Cover Page
The following handle holds various files of this Leiden University dissertation:
http://hdl.handle.net/1887/63079
Author: Beenakker, E.B.
Title: The implementation of international law in the national legal order : a legislative perspective
Issue Date: 2018-06-05
The implementation of international law in the national legal order A legislative perspective
The implementation of international law in the national legal order
A legislative perspective
PROEFSCHRIFT
ter verkrijging van
de graad van Doctor aan de Universiteit Leiden,
op gezag van Rector Magnificus prof. mr. C.J.J.M. Stolker, volgens besluit van het College voor Promoties
te verdedigen op dinsdag 5 juni 2018 klokke 13.45 uur
door
Emile Bernard Beenakker
geboren te Huizen in 1985
Promotor: prof. dr. W.J.M. Voermans Promotiecommissie: prof. dr. R.A. Lawson
prof. dr. N.J. Schrijver
mr. dr. H.G. Sevenster (Dutch Council of State)
prof. dr. H. Xanthaki (University College London, UK) prof. dr. S.E. Zijlstra (Vrije Universiteit Amsterdam)
Lay-out: AlphaZet prepress, Bodegraven Printwerk: Ipskamp Printing
© 2018 E.B. Beenakker
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Acknowledgements
Working on this thesis as an external PhD-candidate has been sometimes challenging, but always rewarding. I was fortunate to enjoy the support of many people who have contributed, in various ways, to the project’s comple- tion.
First of all, I would like to thank my promotor, prof. dr. Wim Voermans, for his support during the past years.
Furthermore, I would like to express my thanks to prof. dr. Rick Lawson, prof. dr. Nico Schrijver, mr dr. Hanna Sevenster, prof. dr. Helen Xanthaki and prof. dr. Sjoerd Zijlstra for being part of the doctorate committee and for reading the manuscript.
I am also indebted to my former employer, the Dutch Ministry of Health, Welfare and Sports. In particular, I would like to thank Rien den Boer LL.M and Bert Jan Clement LL.M, director and head of section of the ministry’s Legislative and Legal Affairs directorate. Throughout the entire project you have encouraged me to continue and for two years you have generously allowed me to spend a significant amount of working hours on it. To say that your flexibility and support have been helpful, would be an understatement.
I would also like to take this opportunity to express my gratitude to my parents, Wim and Joke, and to my brothers, Ivo en Remy, for their love and support. I also owe many thanks to my friends, who have played an impor- tant role in the successful completion of this project, even though they may not always have been aware of it.
Finally, Isabelle, I am aware it must have been difficult at times to live together with a person who has spent many hours during the evenings and weekends working on this thesis. During the past years, however, it has not prevented you from expressing your belief in me and in my ability to accom- plish the PhD-process. Thank you.
Summary Contents
Acknowledgements V
List of abbreviations XVII
1 Introduction 1
Part I The implementation of international law in the
national legal order 23
Introduction to Part I 23
2 The relation between international law and
national law 25
3 Sources of obligations to adopt implementing
legislation 39 Part II The regulation of implementing legislation under
selected international legal regimes: legislative
standards 73
Introduction to Part II 73
4 Legislative standards as part of human rights law 77 5 Legislative standards as part of EU law 109 6 Legislative standards as part of international
criminal law 131
7 Legislative standards as part of international
health law 147
8 Legislative standards as part of international
environmental law 161
9 Legislative standards as part of international
labour law 175
Conclusion to Part II 193
VIII Summary Contents
Part III Assessment of legislative standards under
international law 195
Introduction to Part III 195
10 Methods of harmonisation and legislative standards under international law:
common features 197
11 Legislative standards and the quality of
implementing legislation 239
12 Quality standards pertaining to implementing legislation and international legal practice:
a gap to bridge? 277
13 Conclusions 287
Sources and literature 295
Summary in Dutch 321
Curriculum vitae 329
Table of Contents
Acknowledgements V
List of abbreviations XVII
1 Introduction 1
1.1 Background of the study 1
1.1.1 The state and the implementation of international law 1 1.1.2 The national legislature under international law:
position 2 1.1.3 National legislation under international law 6 1.1.4 The national legislature under international law:
four roles 9
1.2 Implementation of international law in the national
legal order: a working definition 15
1.3 Research subject and research questions 17
1.4 Aims and relevance of the study 18
1.5 Outline, scope and methodology of the study 21
Part I The implementation of international law in the
national legal order 23
Introduction to Part I 23
2 The relation between international law and national law 25
2.1 Introduction 25
2.2 Understanding the relation between international and
national law 25
2.3 Monism and dualism in contemporary international law 30 2.4 Why are national implementing measures indispensable? 33
2.5 Conclusion 38
3 Sources of obligations to adopt implementing legislation 39
3.1 Introduction 39
3.2 Treaties 40
3.2.1 Treaties as a source of law 40 3.2.2 Treaties as a source of obligation to adopt
implementing measures 42
3.3 Customary law 48
3.3.1 Custom as a source of law 48
X Table of Contents
3.3.2 Custom as a source of obligation to adopt
implementing measures 52
3.4 Binding decisions of international organisations 56 3.4.1 Binding decisions of international organisations as a
source of law 56
3.4.2 Binding decisions of international organisations as a source of obligation to adopt implementing measures 60 3.5 Categories of norms addressing the national legislature 69
3.6 Conclusion 71
Part II The regulation of implementing legislation under selected international legal regimes: legislative
standards 73
Introduction to Part II 73
4 Legislative standards as part of human rights law 77 4.1 Implementation of positive obligations under the European
Convention on Human Rights 77
4.1.1 General 77
4.1.2 Content of the Convention 79
4.1.2.1 Right to life 79
4.1.2.2 Prohibition of slavery and forced labour 81 4.1.2.3 Right to liberty and security 83 4.1.2.4 Right to respect for family and private life 84 4.1.2.5 Right to freedom of expression 86
4.1.3 Legislative standards 87
4.1.3.1 Effectiveness 87
4.1.3.2 Non-discrimination 88
4.1.3.3 Enforcement, remedies and ‘proper
implementation’ 90
4.1.3.4 Formal aspects 91
4.1.4 Overview 92
4.2 Implementation of the International Covenant on Economic,
Social and Cultural Rights 92
4.2.1 General 92
4.2.2 Content of the Convention 94
4.2.3 Legislative standards 95
4.2.3.1 Implementation and progressive realisation 95
4.2.3.2 Non-discrimination 96
4.2.3.3 Consultation 98
4.2.3.4 Observance of applicable international law 98 4.2.3.5 Monitoring of compliance and enforcement 100
4.2.3.6 Remedies 102
4.2.3.7 Evaluation of legislation 105
Table of Contents XI
4.2.3.8 Formal aspects 106
4.2.3.9 Information to the public 106
4.2.4 Overview 107
5 Legislative standards as part of EU law 109 5.1 Implementation of directives of the European Union 109
5.1.1 General 109
5.1.2 Legislative standards 110
5.1.2.1 Timely implementation 110 5.1.2.2 The nature of the implementing measures 112 5.1.2.3 The content of the implementing measures 114 5.1.2.4 Effective application and enforcement in
practice 117
5.1.3 Overview 125
5.2 Implementation of regulations of the European Union 126 6 Legislative standards as part of international criminal law 131
6.1 Implementation of the United Nations Convention against
Transnational Organised Crime 131
6.1.1 General 131
6.1.2 Content of the Convention 132
6.1.3 Legislative standards 133
6.1.3.1 Implementation, effectiveness and
harmonisation 133 6.1.3.2 Observance of applicable international
and national law 135
6.1.3.3 Criminalisation and enforcement 138
6.1.4 Overview 139
6.2 Implementation of the International Convention
for the Suppression of the Financing of Terrorism 140
6.2.1 General 140
6.2.2 Content of the Convention 141
6.2.3 Legislative standards 142
6.2.3.1 Implementation, effectiveness and
harmonisation 142 6.2.3.2 Observance of applicable international
and national law 143
6.2.3.3 Criminalisation and enforcement 145
6.2.4 Overview 145
7 Legislative standards as part of international health law 147 7.1 Implementation of the International Health Regulations 147
7.1.1 General 147
7.1.2 Content of the Regulations 147
7.1.3 Legislative standards 149
7.1.3.1 Implementation and harmonisation 149
XII Table of Contents
7.1.3.2 Observance of human rights, including
non-discrimination 150 7.1.3.3 Observance of applicable international
and national law 150
7.1.4 Overview 151
7.2 Implementation of the Framework Convention on
Tobacco Control 152
7.2.1 General 152
7.2.2 Content of the Convention 153
7.2.3 Legislative standards 154
7.2.3.1 Implementation, ‘guiding principles’
and harmonisation 154
7.2.3.2 Observance of applicable international
and national law 155
7.2.3.3 Compliance and enforcement 157 7.2.3.4 Participation of stakeholders 158 7.2.3.5 Monitoring and evaluation of measures 159
7.2.4 Overview 160
8 Legislative standards as part of international
environmental law 161
8.1 Implementation of the Convention on International Trade
in Endangered Species 161
8.1.1 General 161
8.1.2 Content of the Convention 162
8.1.3 Legislative standards 163
8.1.3.1 Implementation and harmonisation 163 8.1.3.2 Information to the public 164 8.1.3.3 Observance of applicable international
and national law 164
8.1.3.4 Enforcement 165
8.1.4 Overview 166
8.2 Implementation of the Basel Convention on the Control of Transboundary Movements of Hazardous Wastes
and their Disposal 167
8.2.1 General 167
8.2.2 Content of the Convention 168
8.2.3 Legislative standards 171
8.2.3.1 Implementation and minimum requirements 171 8.2.3.2 Observance of applicable international and
national law 171
8.2.3.3 Enforcement 173
8.2.4 Overview 174
9 Legislative standards as part of international labour law 175 9.1 Implementation of the Maritime Labour Convention 175
Table of Contents XIII
9.1.1 General 175
9.1.2 Content of the Convention 176
9.1.3 Legislative standards 178
9.1.3.1 Implementation, harmonisation and
flexibility 178 9.1.3.2 Observance of specified human rights 179 9.1.3.3 Observance of applicable international
and national law 180
9.1.3.4 Compliance and enforcement 181 9.1.3.5 Prohibition of favourable treatment of third
states 183
9.1.4 Overview 183
9.2 Implementation of the Convention concerning Decent Work
for Domestic Workers 184
9.2.1 General 184
9.2.2 Content of the Convention 185
9.2.3 Legislative standards 186
9.2.3.1 Implementation and harmonisation 186 9.2.3.2 Observance of applicable international
and national law 188
9.2.3.3 Remedies, complaint mechanisms,
monitoring of compliance and enforcement 189
9.2.3.4 Non-discrimination 190
9.2.3.5 Consultation with stakeholders 191 9.2.3.6 Information to employers and domestic
workers 191
9.2.4 Overview 192
Conclusion to Part II 193
Part III Assessment of legislative standards under
international law 195
Introduction to Part III 195
10 Methods of harmonisation and legislative standards
under international law: common features 197
10.1 Introduction 197
10.2 Methods of harmonisation under international law 198
10.2.1 Harmonisation 198
10.2.2 Harmonisation through minimum requirements 200 10.2.3 Other methods of harmonisation 203
10.2.3.1 Optional provisions 203
10.2.3.2 Language 205
10.2.3.3 Equivalent measures 206
XIV Table of Contents
10.3 Legislative standards 208
10.3.1 Introduction 208
10.3.2 Effectiveness 209
10.3.2.1 Effectiveness under the selected
international legal regimes 209 10.3.2.2 Effectiveness in the context of treaty
interpretation under general international
law 213 10.3.3 Subsidiary elements of effectiveness 215
10.3.3.1 Legal certainty 215
10.3.3.2 Observance of applicable international
and national law 220
10.3.3.3 Consultation with stakeholders 223 10.3.3.4 Provision of information concerning
legislation 225 10.3.3.5 Monitoring of compliance 226
10.3.3.6 Enforcement 227
10.3.3.7 Remedies 229
10.3.3.8 Ex post evaluation of legislation 233
10.3.4 Conclusion 234
10.4 Binding character of legislative standards 235
10.5 Conclusion 237
11 Legislative standards and the quality of implementing
legislation 239
11.1 Introduction 239
11.2 National approaches to the quality of implementing
legislation 239
11.2.1 Introduction 239
11.2.2 The Netherlands 240
11.2.2.1 General policy on the quality of legislation, including implementing legislation 240 11.2.2.2 Specific legislative standards applicable
to legislation to implement
EU instruments 244
11.2.2.3 Specific legislative standards applicable to legislation to implement non-EU
international instruments 245
11.2.3 The United Kingdom 246
11.2.3.1 General policy on the quality of legislation, including implementing legislation 246 11.2.3.2 Specific legislative standards applicable
to legislation to implement EU instruments 251 11.2.3.3 Specific legislative standards applicable
to legislation to implement non-EU
international instruments 252
Table of Contents XV
11.2.4 Conclusion 253
11.3 International approaches to the quality of implementing
legislation 254
11.3.1 Introduction 254
11.3.2 Organisation for Economic Cooperation and
Development 254
11.3.3 European Union 257
11.3.4 Conclusion 263
11.4 The quality of implementing legislation: common ground? 263
11.4.1 Introduction 263
11.4.2 Regulatory quality and legislative quality: a matter
of perspective 264
11.4.3 Defining the quality of implementing legislation 267 11.4.4 Legislative quality and legislative standards 270
11.4.5 Conclusion 274
11.5 Conclusion 274
12 Quality standards pertaining to implementing legislation and international legal practice: a gap to bridge? 277
12.1 Introduction 277
12.2 Quality standards pertaining to implementing legislation
and international legal practice: a comparison 278 12.2.1 Scope of the regulation of national implementing
legislation 278 12.2.2 Character of the regulation of national implementing
legislation 279 12.2.3 Substance of the regulation of national implementing
legislation 279
12.3 A gap to bridge? 282
12.4 Conclusion 286
13 Conclusions 287
13.1 The research questions revisited 287
13.2 The gap to bridge 292
13.3 The international pursuit of high quality implementing
legislation 293
Sources and literature 295
Summary in Dutch 321
Curriculum vitae 329
List of abbreviations
CAT Convention against Torture
CCTMW Convention on the Control of Transboundary Movements of Hazardous Wastes and their Disposal
CDWDW Convention concerning Decent Work for Domestic Workers CESCR Committee on Economic, Social and Cultural Rights CFR Charter of Fundamental Rights of the EU
ChUN Charter of the United Nations
CITES Convention on International Trade in Endangered Species CJEU Court of Justice of the European Union
CPPCG Convention for the Prevention and Punishment of the Crime of Genocide
CTOC Convention against Transnational Organised Crime EC European Commission
ECHR European Convention for the Protection of Human Rights and Fundamental Freedoms
ECtHR European Court of Human Rights
EU European Union
FCTC Framework Convention on Tobacco Control ICAO International Civil Aviation Organisation ICC International Criminal Court
ICCPR International Covenant on Civil and Political Rights ICESCR International Covenant on Economic, Social and Cultural
Rights
ICJ International Court of Justice
ICRC International Committee of the Red Cross
ICSFT International Convention for the Suppression of the Financing of Terrorism
ICTY International Criminal Tribunal for the Former Yugoslavia IHR International Health Regulations
ILC International Law Commission ILO International Labour Organisation IMF International Monetary Fund LoN League of Nations
MLC Maritime Labour Convention
OECD Organisation for Economic Cooperation and Development PCIJ Permanent Court of International Justice
TEU Treaty on European Union
TFEU Treaty on the Functioning of the European Union UDHR Universal Declaration of Human Rights
UN United Nations
XVIII List of abbreviations
UNCLOS United Nations Convention on the Law of the Sea UNGA United Nations General Assembly
UNSC United Nations Security Council
VCCR Vienna Convention on Consular Relations VCLT Vienna Convention on the Law of Treaties WHO World Health Organisation
WMO World Meteorological Organisation
