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2017 | OriginalPaper | Buchkapitel

12. Schrödinger’s Cake? Territorial Truths for Post-Brexit Britain

verfasst von : Ciarán Burke, Ólafur Ísberg Hannesson, Kristin Bangsund

Erschienen in: Netherlands Yearbook of International Law 2016

Verlag: T.M.C. Asser Press

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Abstract

Any post-Brexit accord between the UK and the EU will redefine who exercises jurisdiction—and sovereign control—over the UK’s territory. Every engagement in an international agreement by a State may be viewed as entailing a loss of sovereignty, and in certain circumstances, an alienation of its power to regulate its territory. However, it may also be construed as an exercise of sovereignty. States enter such agreements precisely because they have the power to do so. A corollary thereof is the power to regain control over their own affairs. However, in an era when interdependence has superseded independence as the norm, we may question whether defining states based on territorial sovereignty is even appropriate anymore. Securing investment and trade requires international oversight, once integration surpasses a certain threshold. In such circumstances, a state’s territory becomes the subject of overlapping jurisdiction. Brexit will not come without a cost, and mitigating this may ironically involve further alienation of sovereignty, via parasitic attachment to the EU, whereby the UK may find itself forced to accept European norms without having a role in their elaboration. The alternative is a future involving an unambiguous reassertion of control, but with a virtual certainty of less prosperity. One may view the equation facing the UK as a balancing act between exclusive territorial control and economic prosperity.

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Fußnoten
1
Jellinek 1963, at 21; Jellinek’s requirements (and the additional requirement of the capacity to enter into international agreements) are now prescribed in Article 1 of the 1933 Montevideo Convention on the Rights and Duties of States, 165 LNTS 19.
 
2
Jellinek 1963, at 21.
 
3
Oppenheim 1955, at 451.
 
4
Shaw 1982; similarly: Crawford 2011, para 15.
 
5
Koskenniemi 2005, at 390.
 
6
See Fuller 1969, at 79–81.
 
7
Verdross proposes six separate categories of rules which may be classed as constituting customary international norms: (1) norms which constitute the law’s structural basis (e.g. pacta sunt servanda); (2) norms which guarantee inter-State communication (e.g. diplomatic immunity); (3) norms which are based on the opinio juris (e.g. space law); (4) consensus norms, arising from claims and their acceptance; (5) norms arising from conflict-resolution; and (6) norms upheld by an informal consensus. See Verdross 1969, at 642ff.
 
8
The nomenclature is that of the ICJ in the Case Concerning the United States Diplomatic and Consular Staff in Tehran (United States of America v Iran), ICJ, Merits, Judgment, 24 May 1980, para 86. See also Simma 1985.
 
9
Right of Passage Over Indian Territory (Portugal v India), ICJ, Merits, Judgment, 12 April 1960.
 
10
1945 Statute of the International Court of Justice, 33 UNTS 993.
 
11
Case of the SS Lotus (France v Turkey) PCIJ, Judgment, 27 September 1927.
 
12
The earliest example in this regard is most probably the PCIJ’s Danzig Courts Advisory Opinion concerning the Beamtenabkommen Agreement. Here, the court held that ‘it cannot be disputed that the very object of an international agreement, according to the intention of the contracting Parties, may be the adoption by the Parties of some definite rules creating individual rights and enforceable by the national courts.’ Jurisdiction of the Courts of Danzig (Pecuniary Claims of Danzig Railway Officials who have Passed into the Polish Service, against the Polish Railways Administration), PCIJ, Advisory Opinion, 3 March 1928.
 
13
Dispute regarding Navigational and Related Rights (Costa Rica v Nicaragua), ICJ, Judgment, 13 July 2009, para 213; see M Milanovic (2009) The ICJ and Evolutionary Treaty Interpretation, EJIL: Talk!, 14 July 2009, http://​www.​ejiltalk.​org/​the-icj-and-evolutionary-treaty-interpretation/​, accessed 6 February 2017.
 
14
Nicol 2001, at 1.
 
15
Ibid.
 
16
Ibid.
 
17
Cheney v Conn, England, High Court of Justice, Chancery Division, [1968] 1 All ER 779, 3 July 1967; British Railways Board v Pickin, England, House of Lords, [1974] AC 765, 30 January 1974. From these cases, Munro notes that ‘any notion that doctrines of morality or the rules of international law could prevail against acts of Parliament found no support in case law.’ (Munro 1999, at 133).
 
18
See Tacitus 2010; see also Clarke 2001.
 
19
See Ohmae 1990; Held et al. 1999; Sassen 2000.
 
20
Gross 1948.
 
21
Steinberg 2005.
 
22
Lord Denning, in Blackburn v Attorney-General, England, Court of Appeal, Civil Division, [1971] 2 All ER 1380, 10 May 1971, at 1382. This position was confirmed by Attorney General (McWhirter) v Independent Broadcasting Authority, England, Court of Appeal, [1973] 1 ALL ER 689.
 
23
See, in particular, Case 26/62 (N. V. Algemene Transport- en Expeditie Onderneming van Gend & Loos v Nederlandse administratie der belastingen (Netherlands Inland Revenue Administration)), ECJ, Judgment, ECR 1, 5 February 1963; and Case 6/64 (Flaminio Costa v ENEL), ECJ, Judgment, ECR 585, 15 July 1964.
 
24
R v Secretary of State for Employment, ex parte Equal Opportunities Commission and another, England, House of Lords, [1995] 1 AC 1, 3 March 1994.
 
25
Lord Bridge, in R v Secretary of State for Transport, ex parte Factortame Ltd. (No.2), England, House of Lords, [1991] AC 603, 11 October 1990, at 658.
 
26
These rationales are explained in detail in many official Brexit campaign materials. See, for example, Campaign for an Independent Britain, 7 Reasons Why We Should Leave the EU, http://​campaignforanind​ependentbritain.​org.​uk/​the-economy/​, accessed 6 February 2017.
 
27
See Burke 1790.
 
28
Meyer 2012, at 1003.
 
29
Ibid.
 
30
Mann 1964, at 30.
 
31
2012 Treaty on the European Union (Consolidated version), C 326/13 (TEU).
 
32
Van Gend & Loos, at 12.
 
33
1969 Vienna Convention on the Law of Treaties, 1155 UNTS 331.
 
34
Case 53/81 (Levin v Staatssecretaris van Justitie), ECJ, Judgment, ECR 1035, 23 March 1982, para 9.
 
35
See Joined Cases C402/05 P and C415/05 (P. Kadi and Al Barakaat International Foundation v Council of the European Union and Commission of the European Communities), ECJ Grand Chamber, Judgment, ECR I–6351, 3 September 2008.
 
36
For more detailed discussion on this point, see Burke et al. 2016.
 
37
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 territory of the Member States, amending Regulation (EEC) No 1612/68 and repealing Directives 64/221/EEC, 68/360/EEC, 72/194/EEC, 73/148/EEC, 75/34/EEC, 75/35/EEC, 90/364/EEC, 90/365/EEC and 93/96/EEC.
 
38
See for example the various models proposed in Buckle et al. 2015. Most borrow much from one of the two proposed options.
 
39
The EU Council has been advocating an EEA-style framework agreement with Switzerland to supplant the current model—seen as unsustainable in the medium-term—incorporating a ‘mechanism for […] homogeneous interpretation of the rules,’ cf. Council of the European Union, Draft Council conclusions on EU relations with EFTA countries, Council Doc. 1665/1/08 Rev I, 5 December 2008, paras 29 and 32.
 
40
Such a differentiated interpretation of the treaties is also supported by the normal canons of treaty interpretation, see Article 31 of the 1969 Vienna Convention on the Law of Treaties, which have been rejected by the ECJ for the purposes of interpreting the sui generis EU legal order, but which remain relevant for most international agreements.
 
41
Case 270/80 (Polydor v Harlequin Record Shops), ECJ, Judgment, ECR 329, 9 February 1982. See also Case C-312/91 (Metalsa), ECJ, Judgment, ECR 1-3751, 1 July 1993, para 12.
 
42
Polydor, para 19.
 
43
Case C-351/08 (Chistian Grimme v Deutsche Angestellten-Krankenkasse), ECJ, Judgment, ECR I-10777, 12 November 2009; Case C-541/08 (Fokus Invest v Finanzierungsberatung-Immobilientreuhand und Anlageberatung GmbH (FIAG)), ECJ, Judgment, ECR I-1025, 11 February 2010, para 28; Case C-70/09 (Alexander Hengartner and Rudolf v Landesregierung Vorarlberg), ECJ, Judgment, ECR I-7233, 15 July 2010, para 42; see discussion in Öberg 2016.
 
44
Baudenbacher 2012.
 
45
Ibid.
 
46
It is an open secret that the EU hopes the Swiss—overburdened with individual European regulatory measures, and under-represented with regard to the content of the latter—will soon join the EEA. Indeed, it is relevant to note that the Swiss referendum, held on 6 December 1992 only rejected EEA membership by 50.3% to 49.7%. See MA Miserez (2012) Switzerland poised to keep EU at arm's length, SwissInfo, 2 December 2012, http://​www.​swissinfo.​ch/​eng/​20-years-on_​switzerland-poised-to-keep-eu-at-arm-s-length/​34083578, accessed 6 February 2017.
 
47
Per Baudenbacher, the Court, in Polydor, has set a normative standard that ought to be met before to guarantee that the interpretation given to EU provision apply to other treaties. Thus, ‘substantive homogeneity, which is secured by institutions, is a precondition for the non-application of Polydor.’ See Baudenbacher 2013.
 
48
The CFI stated in Case C-452/01 (Proceedings brought by Margarethe Ospelt and Schlössle Weissenberg Familienstiftung), ECJ, Judgment, ECR I-9743, 23 September 2003, para 29, that ‘one of the principal aims of the [EEA] Agreement is to provide for the fullest possible realisation of the free movement of goods, persons, services and capital within the whole [EEA], so that the internal market established within the European Union is extended to the EFTA States’.
 
49
See Case E-1/07 (Criminal proceedings against A), EFTA Court, Judgement, EFTA Ct. Rep. 246, 3 October 2007, para 40–41. This holding was confirmed in Cases E-9/07 and E-10/07 (L’Oreal Norge AS v Aarskog Per AS and Others and Smart Club Norge), EFTA Court, Judgment, EFTA Ct. Rep. 259, 8 July 2008. See also the ECJ’s Opinion 1/91, Opinion pursuant to the second subparagraph of Article 228 of the EEC Treaty, ECJ, ECR I-6079, 14 December 1991, later confirmed in Opinion 1/92, Opinion of the Court pursuant to the second subparagraph of Article 228(1) of the EEC Treaty, ECJ, ECR I-2821, 10 April 1992.
 
50
The preamble to 1994 Protocol 35 on the Implementation of EEA Rules, OJ L 001 explicitly proclaims that no legislative powers have been transferred to supranational institutions.
 
51
This structure is outlined more specifically in the 1994 Agreement Between the EFTA States on the Establishment of a Surveillance Authority and a Court of Justice, (Surveillance and Court Agreement), OJ L 344/1 (SCA).
 
52
On the two-pillar structure, see Baudenbacher and Bull 2007.
 
53
Case C-431/11 (United Kingdom of Great Britain and Northern Ireland v Council of the European Union), ECJ, Judgment, ECLI:EU:C:2013:589, 26 September 2013, para 49.
 
54
See P Wintour (2016) Norway may block UK return to European Free Trade Association, The Guardian, 9 August 2016, https://​www.​theguardian.​com/​world/​2016/​aug/​09/​norway-may-block-uk-return-to-european-free-trade-association, accessed 9 February 2017.
 
55
J Jónsdóttir (2013) It would be difficult for the UK to follow the ‘Swiss’ or ‘Norwegian’ models as an alternative to EU membership, London School of Economics, European Politics and Policy Blog, 28 January 2013, http://​blogs.​lse.​ac.​uk/​europpblog/​2013/​01/​28/​uk-eu-euroscepticism-norway-model-swiss-model-efta/​, accessed 5 January 5 2015.
 
56
1982 United Nations Convention on the Law of the Sea, 1833 UNTS 3 (UNCLOS), Article 8.
 
57
Ibid., Part II.
 
58
This stands in contradistinction to the High Seas, and the deep sea bed, where a loosely regulated regime predicated upon the notion of a ‘common heritage of mankind’, with shared rights for all states, is applicable.
 
59
Regulation (EU) No. 1380/2013 of the European Parliament and of the Council of 11 December 2013 on the Common Fisheries Policy amending Council Regulations (EC) No 1954/2003 and (EC) No 1224/2009 and repealing Council Regulations (EC) No 2371/2002 and (EC) No 639/2004 and Council Decision 2004/585/EC, OJ L 354/22, Article 5(1).
 
60
See e.g. interview with Mike Walker by the New York Times: K. De Breytas-Tamura (2016) In Brexit Debate, English Fishermen Eye Waters Free of E.U., The New York Times, 14 April 2016, http://​www.​nytimes.​com/​2016/​04/​15/​business/​international/​many-in-british-fishing-port-want-eu-out-of-their-waters.​html?​_​r=​1, accessed 12 July 2016.
 
61
For this purpose a Community control system was established: Council Regulation (EC) No. 1224/2009 of 20 November 2009 establishing a Community control system for ensuring compliance with the rules of the common fisheries policy, amending Regulations (EC) No 847/96, (EC) No 2371/2002, (EC) No 811/2004, (EC) No 768/2005, (EC) No 2115/2005, (EC) No 2166/2005, (EC) No 388/2006, (EC) No 509/2007, (EC) No 676/2007, (EC) No 1098/2007, (EC) No 1300/2008, (EC) No 1342/2008 and repealing Regulations (EEC) No 2847/93, (EC) No 1627/94 and (EC) No 1966/2006, OJ L 343/1.
 
62
For additional discussion in this regard, see Wolf 2013.
 
63
Joined cases C-46/93 and C-48/93 (Brasserie du Pêcheur SA v Bundesrepublik Deutschland and The Queen v Secretary of State for Transport, ex parte: Factortame Ltd and others), ECJ, Judgment, ECR I-01029, 5 March 1996.
 
64
2012 Treaty on the Functioning of the European Union (Consolidated version), C 326/47 (TFEU).
 
65
See excerpt from the Norwegian Ministry of Foreign Affairs’ report to the Norwegian Parliament: Norwegian Ministry of Foreign Affairs (2012), The EEA Agreement and Norway’s other Agreements with the EU, Meld. St. 5 (2012–2013) Report to the Storting (White Paper), Recommendations of the Ministry of Foreign Affairs of 12 October 2012. https://​www.​regjeringen.​no/​globalassets/​upload/​ud/​vedlegg/​europa/​nou/​meldst5_​ud_​eng.​pdf, accessed 6 February 2017, at 13.
 
66
Case C-347/10 (Salemink v Raad van bestuur van het Uitvoeringsinstituut werknemersverzekeringen), ECJ Grand Chamber, Judgment, ECLI:EU:C:2012:17, 17 January 2012.
 
67
Salemink, para 35.
 
68
1992 Treaty of Maastricht on European Union, OJ C 191.
 
69
Directive 2014/54/EU of the European Parliament and of the Council of 16 April 2014 on measures facilitating the exercise of rights conferred on workers in the context of freedom of movement for workers, OJ L 128/8, para 1.
 
70
Regulation (EU) No 492/2011 of the European Parliament and of the Council of 5 April 2011 on freedom of movement for workers within the Union, OJ L 141/1.
 
71
Sriskandarajah and Drew 2006. This is, of course, merely the tip of the proverbial iceberg. The Spanish example is instructive in this regard. As well as trade and employment disputes, the position of Gibraltar and the many businesses run by UK nationals in Spain could be seriously affected by any Brexit that is not agreeable to Spanish interests.
 
72
Article 79 TFEU.
 
73
Only family members within the meaning of Directive 2004/38, having third country nationality, would enjoy certain derived rights when entering or moving to the host country. However, these rights are acquired through their status as family members of the EU/EEA national concerned. Accordingly, these dependent rights do not limit the EEA EFTA Member States’ autonomy regarding third country policies. See the Joint Declaration by the Contracting Parties to decision No 158/2007 incorporating Directive 2004/38/EC of the European Parliament and of the Council into the Agreement, OJ L 124/23.
 
74
Fredriksen and Franklin 2015, at 639–640.
 
75
See, for example, the Case E-1/01 (Hörður Einarsson v The Icelandic State), EFTA Court, Judgment, EFTA Ct. Rep. 1, 22 February 2002, para 45, where the EFTA Court refused to countenance arguments based on provision of the EC Treaty introduced by the Treaty of Amsterdam.
 
76
Case E-28/15 (Yankuba Jabbi v The Norwegian Government, represented by the Immigration Appeals Board), EFTA, Judgment, 26 July 2016, para 62.
 
77
The Directive was incorporated into Annex V to the EEA Agreement at point 1 and Annex VIII at point 3 by Decision of the EEA Joint Committee No 158/2007 of 7 December 2007 amending Annex V (Free movement of workers) and Annex VIII (Right of establishment) to the EEA.
 
78
Fredriksen and Franklin 2015, at 640.
 
79
See discussion in Fredriksen and Franklin 2015, at 641–642.
 
80
Ibid., at 640–641.
 
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Metadaten
Titel
Schrödinger’s Cake? Territorial Truths for Post-Brexit Britain
verfasst von
Ciarán Burke
Ólafur Ísberg Hannesson
Kristin Bangsund
Copyright-Jahr
2017
DOI
https://doi.org/10.1007/978-94-6265-207-1_12

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