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Polonca KOVAČ
    PhD, Associate Professor
Europeanization of Legal Protection in (Individual) Administrative Matters
    Conference      Measures of Protection of Individual Rights in Public
Administration, Their System and Effectiveness
                      28–29 April 2016, Brno, Czech Republik
bill of rights.jpg

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iskanja slik za austria verwaltungs verfahren
A. Administrative matters from European perspective
•
1.Administrative law:  public prerogatives vs. individual subjects, exercising public
powers/authority – regardless of
üstatus of PA or other branch of power or private body; or
Øsupra- or sub- or a national level of power?
2.Interdependence of administrative procedures & adm. justice under a principle of the division of
powers
3.Scope of administrative procedures:
§In individual/single-case & authoritative decision making & ?
§In adm. decision making or also (mutatis mutandis) in adm. sanctions, civil service, etc.
•4. Aims of administrative procedures: role of prevailing tradition ?
•
§

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Legacy / legal traditions:
-administration-centered (F)
-individual-c. (UK)
-legislator-c. Rechststaat (D/A, CEE)
-ombudsman-c. (Scandinavia)
Treaty of Lisbon
(Art. 298, 51, 197, 352…)
Charter on fundamental rights
(2010, Art. 41, 42, 43, 47…)
Europeanization of national law & EU adm. law
Broader changes in society & PA: complexity, globalization, privatization, delegations …
B. Europenization in national & EU adm. matters
EP Resolution on EU APA (2013)/ReNEUAL
EU Ombudsman Code (2001-)
Case law of ECtHR & CJEU
2. EU
1. Council of Europe
ECHR &
CoE Recommendations
Good Administration
(open, efficient, independent
& accountable …)
PA reforms/strategies:
national & EU driven
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Key impacts of Europeanization in adm. matters and legal protection: EU & national levels
1.Redefined ratio (aims) of administrative procedures
2.Broadened scope of administrative procedures
3.Codification and its modernization of (general) adm. procedure = Administrative Procedure Act
(APA); with
ØHolistic approach = all adm. activities, acts, fields …
ØGeneralization = principles!;
ØSimplification = removal od administrative barriers.
4.Interconnectivity between adm. procedures & justice
•& … non legal impacts (e.g. on organization of PA, IT), etc.
•
§

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1. Ratio of CoE/EU driven administrative procedures
ØHuman rights‘ protection = AP‘s value per se
ØPublic policy/interest‘s effective implementation =         AP as a mean for substantive (laws)
goals
Ø
Ø
Ø
Ø
•3. Dialogue, economic progress … = service-mindedness
•4. European standardization & cooperation
*
Twi ns
Administrative law in terms of „Good Administration“:
1.prevents from arbitrary public authority & protects HR
2.guarantees authority to implement public interest
& new
Traditional

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2. Scope of CoE/EU driven administrative procedures
üIndividual/single case & authoritative decision making & ?
Ø? General (rule making) administrative decision making
Ø? Contractual administrative relations/acts
üAdministrative  & authoritative decision making – BUT?
•Administrative v. civil law: ? Real acts & services of general interest? Concessions … ? Civil
service, etc.
•Administrative v. criminal law: ? Adm. sanctions, ? Misdemeanors, ? Taxes, ? Inspections…
ECtHR case law does NOT follow the national regulation!

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* EU law, e.g. Directive 2006/123/EC on services in the internal market
* Case law:
§General:
§On legal remedies in AP:
i.C-/76 Hoffmann-La Roche v. Commission (79) & C-222/84 Johnston v. Chief Constable of the Royal
Ulster Constabulary (86) = effective!
ii.C-234/04 Kapferer (16.3.06) = no EU interference
iii.C-199/05 Lucchini (18.7.07) = primacy of EU over national
iv.C-507/08 EC v. Slovakia (22.12.10) = EU primacy only if before finality and if equivalence &
effectiveness affected
v.C-603/10 Pelati v. Slovenia (18.10.12) = as longs as EU effectively …
*
3.I EU codification – EU law & CJEU case law
C-453/00 Kühne & Heitz (2004)…
national
EU!
EU conditionally
EU equivalence & effectiveness principles & national autonomy
Audi alteram partem
Res iudicata

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(Galetta, Hofmann, Mir, Ziller, 2015)
1
Rule of law, clarity, legality, l.certinty, legitimate expectations
2
Equal treatment and non-discrimination
3
Public interest protection
4
Proportionality
5
Good administration, duty of care
6
Impartiallity, fairness
7
Participative democracy, fair hearing
8
Access to the file, information, transparency
9
Data quality & protection
10
Reason giving
11
Timeliness
12
Effective remedy
3.II Fundamental principles in European adm. law
The right is enshrined in Art. 47 of the Charter, in Art. 6 & 13 ECHR and recognised as a general
principle of EU law is a key component to a legal system under the rule of law. According to this
principle, neither the EU nor MS can render virtually impossible or excessively difficult the
exercise of rights conferred by EU law, are obliged to guarantee real & effective judicial
protection (C14/83) and are barred from applying any rule or applying any procedure which might
prevent, even temporarily, EU rules from having full force & effect (C-213/89).

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* Art. 23 Rectification/withdrawal of adm.acts/adversely affect party
•       1. The competent authority shall rectify or withdraw, on its own initiative or
•            following a request by the party concerned,
§an unlawful adm. act which adversely affects a party = retroactive effect;
§a lawful adm. act which adversely affects a party if the reasons that lead to the decision no
longer exist; = not have retroactive effect.
§3. Rectification or withdrawal shall take effect upon notification to the party. 4. Where an
administrative act adversely affects a party and at the same time is beneficial to other parties,
an assessment of the possible impact …
*
* Art. 24 Rectification or withdrawal/beneficial to a party
§The competent authority shall, on its own initiative or following a request by another party,
rectify or withdraw an unlawful adm. act which is beneficial to a party. 2. Due account shall be
taken of the consequences of the rectification or withdrawal on parties who legitimately could
expect the act to be lawful... 3. retroactive effect only if done within a reasonable time. …
§Lawful adm. act which is beneficial to a party … if the reasons that lead to the specific act no
longer exist. Due account shall be taken of legitimate expectations of other parties.
3.III EU APA draft (2015-6) on remedies (ReNEUAL)

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4. Interdependence of adm. procedures & justice
ØInterdependence in terms of legal protection:
1.If AP mainly for win-win public & ind. interests‘ realization = judicial review takes over more
subjective protection of rights
2.Less remedies, grounds, timing etc. for their use in AP = broader scope by courts: two-tiered,
adversary & full/merit jurisdiction… (cassation only for adm. silence or discretionary powers)
3.If AP scope broadened = judicial protection of all administrative / likewise acts = incl.
general, sanctions, etc. by Adm. Court
4.

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Key novelties in new or modernized APAs
* Converging ratio: public interest & citizens’/economy leg. interests
* Scope: also general, in services (real acts, SGI) & adm. contracts
•
* Rights of defence, praticipation & transparency    Principles
* Proportionality, ex officio, enforcement
*
* E-government, one stop shops …            Simplify/
* Time limits             enforce
*  ADR (mediation, etc.)           certainty &
* Reduction of AP remedies /reason but pro actione      compliance
• & adm. justice

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Conclusions and discussion
Kapieren, nicht kopieren!
Festina lente!
* However, convergence does not mean harmonization, hence = still a lot of room for national
values, goals and specifics!
* On the other hand,
§One must follow EU law and ECHR &
§Do not be blind for exchange of good practices.
* It is not sufficient to change law but to assess impacts, train the people and monitor results
(regulatory feed back)
* Any systemic change needs systemic approach and time!
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