the institution of quotas itself has been criticized. It has been claimed in the literature that in their present form they do not properly reflect the aims of cultural policy (Burri-Nenova, 2007, pp. 1718). Even as regards the wording of Art. 4 of the AVMS directive, the use of an imprecise term is indicated – majority share, reference to broadcasters and not to television channels, as well as the lack of absolute obligation of the result. Also, the differentiation of demands made on providers of linear and non-linear services has raised certain objections. The institution of quotas is negatively assessed also from the perspective of its lawfulness, particularly as regards compliance with internal market freedoms and with primary legislation. | 631 Accusations concerning non-compliance with freedoms guaranteed in the Treaty reveal a dispute that exists in the sphere of audiovisual services between business aims and the aims of cultural policy. Undoubtedly, quotas constitute restrictions in the free movement of services. However, the community law permits them when they are motivated by non-business reasons (Mik, 1999, pp. 270-271). Commentators have rightly observed that quotas have only apparent economic aims – increasing the competitiveness of the European media market. Originally, they were aimed at the dissemination of European culture and protection of the artistic heritage of the Member States (Drijber, 1999, pp. 110). As regards the accusation concerning primary laws, particularly the freedom of speech guaranteed by Art. 10 of ECHO, it should be indicated that under the condition of economic inequality, the quotas themselves guaranteed preservation of the pluralism of opinions and ideas, preventing the domination of the market by American productions, and therefore, the limitation of programme choice for viewers (Mik, 1999, pp. 271). In other words, there is no obstacle to conveying information. On the contrary, the provisions of the Directive can be considered as the rules that guarantee effective access to information (Salvatore, 1992, pp. 986). 5. Conclusions From the moment the decision was made to adopt common regulations concerning the television market, the actions of the European Union have been marked by an economic approach. Therefore integration in this sector was based on business concerns. Undoubtedly, European law even today perceives audiovisual media primarily as a potentially profitable industry. As it is clearly visible from an analysis of the entirety of actions undertaken by the EU in regulating this market, the support of the European audiovisual sector (as one of the most important sectors of the EU service market) still remains a priority. These actions can be divided into forms of direct support (the elimination of instruments restricting freedom of movement of audiovisual services, introduction of the principle of the country of origin as regards the supervision over the broadcaster and standardization of legal regulations which the operators are subject to), as well as forms of indirect support (above all, the introduction of so-called “programme quotas”) (Sage, 2008, pp. 745-746). No major changes in cultural issues were made in the AVMS directive, which was accepted in 2007. It was most probably a result of the existing divisions within the EU and contradictions between economic and cultural aims. The literature draws attention to the fact that in spite of the 2007 amendment to the AVMS directive, there are still no new solutions directed towards the protection of the cultural identity and diversity of Europe (Burri-Nenova, 2007, pp. 1718). It seems that the EU still takes the view that the best measure for protecting European culture is to support the European audiovisual industry. Therefore, the aim of EU activities is, first of all, promotion of European works and increasing the competitiveness of the European market of broadcasters, particularly towards American entities. References Adamski, D., ed. Cieśliński, A. (2007). Wspólnotowe prawo gospodarcze. Tom II. Warszawa: C.H. Beck. Burri–Nenova, M. (2007). The new Audiovisual Media Services Directive: Television without frontiers, television without cultural diversity. Common Market Law Review. 6. pp. 1689 – 1725. Drijber, B.J. (1999). The Revised Television Without Frontiers Directive: Is It Fit for the Next Century? Common Market Law Review. 1. pp. 87 – 122. Matlak, A., ed. Barta, J., Markiewicz, R. & Matlak, A. (2008). Prawo mediów. Warszawa: LexisNexis. Miąsik, D. (2000). Dyrektywa telewizyjna w orzecznictwie Trybunału Sprawiedliwości Wspólnot Europejskich. Państwo i Prawo. 9. pp. 73 – 84. 632 | Mik, C. (1999). Media masowe w Europejskim prawie wspólnotowym. Toruń: Towarzystwo Naukowe Organizacji i Kierownictwa Dom Organizatora. Otheguy, P., ed. Pelski, M. & Szewczyk, M.K. (1998). Telekomunikacja i media audiowizualne w Unii Europejskiej. Łódź: Instytut Europejski. Sage, E.D., ed. Skubisz, R. & Skrzydło–Tefelska, E. (2008). Prawo Europejskie. Zarys wykładu. Lublin: Wydawnictwo UMCS. Salvatore, V. (1992). Quotas on TV programmes and EEC law. Common Market Law Review. 5. pp. 967 – 990. Stasiak–Jazukiewicz, E. (2005). Polityka medialna Unii Europejskiej. Warszawa: Wydawnictwo Sejmowe. Szewczyk, M. (2002). Polityka audiowizualna. Unia Europejska – Polska. Warszawa: Urząd Komitetu Integracji Europejskiej. Van den Bogaert, S. (2004). Dyrektywy Rady Unii Europejskiej o nadawaniu programów telewizyjnych. Podstawowe problemy. Przegląd Ustawodawstwa Gospodarczego. 1. pp. 11 – 17. Williams, K. (2008). Media w Europie. Wydawnictwa Akademickie i Profesjonalne. Wyrozumska, A., ed. Skubisz, R. & Skrzydło–Tefelska, E. (2008). Prawo Europejskie. Zarys wykładu. Lublin: Wydawnictwo UMCS. | 633 634 | Joanna Przyjemska Institute of Law Studies Polish Academy of Science [email protected] The right to be forgotten. Legal aspects Abstract The author discusses the project of the implementation of the so called right to be forgotten, which allows Internet users to delete certain information about them from the World Wide Web. While the idea of introducing such mechanism is desirable and commendable, the regulations proposed in the project, defining the boundaries of the right to be forgotten, contain numerous controversies and imprecisions. The author addresses the crucial drawbacks of the project. These include endangering the right to information, enabling misrepresentation of history and the problem of collecting the data about users’ personal interests and preferences for promotional purposes, which violates their privacy. The analysis of these issues leads the author to the conclusion that the right to be forgotten in its current wording and with the present structure of the Internet should not be put into practice. The regulations should ensure a balance between ensuring national security and guaranteeing the web users’ privacy. In addition, the author recommends a number of educational campaigns to make the Internet users aware of the consequences of a careless decision to publish texts or pictures on the web, which may cause them harm in the future. Keywords: EU law, Internet, data protection, human rights, privacy, right to information. 1. Introduction In the time of the dynamic development and popularization of the Internet and with the social and cultural changes that accompany this phenomenon there appeared a problem of the lack of control over private information stored on the Web. Private content that is once published in the Internet is often copied multiple times and published in different parts of the Web. This makes this private content virtually “perpetual”. If the nature of the content is favorable (information about achievements, recommendations) or neutral for the concerned person then the problem of “perpetuity” is virtually nonexistent. The situation changes when the published content is of the nature that can harm the reputation of a person (for example discrediting photos from a student party 10 years ago) or data that is disadvantageous but no longer relevant (information about past problems with financial solvency or past charges and allegations). The perpetuity of such data affects the whole future of the individual. The European Commission has announced that it is going to change union directives that pertain to personal data and its management. It is planned that any Internet user will be able to delete their personal data, which means that any user will maintain control over the nature of the personal information that will be published on the Web. In this paper the author will try to answer the question if the abovementioned regulation is a sign of an actual concern about respecting human laws in UE or perhaps just another beautiful | 635 and elevated notion. It is worth mentioning that there are different opinions on the topic backed on both sides with strong arguments. The topic is interesting and important as it concerns everyone. 2. The idea of “the right to be forgotten” The European Commission has announced that it is going to change the Union directive that pertains to personal data and its management. There is a plan to replace the Directive 95/46/EC of the European Parliament and of the Council of 24 October 1995 on the protection of individuals with regard to the processing of personal data and on the free movement of such data with the Regulation of the European Parliament and of the Council on the protection of individuals which regard the processing of personal data and the free movement of such data (General Data Protection Regulation). The General Data Protection Regulation will apply directly in Member States, without the need of implementation by local acts. Article 17 of this regulation provides the introduction of “the right to be forgotten”, which says: Point 1. The data subject shall have the right to obtain from the controller the erasure of personal data relating to them and the abstention from further dissemination of such data, especially in the relation to personal data which are made available by the data subject while he or she was a child (…) point 2.: Where the controller referred to in paragraph 1 has made the personal data public, it shall take all reasonable steps, including technical measures, in relation to data for the publication of which the controller is responsible, to inform third parties which are processing such data, that a data subject requests them to erase any links to, or copy or replication of that personal data. Where the controller has authorised a third party publication of personal data, the controller shall be considered responsible for that publication” The idea of implementation of this regulation is to make the Internet user able to delete their personal data, which means that any user will maintain control over the nature of the personal information that is published on the Web. According to Wojciech Wiewiórski, the Polish General Inspector for the Protection of Personal Data, the right to be forgotten can be understood in two ways: 1) The first concept assumes that it is the right for the information concerning the individual not to be published online if they do not wish for it and if there is no legal obligation for this information to be published; 2) The second concept concerns the data already present online for which an individual has a wish to be deleted. Wiewiórski continues that “it is the right to make some information about us, (also those true and unpleasant) to be forgotten by the society”. It should be taken as a kind of the institution of expungement in the virtual world (which means that after a period of time passes a crime is considered as if did not happened). 1 There are cases in which indeed the possibility of deletion of certain pieces of information from the Internet would be plausible. An example would be the case of the photos of discrediting nature that are posted online either by the individual in question or by other people (it is worth pointing out that nowadays young people very often do not hesitate to post pictures from drinking parties on which their friends are also visible). A couple of photos, comments and pieces of information can have a great impact on a future career of an individual, their personal life or at least cause distress or jokes on the part of coworkers or acquaintances. 636 | A typical scenario is a situation in which an HR recruiter types in the search engine window the name of the candidate for a job position in a company. As one of the first results a very discrediting photo might appear. Depending on the job position the candidate is applying for this could mean a quick rejection of the application based on the unfavorable judgment of the candidate qualities. A similar situation occurred to a Spanish citizen who, while typing his name in Google, on one of the first results found an information about the auction of his property because of overdue financial liabilities to social security. It is important to note that the claim was settled long time ago. After an unsuccessful demand of Google Spain and Google California to delete his data, he turned to the Spanish Personal Data Protection Agency Agencia Española de Protección de Datos (AEPD). The Agency ordered Google and Google Spain to delete personal data of this man from the search index. Google appealed the decision to the court, which did not settle the matter, however it asked the European Court of Justice a series of questions. The spokesman for ECJ issued a statement in which he concluded that “authorities cannot force Google to delete legal information from the search results pages which were made public before. This would mean interference with the freedom of speech of the website publisher”.2 This opinion most likely will be backed by European Court of Justice verdict in this matter that will soon be issued. Conclusion – introduction of the right to be forgotten is a difficult matter. To show the validity of the reasoning of the ECJ spokesman we should also address the case of the killer of a German actor Walter Sedlmayer. Sedlmayer›s killer requested from Wikipedia administrators to remove his data from an article about Sedlmayer. The request was based on the judgment of a German court, according to which the name of the murderer cannot be given in the publications on the death of the actor. Another example of interference with the freedom of speech in connection with the proposed introduction of the right to be forgotten is the case of the first lady of the Peoples Republic of China – Mrs. Peng Liyuan, the wife of the President Xi Jinping, whose task was to warm up the image of her husband and her country in the arena of international politics. Unfortunately the efforts of the pro-government TV that was portraying her as a model citizen with a heavenly voice and sophisticated taste came to nothing when Peng Liyuan’s old photos showed up in the Internet, on which she, dressed in a military uniform, was singing for the regime soldiers, who pacified the protest of students on the Tiananmen Square in 1989 (according to the Chinese Red Cross, around 2600 demonstrators were killed by the regime). The Chinese Government requested to delete this photography from the Internet immediately. Based on the discussed examples it is easy to notice that as far as the application of “the right to be forgotten” in its current shape goes, there is a conflict between the protection of privacy on the one hand and the freedom of speech and the right to information on the other. An argument against the introduction of the right to be forgotten is that imprecise regulations can easily cause manipulation of the history. At this point we should refer to the statement by Kelly Curies, a human rights expert in People’s Republic of China and a member of prodemocratic organization Project 2049, who commented on the publication of Peng Liyuan’s photos “«I think that we have a lot of people hoping that because Xi Jinping walks around without a tie on and his wife is a singer who travels with him on trips that maybe we›re dealing with a new kind of leader, but I think these images remind people that this is the same party,» 3 The manipulated Chinesse people forgot the amiable first lady is still a member of the political party responsible for the Tiananmen massacre. While such a situation might happen in a totalitarian state, in the member-states of the European Union one cannot allow for a law that would even indirectly make it possible to falsify history. That would endanger freedom of speech with respect to providing and searching for information. Such a solution would be also dangerous because of the necessity for the full access to the | 637 information about public figures. One could raise an argument that the right to be forgotten concerns mainly people who share their personal information before turning 18. Mariusz Krzysztofek points out that “This cases corresponds to ratio legis art. 17 of the regulation, which attributes to “the right to be forgotten” the function of expungement in the Internet of the data that might have a long lasting influence for example on the professional life of a person it concerns, and which person by making it public did not command necessary experience to consciously foresee the consequences of such a move.”4 One should however state that “especially” – the term used by the legislator – does not leave any doubts that the law concerns also the individuals who were already adults when sharing their personal data. Krzysztofek reasonably argues that the right “applies in particular to children but not solely to them”. 5 It should be clearly stated that the right to be forgotten means not only the possibility to delete certain data on the request of the eligible subject. It is also the right to “forget about” the data the existence and scope of which the Internet users are even not aware of. This matter is discussed below. 3. Geolocalisation data and cookies Another problem in the area of personal data protection in the Internet is the practice of collecting all kinds of data: geolocalisation data of the Internet users, information about the types of websites visited by an individual, his preferences: culinary, musical, political and even sexual. Based on such a collection of data it is easy to create a user profile – a detailed characteristic of a given Internet user – this can be used among other things for targeting at them personalized advertisement. Popularity of such type of advertising is increasing, mainly due to the fact that personalized advertising creates better chances for clicks and conversion. The tools that enable monitoring of users’ behavior are so called cookies. Thus almost every action of the Internet user can be successfully monitored and analyzed. Having that in mind Grupa Robocza 29 decided on adding IP address to the set of personal data, reasoning that IP address might be used to identify and individual by the providers of Internet services. What is more, the European Parliament resolution from 6 July 2011 on a comprehensive approach on personal data protection in the European Union expressed a concern „about the abuses stemming from online behavioral targeting” and it was pointed out „that, under the directive on privacy and electronic communications, the prior explicit consent of the person concerned is required for the display of cookies and for further monitoring of his or her web-browsing behaviour for the purpose of delivering personalized advertisements”6. Also the documents points out that the European Parliament „fully supports the introduction of a general transparency principle, as well as the use of transparency-enhancing technologies and the development of standard privacy notices enabling individuals to exercise control over their own data; stresses that information on data processing must be provided in clear, plain language and in a manner that is easily understandable and accessible”7 European Parliament also underlined, „the importance of improving the means of exercising, and awareness of, the rights of access, of rectification, of erasure and blocking of data, of clarifying in detail and codifying the ‘right to be forgotten’ and of enabling data portability, while ensuring that full technical and organisational feasibility is developed and in place to allow for the exercise of those rights; stresses that individuals need sufficient control of their online data to enable them to use the internet responsibly”8 All these recommendations have been realized in the new regulations on cookies with which Internet users of the European Union deal every day. Information that the visited website collects 638 | data about the user behavior comes in the form of a message on this site. Its role is to bring to the Internet users› attention the fact that they are monitored and the data collected upon their actions is stored and analyzed. Unfortunately this implementation seems to many as a failure. Differently designed message windows that popup on every website in European Union instead of bringing useful information, just annoy the users of the Internet. The message is more or less useless. The person who visits the site is still monitored by the cookies, so the only thing they can do is to delete all the cookies which many users find difficult to do and which also has many disadvantages because most of the cookies are useful. What is worth to mention, is that in the article 17 the legislator numbers the cases in which the right to be forgotten is applied a) the data are no longer necessary in relation to the purposes for which they were collected or otherwise processed b) the data subject withdraws consent on which the processing is based according to point (a) of Article 6(1), or when the storage period consented to has expired, and where there is no other legal ground for the processing of the data; c) the data subject objects to the processing of personal data pursuant to Article 19; d) the processing of the data does not comply with this Regulation for other reasons The point a) of the abovementioned Article 17 corresponds with the rule of time limit which is applied in processing personal data. Thus the controller of the data should state the timeframe within which the data of the subject will be processed. Simultaneously, point 7 of the Article obliges the controller to implement mechanisms to ensure that the time limits established for the erasure of personal data and/or for a periodic review of the need for the storage of the data are observed. It should be however pointed out that the “calling upon this premise might be rejected by the controller especially when processing is necessary for compliance with a legal obligation to which the controller is subject or processing is necessary for the performance of a task carried out in the public interest or in the exercise of official authority vested in the controller”; (Article 6(1c,1e)).9 M. Krzysztofek comments upon this issue: “not overruling the protest of the data subject against the data processing would be in these cases against the legal regulations under which the collector operated”.10 A special attention is required when analysing Article 17 (1b) which introduces the possibility of consent withdrawal by the data subject on which the processing is based.11 It is also possible to issue a consent for processing with a time limit. If there is no other reason for data processing (as stared in Article 6(1b-f)12 data erasure by the controller is mandatory. It is also worth to comment upon Article 19 which regulates the issue of the right to object.13 On the strength of this article “the data subject shall have the right to object, on grounds relating to their particular situation, at any time to the processing of personal data which is based on points (d), (e), and (f) of Article 6 (1) unless the controller demonstrates compelling legitimate grounds for the processing which override the interests or fundamental rights and freedoms of the data subject”. When analyzing this wording one should come to a conclusion, that objecting by the data subject will not always be met by the controllers compliance. The legislator bases the possibility of taking the objection on the part of the data subject on collector’s judgment if the situation of the data subject is special or if there are important and validated reasons to further process the data, which override the interest and the basic rights of the subject data. | 639 It is worth mentioning that the most common objection to personal data processing concerns companies sending annoying promotional materials. This problem has been addressed in Article 19 Paragraph 2, which gives the data subject the right of objection – free of charge - against processing his/her personal data for marketing purposes (this applies to direct marketing). Moreover, the information about this right should be communicated clearly, in a manner easy to understand, so that it can easily be recognized as different from any other information. Open and clear information about the right of objection will increase the efficiency of data subject protection. It should be stressed that the article in question does not provide a possibility to dismiss an objection against the continuation of direct marketing. Also, Art. 19 Paragraph 3 implies that a successful objection in this case prevents the controller from using or processing the subject’s data. This shows that a controller of the data used for direct marketing is obligated to accept an objection, unlike in the case of Art. 19 Paragraph 1, wherein the controller can decide to dismiss it. It is also interesting to consider other reasons for which personal data processing can be incompatible with the regulations discussed here. M. Krzysztofek believes that the legislator had in mind the principle of legality – one of the basic rules of processing personal data, according to which the data must be processed in accordance with the law, which entails: - compliance with the duty of processing the data based on at least one of the premises of data processing; - compliance with the right of information; - allowing the subject to realize his right to access the data; - the necessity to introduce measures to ensure the security of processing the data. Failure to comply or any insufficiency in compliance with these duties results in inadmissibility of processing the data. The regulations introduced in Art. 17 Paragraph 1 (a-d) give the subject the right to demand to delete his data. However, the above mentioned premises obligate the controller to delete the subject data even without the subject’s demand. Thus, under these regulations, the right to demand the deletion applies when the controller has not deleted the data despite his duty to have done so. In the light of Art. 17 Paragraph 2, the data controller is not only obligated to erase the data which the subject demands be deleted, but also to “take all reasonable steps, including technical measures (…) to inform third parties which are processing such data (...) to erase any links to, or copy or replication of that personal data.” This creates a legal uncertainty, because the legislator did not determine what measures are considered reasonable and which are not. This issue will only be decided in judicial practice. 4. Technical remarks Technical remarks on the implementation of the right to be forgotten are devastating. European Network and Information Security Agency (ENISA), which conducted the work on the EU project of the law came to the conclusion that the new regulations in this matter are impossible to be observed in the open Internet. According to ENISA putting this idea into practice would require the destruction of the existing Internet and constructing it a new one, under new regulations. The problem has been addressed by the representatives of the enterprises associated in Business Europa, who argue that „the right to be forgotten” is impossible to practice. In accordance with the new regulation, the controller of personal data not only has to delete the subject’s data if asked, but is also obligated to inform third parties which are processing such data. Such an opera- 640 | tion is very difficult to carry out, or even unrealistic, because no one has the possibility to control what is happening with information which is available for the public. Every user of the Internet may copy it many times and place it in the different part of the Internet. Indeed, such information may be copied and converted by thousands of the Internet users. The only way to reach the third party, who copied the data is to install so called „tracking cookies”, the problem being that such a solution is prohibited by the telecommunication law of the EU. 5. Summary The idea to introduce „the right to be forgotten” into the virtual world as a mechanism similar to the expungement of criminal record is commendable, but not without exceptions. Since the information about a person in the web has real influence on this person’s future, the deletion of certain content is actually indispensable. While people close to us will forget some embarrassing events from our past, the Internet makes them come back all over like a boomerang. For the internet user the possibility to decide which information about him or her is available in the web is of great importance; it allows us to control what others know about us and provides a certain amount of privacy. It should be noted though, that the regulation of “the right to be forgotten” is very complex and multilayered. As pointed out above, the project of the regulations introducing this law is in need of specification. The current text contains imprecisions, which can lead to arbitrary decisions concerning private enterprises and state authorities. To minimize the risk of non-compliance with the right of information and misrepresentation of history, the legislator should consider especially the issue of boundaries of the application of this law with regard to private persons and public figures. Another problem which should be addressed is how to keep a balance between the right to information and the right to privacy. Moreover, the right to be forgotten ought to be made as specific as possible, so as to avoid legal uncertainty in the application of its regulations. Other regulations in need of improvement concern collecting internet users’ data for promotional purposes by means of so called cookies. The currently appearing messages informing the users about web pages using cookies, are technically redundant. Note that the information about the user is recorded at the moment of opening a given web page (before the information box is displayed). Furthermore, the only way for the user to block sending these files requires changing the browser settings. These messages have therefore no practical value for the user other than cluttering the screen. It should be remembered that these nagging messages give the user no other option than “I agree”. This situation illustrates how far the legislator can wander away from the real needs of internet users in the name of almost fanatical concern with illusory privacy. Any attempt to regulate the internet leads to the clash of two needs: ensuring national security in the face of terrorism and cybercrime on the one hand, and protecting the privacy of internet users on the other. It is common knowledge that the whole Internet is already being monitored by security services due to the alleged terrorist threat. It is therefore of little importance whether our activities in the World Wide Web are being followed for advertisement purposes or for military ones. All the data on the web users is constantly recorded and stored despite the disapproval of the information society and the non-governmental organizations devoted to the defence of human rights In the current state of affairs, the only way to efficiently prevent the leaking of undesirable information to the internet is full control over their publication. Every time before the publication of a text or a picture we should reflect on whether we want a very large number of people to have access to this information. | 641 Taking into consideration the current structure of the internet, including the illegality of so called tracking cookies, it must be concluded that a demand to remove certain content from the web is practically impossible to meet. Therefore, particular stress should be put on the need to educate internet users on the dangers of using the World Wide Web and to create the awareness of the irreversibility of their steps in the virtual world. References European Parliament resolution of 6 July 2011 on a comprehensive approach on personal data protection in the European Union (2011/2025(INI). Available online at: <http://www.europarl. europa.eu/sides/getDoc.do?pubRef=-//EP//TEXT+TA+P7-TA-2011-0323+0+DOC+XML+V0// EN> [Accessed 20 May 2013]. Krzysztofek, M. (2012), Prawo do bycia zapomnianym i inne aspekty prywatności w epoce Internetu w prawie UE, Europejski Przegląd Sądowy, sierpień 2012, pp. 29-34. Maj, M. (2013), Google nie odpowiada za dane osobowe w wynikach uznał Rzecznik Generalny ETS, Dziennik Internautów Biznes i Prawo. Available online at: <http://di.com.pl/ news/48414,0,Google_nie_odpowiada_za_dane_osobowe_w_wynikach_uznal_Rzecznik_ Generalny_ETS-Marcin_Maj.html)> [Accessed 15 May 2013]. News.com.au, (2013), China’s first lady Peng Liyuan sang for Tiananmen troops, News.com.au. Available online at: <http://www.news.com.au/world-news/chinas-first-lady-peng-liyuansang-for-tiananmen-troops/story-fndir2ev-1226608795451#ixzz2XpPkM7dF> [Accessed 20 May 2013]. Rzeczpospolita Prawo, (2012), GIODO: Poczekajmy na przepisy UE ws. wymazywania danych z internetu, Rzeczpospolita, Rzeczpospolita Prawo, Available online at: <http://prawo.rp.pl/artykul/833086.html> [Accessed 15 May 2013]. (Endnotes) 1 Rzeczpospolita Prawo, (2012), GIODO: Poczekajmy na przepisy UE ws. wymazywania danych z internetu, Rzeczpospolita. Available online at: <http://prawo.rp.pl/artykul/833086.html> [Accessed 15 May 2013]. 2 Maj, M. (2013), Google nie odpowiada za dane osobowe w wynikach uznał Rzecznik Generalny ETS. Available online at: <http://di.com.pl/news/48414,0,Google_nie_odpowiada_za_ dane_osobowe_w_wynikach_uznal_Rzecznik_Generalny_ETS-Marcin_Maj.html)> [Accessed 15 May 2013]. 3 News.com.au, (2013), China’s first lady Peng Liyuan sang for Tiananmen troops, news.com. au. Available online at: http://www.news.com.au/world-news/chinas-first-lady-peng-liyuansang-for-tiananmen-troops/story-fndir2ev-1226608795451#ixzz2XpPkM7dF [Accessed 20 May 2013]. 4 Krzysztofek, M. (2012), Prawo do bycia zapomnianym i inne aspekty prywatności w epoce Internetu w prawie UE, Europejski Przegląd Sądowy, sierpień 2012, s. 31. 5 Ibidem, s. 31. 6 European Parliament resolution of 6 July 2011 on a comprehensive approach on personal data protection in the European Union (2011/2025(INI), point 14, access 20.05.2013. Available online at: <http://www.europarl.europa.eu/sides/getDoc.do?pubRef=-//EP//TEXT+TA+P7-TA2011-0323+0+DOC+XML+V0//EN>. 7 Ibidem, point 15. 8 Ibidem, point 16. 642 | 9 10 11 12 13 Read more: <http://protectmydata.eu/articles/articles-1-10/article-6/> Krzysztofek, M. (2012), Prawo…, s. 32. Read more: <http://protectmydata.eu/articles/articles-11-20/article-17/> Read more: <http://protectmydata.eu/articles/articles-1-10/article-6>/ Read more: <http://protectmydata.eu/articles/articles-11-20/article-19/> | 643 644 | Daniela Čičkánová [email protected] Soňa Ondrášiková [email protected] Comenius University in Bratislava Rights of future generations in the context of right to informational self-determination Abstract Article informs about rights of future generations and responsibility of living generation for the future of the mankind in the context of protection of privacy rights, especially of right to informational self – determination, which guarantees everyone the right to handle with ones´ own personal data. Key words: future generations, responsibility, human rights, protection of privacy, right to informational self – determination, Gaskin, camera recording, personal data 1. Introduction Human rights are considered to be interrelated, interdependent and indivisible rights, which belong to every human being. As a result, character of human rights is purely cosmopolitan and based on universal principle, thus, they represent a fundamental part of the doctrine, according to which all human beings are equal citizens of one unique world and there is no place for discrimination among them. In the light of this idea, human beings should not only be considered as inhabitants and citizens of their respective states, but, bearing in mind human rights principles and doctrines, they should primarily be considered as a part of international legal order, which formally guarantees legal certainty, peaceful life and incredible number of life opportunities to every person living on the Earth. However, the principles on which human rights are founded subordinate to progress of mankind. Both human rights and progress of humanity have to develop jointly under the rules of international community. One of the most important consequences of the development of human race, (although the question whether recent development leads towards the progress or degradation of humanity is arguable) are new trends, ideas, terms and institutions emerging even in seemingly unchangeable area of law - in the doctrine of human rights. Technical and scientific expansion has completely and fully changed the well – known way of daily existence of human beings – mostly those living in the developed parts of the world. We are the ones who have to deal with the new challenges brought by our ancestors and ourselves. We need to find a responsible and peaceful passage between the old and new age, and this can be achieved by making use of recently created idea of human rights of future generations. This topic will be introduced and further analysed in following contribution. Moreover, since personal data´s power and value objectively gain a surprising dimension in our informational age, this article is focused on a protection of privacy rights and threats of its unlimited use. | 645 2. Idea of Rights of Future Generations Over the last decades, human kind has started to realize that in order to ensure the survival of human race, it is vital to consider the impact of today´s decisions on future generations.1 As this idea started to develop into more sophisticated legal theories a term “rights of future generations” has become a solid part of political or legal discussions. In this paper, the focus will be placed on the recent development of the doctrine of rights of future generations and the practical consequences of the evolution of this doctrine, more specifically, we will try to analyse the practical impact of this doctrine on the emerging new type of human rights - the right of informational self- determination, as a part of a system of privacy rights. Firstly, we find it useful to provide at least a brief introduction to the concept of the rights of future generations’ doctrine. In order to find a definition for the term “rights of future generations” it is necessary to consider its interdisciplinary character. There are several points of view that one should consider when trying to define this term. In political philosophy, the question of the rights of future generations makes part of an analysis of the so called intergenerational justice.2 This theory aims to answer questions similar to these ones: - Is it morally and ethically acceptable that future generations will have to bear the burden of our actions and our debts? - Should we consider ourselves as only the holders, not the legal owners of the Earth, and should we be keen on maintaining it for its legal owners – future generations?3 - Are we considering future generations as a part of the humanity when we decide on perilous themes that will directly concern future persons without ponderingly considering what their opinion would be?”4 - On the other hand, even if we are ready to admit that the present generation is morally responsible for the quality of life of people who come to live on this planet after us, what kind of rights should we confer to subjects who are not yet existing and cannot define for themselves the exact scope of rights they would like to enjoy? 3. Purpose of the Doctrine Until now, the doctrine of the rights of future generations has been applied with regards to the rights that might be classified as the third generation of human rights – which includes right to enjoy the conserved environment, right to peace, etc. Such development is rather logical if we take into account the current state of the world – degrading biodiversity, ecological catastrophes, overpopulation, economic crisis, war conflicts and humanitarian crisis. However, we express our opinion that rights of future generations is a term that should be construed in a way that it confers specific rights on future generations of mankind, the goal of which is not only to guarantee the pure survival of mankind, but also to maintain a certain quality of life conditions. 4. Definition of Mankind Mankind is often understood as a quantity of all people living on planet Earth. However, a number of theorists include in the definition of this term all those who came before us since the beginning of the world. Naturally, this attitude towards defining the said term raises question whether our descendants should also be considered as a part of humanity - a part of mankind? In order to answer this question, theory offers two aspects of defining humanity: the first one is horizontal and it refers to space, which means that humanity is understood as the total of all living human beings. The second one is vertical and it refers to time –humanity is therefore considered 646 | as an entirety of past, present and future generations of human beings. 5 In order to guarantee acceptable life standards for mankind – the term being used in its more extensive meaning, so it includes the future generations of current population – we have to be able to recognize the priorities and values that are important for people and which require efficient protection. 5. Value of Privacy Due to continual development of societal organization and of modern enterprise and invention, there currently exist more dangerous threats to the individual than at the times when judges of the Supreme Court of USA, Mr. Warren and Mr. Brandeis, constituted the first and very famous definition of privacy expressed in the following statement: “The makers of our Constitution undertook to secure conditions favourable to the pursuit of happiness. They recognized the significance of man’s spiritual nature, of his feelings and of his intellect. They knew that only a part of the pain, pleasure and satisfactions of life are to be found in material things. ... They conferred, as against the Government, the right to be let alone — the most comprehensive of rights and the right most valued by civilized men.“ 6 Nowadays, the protection of privacy rights is not only a symbol of the highest, leading and inviolable principles of democratic and legal society, but, moreover, as a result of interdisciplinary character of this group of rights and internationalization and globalization of law, it is constituted in the basic legal codes of every intrastate legal order. In the Slovak Republic the basic protection of privacy may be found in the act No. 460/1992 Coll. that is the Constitution of the Slovak Republic and in the act No. 40/1969 Coll. Civil Code, and, concurrently, in other act of civil, commercial, labour, administrative or different respective areas of law. However, in accordance with the aforementioned, a guarantee of protection of every individual´s private and family life is stipulated especially in the international and European agreements and conventions, e.g. European Convention on Protection of Human Rights and Fundamental Freedoms (Article 8), Charter of Fundamental Rights and Freedoms (Article 10), Charter of European Union (Article 7), etc. Nevertheless, the enormous amounts of personal data, which is available nowadays in computers or different technical gadgets, threaten the individual in such a way that a majority of the existing legal protection is rendered obsolete. Privacy as a general term referring to all aspects of one´s private life is a value that nowadays is being taken for granted so that people might not realize to the full extent its importance and its vulnerability. Only when one becomes victim of a breach of privacy they fully recognize its true value. Actually, the true value of privacy has already been recognized at the legal level. Development of privacy rights allowed for an apparition of a modern branch of human rights. The purpose of this paper is to underline the need to define, analyse and set the core principles of this emerging collective human right, since once the fundamental basis, the guiding principles, and the boundaries of this human right are set, the future generations can further develop it according to their actual needs and can benefit from it efficiently. This new view of the human rights protecting privacy is primarily related to the development of science and technology. Introduction of new powerful gadgets, that few decades ago we considered to be only brave unrealistic ideas, has pushed the boundaries of human power, which can be used both in positive and negative ways. The current decisions of our generation might establish the values of tomorrow and stipulate possibilities for peaceful use of technologies in a new world. In the contrary, our recklessness would open the gates for an abuse of scientific progress. We should not confuse the technological development and the concept of progress of humanity. These are two different terms that are not necessarily linked, but which should coexist in mutual harmony and develop at the same rhythm. Ulrich Beck reminds us that “along with the growing | 647 capacity of technical options grows the incalculability of their consequences.”7 If technology development impedes the development of humanity, the development of human rights, we risk facing the worst crisis ever, the crisis of humanity. As it was mentioned before, privacy has become a vulnerable value. Personal data and personal information have undeniable economic value. All sorts of institutions, both in private and public sectors, seek to collect personal data of people. This helps them to find their target groups and to make bigger profits. Thus, personal data has become valuable merchandise. However, people – the bearers of personal data, might not see this aspect and very often they pay very little, if any, attention to the protection of their personal data. They do not see that not only could their personal data be used for economic purposes without their consent, but also they can be abused in more serious ways. Starting with uncomfortable spams, it continues with stalking, identity stealth and we cannot exclude that in the future we find other ways of parasitizing on personal data of others. Hence, legal protection of privacy has started to gain more importance in national and international level, and, in addition, the adjustment of its lex specialis areas has started to attract more attention of legal specialist from academic and practice community. One of the very new rights that have been created in compliance with the idea of necessity of stronger protection of human private and family life in order to strengthen the role the privacy -whose protection means free development of consistency of the individuality of everyone - is right to informational self – determination. 6. Right to Informational Self - Determination Right to informational self – determination belongs between one of the answers to global modernization accompanied by the increasing value of privacy. Moreover, it is one of the fundamental human rights and freedoms, which creates a personality and individual integrity of every human being. Judges, who have been already mentioned, Mr. Warren and Mr. Brandeis, declared that the right to privacy means right to be left alone. 8 The level of observance of this so – said antitotalitarian right is now considered to be a measure of degree of democracy in a respective state. Right to informational self - determination is often considered to be similar to the right to privacy but it has some unique characteristics, which have been explored in previous text, that distinguish it from a broad term “right to privacy”. It declares the idea that personal data is a very important part of private and family life and its protection guarantees free development of an individual. At the same time, the protection of self – determined development of the individual is a precondition for a free and democratic communication order. If citizens cannot oversee and control which or even what kind of information about them is openly accessible in their social environment and if they cannot even appraise the knowledge of possible communication partners they may be inhibited in making use of their freedom. If citizens are unsure whether dissenting behaviour is noticed and information is being permanently stored, used and passed on, they will try to avoid dissenting behaviour so as not to attract attention. 9 As a result of the relationship with a general right to privacy, the legal grounds of right to informational self – determination are determined by an extensive interpretation of definitions and guarantees of right to privacy enshrined in the human rights´ treaties as European Convention on Human Rights, the Universal Declaration of Human Rights or Charter of Fundamental Rights of the European Union, etc. The exact term “right to informational self – determination” was firstly used in the context of a German constitutional ruling relating to personal information collected during the 1983 cen- 648 | sus (informationelle Selbstbestimmung). On that occasion, the German Federal Constitutional Court (Bundesverfassungsgericht) ruled that: “... in the context of modern data processing, the protection of the individual against unlimited collection, storage, use and disclosure of his/her personal data is encompassed by the general personal rights. This basic right warrants in this respect the capacity of the individual to determine in principle the disclosure and use of his/her personal data. Limitations to this informational self -determination are allowed only in case of overriding public interest.” In this decision, German Federal Constitutional Court established the new basic right, which is the legal anchor for data protection not only in German constitution, but at least partially it penetrated to all European legal orders and become a core stone for drawing up Directive 95/46/EC of the European Parliament and of the Council of 24 October 1995 on the protection of individuals with regard to the processing of personal data and on the free movement of such data. Moreover, the decision belongs to the most importation decisions in the history of German data protection and its reasoning is by far more important than the concrete outcome of the case. 10 In summary, right to informational self – determination is the right of the individual to decide what information about oneself should be communicated to others or public and under what circumstances. As a result, it prevents sensitive information from one context, e.g. the working world, medical treatment, family life, etc., from proliferating into other ones, 11 such as business and commercial use of information by entrepreneurs and corporations. 7. Content of Right to Informational Self - determination The way in which the additional information is gathered bears substantial linking of the data, because though the combination and the linking of seemingly harmless information, new and maybe even sensitive data can be generated. 12 As a result of these activities of states, organizations, corporations or any other different subjects, the personal data, which one never wants to be disclosed, has become known for a variety of purposes. Basic idea of right to informational self – determination could be defined as a creation of shield from interferences in personal matters, thus formation of a sphere in which one can feel safe from any interference. At the same time, data protection is also a precondition for citizen’s unbiased participation in the political processes of the democratic constitutional state. As it was said before, the right to informational self – determination is not only granted for the stake of the individual, but also in the interest of the public, to guarantee a free and democratic communication order. 13 Nevertheless, content of this right is still not completely clear since it is closely connected with dynamic technological development and also with the increasing popularity of social networks, which represent a new way of social life. However, it is possible to divide the content of this right to four subgroups. In compliance with legal literature and practice of the European Court of Human Rights, right to informational selfdetermination consists of: a) Collection of personal data by the persons with special obligation of secrecy; b) Collection, storage and use of personal data for the purpose of national security; c) Right to have an access to information about oneself; d) Collection and use of pictorial, audio and other records. 14 Ad a): Collection of personal data by the persons with special obligation of secrecy is permitted between particular professions such as doctors and lawyers. The confidentiality of these | 649 professions was often tried in front of European Court of Human Rights. However, the importance of protection of right to informational self – determination in the field of medical or legal care was claimed to be more powerful and important than different rights guaranteed by the Convention for the Protection of Human Rights and Fundamental Freedoms (hereinafter referred to as “Convention”). One of the famous examples of aforesaid decisions is the ruling in the case I v. Finland15, in which the European Court of Human Rights (hereinafter referred to as “ECHR” or the “Court”) held that the protection of personal data, in particular medical data, is of fundamental importance to a person’s enjoyment of his or her right to respect for private and family life as guaranteed by Article 8 of the Convention. Respecting the confidentiality of health data is a vital principle in the legal systems of all the Contracting Parties to the Convention. The domestic law must afford appropriate safeguards to prevent any such communication or disclosure of personal health data as may be inconsistent with the guarantees in Article 8 of the Convention. 16 As a result, the general principle declares that protection of right to informational self – determination in the context of such a serious topic as medial or legal confidentiality is, has to be more powerful than interests of the public, at least in standard situations. Recently, ECHR decided the case Michaud v. France17 in which it had to rule whether French law obliging the legal practitioners to report any suspicious behaviour of their clients to state authorities as a measure of prevention of money laundering, breaches the Convention. The applicant, Mr Michaud, is a member of the Paris Bar and the Bar Council. In his application, he submitted that French domestic law - Monetary and Financial Code, which is based on Directives of European Union aimed at preventing the use of the financial system for money laundering - represents a threat to professional privilege and the confidentiality of exchanges between lawyers and their clients. More specifically, the applicant argued that there is a breach of Article 8 of the Convention, which reads: “1. Everyone has the right to respect for his private and family life, his home and his correspondence. 2. There shall be no interference by a public authority with the exercise of this right except such as is in accordance with the law and is necessary in a democratic society in the interests of national security, public safety or the economic well-being of the country, for the prevention of disorder or crime, for the protection of health or morals, or for the protection of the rights and freedoms of others.” The applicant pointed out that the above cited Article 8 of the Convention protected legal professional privilege and that the confidentiality of lawyer-client relations was indivisible: the law governing the legal professions specified that it applied both to defence and to advisory activities and concerned all the activities of lawyers and the files they dealt with. Moreover, the applicant complained that the domestic legislation in question was unclear and failed to give lawyers sufficient amount of definitions as to what kind of “suspicious activities” they are obliged to report (under the threat of facing disciplinary sanctions should if they fail to fulfil their reporting obligation) fall within its scope. Even though the applicant did not deny the need to combat money laundering, he did consider that it was disproportionate, in pursuit of that aim, preventively to oblige lawyers to report any suspicions regarding their clients’ activities to a financial intelligence unit thereby practising what one might call “self-incrimination by proxy” and breaching their duty of confidentiality. It is interesting to note that in this case, the Court had the opportunity to examine the right to confidentiality of data from the point of view of those who treat such data in the course of their professional activities – lawyers, or more precisely attorneys, members of the Bar. In the opinion of the Court, the obligation to report suspicions concerning their clients´ activities amounts to a “continuing interference” with the applicant’s enjoyment, as a lawyer, of the rights guaranteed by Article 8, even if it is not the most intimate sphere of his private life that is affected but his right to respect for his professional exchanges with his clients.18 From this perspective, we can observe a positive trend 650 | in the development of the doctrine of the right to informational self-determination, even though in this specific case the Court finally held that there was no violation of the Article 8 of the Convention, since the interference in question was not against the law and it pursued a legitimate aim.19 Ad b): Collection, storage and use of personal data for the purpose of national security takes place in the cases when the public interest outweighs the legitimate interests of individuals. 20 However, the state cannot be considered as one data processor. Rather there has to be an informational separation of powers, which means that the state consists of different entities, which are all considered to be separate data collectors. Any data transfer from one state entity to another is thus an act of data processing, which must be based on a legal provision, which meets the high standards of clarity and certainty. 21 The basic principle of this part of law is that state authority should not interfere with the citizen’s right to privacy except when such action is in accordance with law and is necessary in a democratic society in the interest of national security, public safety or the economic well-being of the country, prevention of crime and protection of health, morals and freedoms of others. Because of this, every possible breach of right to informational self – determination shall be examined under the conditions of principle of legality, legitimacy and proportionality. As a result, protection of right to informational self – determination shall prevent citizens from the constitution of a potentially all – knowing state. In any case, it should not be forgotten that aforementioned principles are not applicable only to the cases where intrastate powers are involved, but also to the organization and running of the international organizations, especially NATO etc. Ad c): Right to have an access to information about oneself is a very specific category of right to informational self – determination. At the first sight it seems to be completely reasonable that each of us has right to know personal data about themselves, but what if one´s right to know information about oneself comes in conflict with someone’s right to protect his/her personal data? We would like to demonstrate this issue by short presentation of one of the most famous decisions of ECHR dealing with this problem, which is Gaskin v. the United Kingdom of Great Britain and Northern Ireland. 22 Graham Gaskin was a baby placed in public care in the UK, where he stayed until he reached his majority. Afterwards, Gaskin claimed he had been abused during his time in care and he requested access to the records kept on him. He was allowed to have only partial access, because the state authorities said it was a duty of confidentiality owed to third party (mother), who gave no consent to disclose her personal data. Gaskin appealed to the ECHR. The Court decided that Gaskin’s right to have his private and family life respected by the State (guaranteed by Article 8 of the Convention) had been breached by the British government because of procedural faults, but the Court also decided that people in Gaskin’s position, who had been in public care as children, should not in principle be obstructed from accessing their care records. In summary, the Gaskin case was a significant victory for individuals who were placed in public care as children. Such individuals now have limited access to their own records to the extent that knowledge and understanding of their childhood and early development will be revealed. Ad d): The most current topic of right to informational self – determination is collection and use of pictorial, audio and other records. This kind of right could be studied from two points of view: 1. Vertical reflecting the relationships between state and its citizens or other natural or legal persons, e.g. cameras in prisons. This one is under the regime of point b), which means that right to informational self – determination shall be examined under the conditions of principle of legality, legitimacy and proportionality. | 651 2. Horizontal that mirrors relationships between natural and legal persons without participation of state power, e.g. social networks, cameras in department stores. This dimension of right to informational self – determination will be analysed in the following case study. 8. Case Study We would like to present you a very new prejudicial question, which was filed to the Court of Justice of the European Union by the Supreme Court of Czech Republic only few months ago by ruling of the Supreme Court of Czech Republic, case no. 1 As 113/2012 - 59. A: Facts of the Case: Claimant sued the Office for Personal Data Protection of Czech republic (Office), which had fined him. In the past, claimant had had many problems with unknown offenders, who were damaging his house and other property of his family members on a regular basis. Since police failed to find the offenders, he placed a camera on the house, which was recording the surroundings of the house. This act was successful as the camera managed to record the offenders, who could finally be identified. One of the offenders filed a claim to the Office that his right to privacy, especially right to informational self – determination was breached. He was successful and the Claimant had to pay a fine for locating the camera which recorded people around the house without providing any special notice informing about such recording. The Claimant argued that the records were used exclusively for his private use to prevent his possession and health. B: Legal Ground: Directive 95/46/EC of the European Parliament and of the Council of 24 October 1995 on the protection of individuals with regard to the processing of personal data and on the free movement of such data (hereinafter referred to as “Directive”) sets up a regulatory framework, which was adopted to define the boundaries between a high level of protection of private and family life of individuals and the free movement of personal data within European Union. Directive constitutes an obligation of Member States to protect the fundamental human rights and freedoms, among which belongs a right to protection of privacy, through control over processing of personal data. Par. 12 of the Preamble of the Directive reads: “whereas the protection principles must apply to all processing of personal data by any person whose activities are governed by Community law; whereas there should be excluded the processing of data carried out by a natural person in the exercise of activities which are exclusively personal or domestic, such as correspondence and the holding of records of addresses;..” In accordance with the Article 3 par. 1 of Directive, the Directive shall apply to the processing of personal data wholly or partly by automatic means, and to the processing otherwise than by automatic means of personal data which form part of a filing system or are intended to form part of a filing system. In par. 2 it is stated that the Directive shall not apply to the processing of personal data by a natural person in the course of a purely personal or household activity. Under the Czech Act on Protection of Personal Data every recording of public space has to be announced to The Office for Personal Data Protection of the Czech Republic, and moreover, the subjects, which are recorded, have to be informed about this collection, storage and usage of their personal data, because their move or their face and appearance undoubtedly belong to the group of very personal privacy rights. C: Prejudicial Question: 652 | The problem that raised from this issue is whether the camera located on someone’s house to record its neighbourhood for the purpose of protection of the property, health and life of this person shall be qualified under the definition “in the course of a purely personal or household activity”, because in the case of negative answer it will be necessary to announce the installation to the Office and also to fulfil other legal duties. In conclusion, the question is: Is the right to informational self – determination more important and more protected than the right to possession? 9. Summary The abovementioned questions belong to a huge number of issues arising from the dynamic development of science and technology that must be solved by our generation. Our response to these challenges should be an efficient system of protection of human rights of future generations, because the way we will deal with it, will be a part of heritage for our descendants. As the general right of personality itself is based partly on the protection of human dignity, there is indeed a link between human dignity and data protection, although it is much more indirect than one might think. 23 References GIANOLLLA, C.: Vertical Cosmopolitanism: The Intergenerational Approach towards Human Rights of Future Generations. V: Pace diritti umani/Peace human rights. Venice: Marsilio Editori, 2010. Justice Brandeis, judge of the Supreme Court of USA about rigth to privacy in the judgment Olmstead vs. USA, 1928 BILLIER, Jean-Cassien, « Que devons-nous aux générations futures ? » (What do we owe to future generations?), CIPPA – Intergénérationnel, vol. I, 2012-2013, n° 1, available at: http://cippa. paris-sorbonne.fr BECK, U.: Towards a New Modernity. Translation: RITTER, M.: Sage Publications, 1992. In: GIANOLLLA, C.: Vertical Cosmopolitanism: The Intergenerational Approach towards Human Rights of Future Generations. V: Pace diritti umani/Peace human rights. Venice: Marsilio Editori, 2010. WARREN, S.D., BRANDEIS, L. D.: The Right to Privacy. Harvard Law Review, No. IV, 1890. HORNUNG, G., SCHNABEL, CH.: Data protection in Germany I: The population census decision and the right to informational self – determination. Computer Law & Security Report, Volume 25, Issue 1, 2009. HLADJK, J.: Online – Profiling und Datenschutz. 2007, p. 37. SVÁK, J., CIBULKA, Ľ.: Constitutional Law of the Slovak Republic (Ústavné právo Slovenskej republiky) EUROKÓDEX: Bratislava, 2009. THOMAS, R., WALPORT, M.: Data Sharing Review Report. July 11th 2008. Case law of the European Court of Human Rights Gaskin v. United Kingdom. Application No.10454/83, 7 July 1989. Michaud v. France. Application No. 12323/11, 6 December 2012. Antunes Rocha v. Portugal, Application no. 64330/01, 31 May 2005. Leander v. Sweden, Application no. 9248/81, 26 March 1987. | 653 Rotaru v. Romania, Application no. 28341/95, 04 May 2000. (Endnotes) 1 The idea of considering future generations in nowadays decisions can also be supported by the philosophy of cosmopolitism developed by philosophers like Socrates, Stoics, Immanuel Kant or Francis Fukuyama. The principles of cosmopolitism suggest that if we want to solve the issues which influence everyone in the civilization, we simply have to think under the scope of the whole civilization. We can reach the conclusion that current decision-making process should also include consideration for the survival of human civilization and should therefore respect future generations of people. 2 Intergenerational justice is a subject of scientific research at the International Center of Applied Political Philosophy (Centre international de philosophie politique aplliquée), an institute of Sorbonne University in Paris 3 BILLIER, Jean-Cassien, « Que devons-nous aux générations futures ? » (What do we owe do future generations?), CIPPA – Intergénérationnel, vol. I, 2012-2013, n° 1, p. 20, available at: http://cippa.paris-sorbonne.fr 4 GIANOLLLA, C.: Vertical Cosmopolitanism: The Intergenerational Approach towards Human Rights of Future Generations. V: Pace diritti umani/Peace human rights. Venice: Marsilio Editori, 2010. P. 107 – 108. 5 GIANOLLLA, C.: Vertical Cosmopolitanism: The Intergenerational Approach towards Human Rights of Future Generations. V: Pace diritti umani/Peace human rights. Venice: Marsilio Editori, 2010. 6 Justice Brandeis, judge of the Supreme Court of USA about right to privacy in the judgment Olmstead vs. USA, 1928 7 BECK, U.: Towards a New Modernity. Translation: RITTER, M.: Sage Publications, 1992. In: GIANOLLLA, C.: Vertical Cosmopolitanism: The Intergenerational Approach towards Human Rights of Future Generations. V: Pace diritti umani/Peace human rights. Venice: Marsilio Editori, 2010. 8 WARREN, S.D., BRANDEIS, L. D.: The Right to Privacy. Harvard Law Review, No. IV, 1890, p. 5. 9 HORNUNG, G., SCHNABEL, CH.: Data protection in Germany I: The population census decision and the right to informational self – determination. Computer Law & Security Report, Volume 25, Issue 1, 2009, p.85. 10 HORNUNG, G., SCHNABEL, CH.: Data protection in Germany I: The population census decision and the right to informational self – determination. Computer Law & Security Report, Volume 25, Issue 1, 2009, p.84. 11 HORNUNG, G., SCHNABEL, CH.: Data protection in Germany I: The population census decision and the right to informational self – determination. Computer Law & Security Report, Volume 25, Issue 1, 2009, p.85. 12 HLADJK, J.: Online – Profiling und Datenschutz. 2007, p.37. 13 HORNUNG, G., SCHNABEL, CH.: Data protection in Germany I: The population census decision and the right to informational self – determination. Computer Law & Security Report, Volume 25, Issue 1, 2009, p.86. 14 SVÁK, J., CIBULKA, Ľ.: Constitutional Law of the Slovak Republic. (Ústavné právo Slovenskej republiky). EUROKÓDEX: Bratislava, 2009. P. 137 – 138. 15 17 July 2008 654 | 16 see Z v. Finland, judgment of 25 February 1997, Reports of Judgments and Decisions 1997-I, §§ 95-96 17 see Michaud v. France, judgment of 6 December 2012, Application no. 12323/11 18 see Michaud v. France, judgment of 6 December 2012, § 92 19 In fact, the Court held that „with regard to the legitimate aim pursued and the particular importance of that aim in a democratic society, the obligation for lawyers to report suspicions, as practiced in France, does not constitute disproportionate interference with the professional privilege of lawyers.“ § 131 of the case 20 See also Antunes Rocha v. Portugal, Application no. 64330/01, 31 May 2005; Leander v. Sweden, Application no. 9248/81, 26 March 1987, Rotaru v. Romania, Application no. 28341/95, 04 May 2000 etc. 21 THOMAS, R., WALPORT, M.: Data Sharing Review Report. July 11th 2008. Recommendation 8a, p. 4. 22 Gaskin v. United Kingdom. Complaint No.10454/83. 1989. 23 HORNUNG, G., SCHNABEL, CH.: Data protection in Germany I: The population census decision and the right to informational self – determination. Computer Law & Security Report, Volume 25, Issue 1, 2009. P. 86. | 655