The will of the people? The erosion of democracy under the rule of law in Europe.

October 4, 2017 - nr.104
Summary

Conclusions and recommendations

‘The rule of law is not a peaceful property, a house in which we can sleep serenely.’160

This statement, made by the late senator Willem Witteveen in a parliamentary debate on the rule of law in 2014, remains as relevant as ever. Democracy under the rule of law needs constant maintenance, in Europe as elsewhere. Since the turn of the millennium, the increasingly apparent alienation between the institutions of democracy under the rule of law and sections of the population whose circumstances and prospects have become precarious and/or who feel that the nation’s cultural identity is under threat, has created an environment fraught with risk. In several European states, movements with varying degrees of influence have emerged that want to use democratically acquired power to limit the political status and legal safeguards of other population groups. This indicates that, to a large extent, they do not feel that constitutional democracy, i.e. democracy under the rule of law, is in everyone’s interest, including their own.

As pointed out in the introduction to this advisory report, it is an essential but delicate task, when standing up for the rule of law in the international arena, to respect the democratic character of the states concerned and enhance their democratic quality. As societies become ever more complex, rights, obligations and diverse social interests must constantly be weighed against one another and conflicts resolved. This means that all levels of government need to strike a balance between catering to the public’s wishes and making an independent assessment based on the general interest. Due to a large number of developments and factors, which have been described in this report, this balance has gradually been disturbed in recent decades. Many people across Europe now feel that the institutions of democracy under the rule of law mainly benefit others, including ‘the establishment’ or minority groups. This dissatisfaction is fuelling alternative political movements that promise more consultation and more effective government.

In Europe, a broad effort is required to restore and strengthen public support for democracy under the rule of law. It should be clear to all that the rule of law does not hamper democracy but rather bolsters it. There needs to be greater awareness that democracy only benefits all citizens if it is accompanied by rule-of-law safeguards. Citizens also need to know that their voices are being heard at international level. EU institutions must serve the public visibly and tangibly. That is not sufficiently the case at present.

All member states of the Council of Europe and the European Union are responsible for maintaining democracy under the rule of law in Europe. The fact that national governments working together in the EU appear unwilling to call one another to account for the erosion of democracy, the rule of law and human rights does nothing to enhance the EU’s credibility in the eyes of its own citizens. It merely confirms the widespread perception that the EU promises human dignity but does not effectively protect it.

This does not just undermine norms and values that are a key part of the European identity; the stability of Europe, too, is at stake. If the protection of individual rights and minorities is eroded, this rapidly generates domestic tensions, bilateral conflicts and, inevitably, migratory flows that can sometimes assume unmanageable proportions.

And if the erosion of democracy under the rule of law goes hand in hand with the undermining of common EU institutions, as is often the case, those institutions will increasingly be incapable of taking effective action to resolve such crises.

Even if no large-scale escalation occurs, the erosion of democracy under the rule of law eats away at the foundations of interstate cooperation that are important in Europe. Police cooperation, the European arrest warrant, the transfer of asylum seekers under the Dublin system – all these forms of cooperation are based on mutual trust in the quality of legal systems and the protection of the core values of the rule of law. But if the factual basis for that mutual trust disappears, mutual recognition and solidarity will sooner or later also be put in jeopardy.161

In addition to these considerations, a deficient democracy under the rule of law creates an unattractive investment climate. Confidence in constitutional stability and in the fair and effective public administration of justice is, after all, essential. Without such confidence, investors will be forced to resort to arbitration and other forms of investment protection; they will then have to contend with both increasingly critical public opinion and legal objections.162

Recommendations

Below the AIV will make a number of policy recommendations concerning how the Netherlands can work in the appropriate international bodies and bilaterally to preserve the constitutional structures of democracy under the rule of law from (further) erosion. The Netherlands must be prepared to swim against the tide and continue its engagement on this issue, with a view to preventing the operation of the democratic system from eroding its own principles.

It needs to be completely clear, of course, that such efforts should support states’ democratic functioning – taking account of their historically acquired characteristics; a democracy’s procedural and substantive features must not be further torn apart, but rather woven together in a more convincing manner. This requires respect for the diversity that can exist among the member states of the Council of Europe and the European Union. Alignment should constantly be sought with the common fundamental values of democracy and the rule of law as accepted by all the nations concerned. The recommendations made here therefore build on what has been agreed with and by the other states.

There is a need for caution here. For various reasons, there is bound to be some discrepancy between the complexity of the problems described in this report and the recommendations presented below. First, there is no magic bullet that will halt the erosion of democracy under the rule of law in Europe in a simple manner, because numerous complex factors are involved (see chapter II). What is needed is a differentiated approach at various levels: national, international, governmental, societal, etc. Second, a society can only achieve democracy under the rule of law from within. Individuals and organisations from other countries can merely play a supporting role. It stands to reason that the Dutch government – to which many of the recommendations relate – can mainly offer support in the realm of social developments and their anchoring in the rule of law. Third, the political balance of forces in Europe, especially in the European Union, currently offers limited scope for voicing a powerful counter-message. Only a limited number of European countries are firmly committed to defending the principles of the rule of law. Finally, account must be taken of the increased public scepticism towards EU cooperation that has developed in the Netherlands, as in other countries.

1. Increasing institutional responsiveness

Council of Europe

The Council of Europe is the most important organisation in Europe when it comes to setting standards for human rights and monitoring how they are reflected in member states’ legislation, policy and practices. Nevertheless, there appears to be little awareness in Europe of the Council’s importance in this regard. The Netherlands could take the lead in a political re-evaluation of the Council’s importance. This could be done in the following ways:

  1. Working with like-minded countries to secure a greater political role for the Committee of Ministers in monitoring the implementation of judgments of the European Court of Human Rights in the member states. The Committee of Ministers should not restrain the Council of Europe’s independent institutions (the European Court of Human Rights and the European Committee of Social Rights), but support and encourage them.
     
  2. Promoting the implementation of the Brussels Declaration and the Plan of Action on Strengthening Judicial Independence and Impartiality by entering into a twinning relationship with certain countries and helping them to increase knowledge about the Council of Europe and the European Court of Human Rights within government and the judiciary, and among the legal profession and NGOs, to expand national parliaments’ role in implementing judgments by the European Court of Human Rights in the member states and to create an independent national human rights institute.
     
  3. Taking the initiative to expand the Committee of Ministers' traditional focus on civil and political human rights to include the social rights laid down in the European Social Charter. The Netherlands could highlight this by providing extra support for the HELP programme.
     
  4. At set times, the government should provide the Permanent Parliamentary Committees on Foreign Affairs and Justice with confidential information about the deliberations in the Committee of Ministers, especially as regards the implementation of judgments by the European Court of Human Rights.
     
  5. The Netherlands can support reciprocity within the Council of Europe by asking the Venice Commission for advice on Dutch legislation in the event of dilemmas like those concerning the judicial review of legislation and the consequences of referendums.

European Union

  1. Within the EU, the Netherlands must continue its efforts to strengthen the annual rule of law dialogue, as a stepping stone towards a peer review mechanism,163 for which there is still insufficient support in the Union.
     
  2. The Netherlands can join with like-minded countries to form a (possibly informal) group of ‘trailblazers’ that launches a peer review. Such a group can set a positive example of European cooperation for EU citizens, including people in countries that do not yet want to participate. It will show them that ideas on the rule of law can be exchanged in an atmosphere of openness and mutual trust.
     
  3. Some EU member states, notably Poland and Hungary, are currently firmly opposed to the notion that membership of the Union entails certain responsibilities in terms of democracy and the rule of law. At the same time, these countries receive substantial amounts in EU subsidies. In the upcoming negotiations on the EU budget (multiannual financial framework) and how to reform it, the Netherlands should seek to link receipts from the cohesion and structural funds to success in satisfying the original Copenhagen criteria for EU accession.
     
  4. The Netherlands can express support for the European Parliament’s proposal for an    EU Pact for Democracy, the Rule of Law and Fundamental Rights.
     
  5. The Senate and the House of Representatives can play a constructive role in promoting the principles of democracy under the rule of law in Europe by raising this issue with other European national parliaments. Consideration could be given to creating a parliamentary network focusing on practical cooperation and knowledgesharing on linking democracy and the rule of law. This could be done bilaterally, but also, for example, by setting up a trilateral partnership among a number of parliaments. In addition, like-minded leaders of European political parties should enter into a dialogue in their own political group in the European Parliament with those parties that approve measures at national level that undermine democracy under the rule of law.
     
  6. Dialogue should always be preferred over confrontation in international diplomacy. The same applies when addressing the issues of democracy, the rule of law and human rights. Where dialogue repeatedly fails, however, the international community should be willing, as a last resort, to draw a line in the sand. In concrete terms, this means that the Netherlands and its EU partners should make clear that there can be no room for Turkey in the Council of Europe and the European Union if it decides to reintroduce the death penalty.
     
  7. Legislation like Russia’s ‘foreign agent’ law and its abuse of general legislation in respect of NGOs should consistently be condemned by the Netherlands, both bilaterally and internationally, in cooperation with like-minded countries.

OSCE

The Netherlands could in the near future consider launching a candidacy for the Chairmanship of the Organization for Security and Co-operation in Europe (OSCE). This would give it the opportunity to put democratisation and the principles of the rule of law more emphatically on the organisation’s agenda, including in the field of human rights.

G20/OECD

The Netherlands is currently taking part in the G20 at the invitation of Germany, which now holds the Presidency. The Netherlands should strive for ongoing participation in this forum, which is ideally suited for working with like-minded countries to address the adverse consequences of globalisation. As in the OECD, a discussion on this subject should focus not only on trade, investment and development but also on socioeconomic rights, environmental rights and the relationship between government and citizens. The Sustainable Development Goals could provide a useful tool for this purpose.

2. Social diplomacy

The above recommendations are aimed mainly at governments and multilateral institutions. Earlier in this report, however, the AIV stated that international political pressure by governments, however essential, is not sufficient to safeguard democracy, the rule of law and human rights in Europe. Above all, there should be broad support in society for these values, and the public should have confidence in the institutions of democracy under the rule of law. This requires a long-term dialogue with civil society organisations, opposition movements and institutions that can translate international human rights to the national level. The AIV would make the following recommendations for this purpose.

  1. As part of its human rights policy, the Ministry of Foreign Affairs should set up a democracy and rule of law programme that focuses on the member states of the Council of Europe where democracy under the rule of law is in danger. It should also draw on the expertise of other relevant ministries (e.g. the Ministries of Education, of Security and Justice, and of Economic Affairs).

    To support this programme, a rule of law fund should be created. During the next government’s term of office, around €2.5 million per year should be set aside for this purpose in the Ministry of Foreign Affairs budget. The existing MATRA programme, which focuses exclusively on strengthening democracy and the rule of law in candidate and potential candidate countries of the EU and the countries of the Eastern Partnership, can be integrated into this broader rule of law fund. The MATRA programme budget is set to decline from €13.7 million in 2017 to €9.1 million in 2018 and 2019. The AIV recommends that, at the very least, this reduction should be reversed.

    The rule of law fund will support civil society organisations with a regional focus on areas such as the following:

    • People-to-people and profession-to-profession contacts. Through placements and exchanges, knowledge and experience can be shared between socially relevant professional bodies, like the judiciary and legal profession, the ombudsman, educational, knowledge and cultural institutions and the media.
    • Raising public awareness of the value and importance of democracy under the rule of law. This can be achieved, for example, by promoting education in citizenship, democracy and human rights, especially among young people. The expertise of the Council of Europe’s Directorate of Democratic Citizenship and Participation can be used for this purpose.
    • Supporting citizen and other initiatives aimed at research and quality journalism in vulnerable democracies.
     
  2. In international forums dealing with internet freedom and governance (e.g. the World Summit on the Information Society/Internet Governance Forum and the Freedom Online Coalition), the Ministry of Foreign Affairs can devote more attention to the internet’s potential role in strengthening the principles of democracy under the rule of law where they are under threat.
     
  3. The Ministry of Foreign Affairs can work with the private sector (e.g. via major social media platforms and the Global Network Initiative) and NGOs in organising projects on digital citizenship, democracy and human rights. A concrete example is the organisation of a Democracy Hackathon, where European software programmers and website developers work together on ICT products (e.g. an app) that can improve trust between citizens and government (both local and national). This ‘hackathon’ could focus on a different theme every year, such as the internet and privacy, social media etiquette, fake news and fact-checking, as well as services provided by local and national government, migration and election observation.

3. Strengthening the capacity of the Ministry of Foreign Affairs and its missions

  1. The AIV strongly recommends that the policy capacity of the Ministry of Foreign Affairs and Dutch missions in Council of Europe member states be evaluated and, where necessary, expanded with local knowledge. This will enable the ministry and missions to identify and respond quickly to local initiatives and opposition movements in the fields of democracy, the rule of law and human rights. Missions will need to have sufficient funds at their disposal for this purpose.164
     
  2. In its strategic secondment policy, the Ministry of Foreign Affairs could focus more explicitly on both non-governmental and multilateral organisations that exert influence, directly or indirectly, on democratisation and the principles of the rule of law, for example the G20, the OECD and the World Summit on the Information Society/Internet Governance Forum and the Freedom Online Coalition.

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160 From senator Willem Witteveen’s contribution to the debate on the rule of law, Proceedings of the Senate 2013-2014, 22-5-1 (March 2014).
161 For example, Germany will no longer be able to avoid the decision not to send asylum seekers back to Hungary. See Politico, 11 April 2017, ‘Germany suspends migrant returns to Hungary – Hungary’s been criticized for detaining migrants in camps on its border with Serbia’, <http://www.politico.eu/article/ germany-suspends-migrant-returns-to-hungary/>.
162 See case C-284/16 (Achmea), now pending before the EU Court of Justice, which, among other things, revolves around the question of whether the Dutch-Czech arbitration agreement is compatible with EU law.
163 See the earlier recommendation for a peer review in AIV advisory report no. 87, The Rule of Law: Safeguard for European Citizens and Foundation of European Cooperation, The Hague, January 2014, pp. 35-37.
164 See also AIV advisory letter no. 32, Representing the Netherlands Throughout the World, The Hague, May 2017.
Advice request

The advisory report The will of the people? The erosion of democracy under the rule of law in Europe has been prepared by the Advisory Council on International Affairs at its own initiative.

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