Oikeusvaltiollisuus Euroopan unionissa ja Suomessa

Selvitys- ja Tutkimustoiminta

• This is a report on the rule of law in the European Union and Finland.
• Authors: Juha Raitio, Allan Rosas, and Pekka Pohjankoski.
• Published by the Prime Minister’s Office in Helsinki, 2022.
• ISBN (pdf): 978-952-383-088-2, ISSN (pdf): 2342-6799.
• URL: https://urn.fi/URN:ISBN:978-952-383-088-2

Abstract

• The report examines the concept and significance of the rule of law and addresses violations from an EU law perspective.
• The study uses contextual jurisprudence methods.
• The report argues that the rule of law is a binding obligation in EU law, linked to the Union's values, and applies to both the EU and its member states.
• Respect for the rule of law is essential for the EU's functioning, especially in areas relying on mutual recognition of official actions.
• EU law allows for interventions in rule-of-law violations through sanction procedures, conditionality regulations, and infringement procedures.
• In external relations, the EU defines the rule of law similarly to its internal operations but cannot unilaterally define it globally.
• Finland's rule-of-law situation is generally good, with issues primarily concerning access to justice.
• The report identifies current EU law-related rule-of-law problems in Finland.

Sisältö (Table of Contents)

• 1 Johdanto (Introduction)

  • 1.1 Mitä oikeusvaltio tarkoittaa ja miksi sen tutkiminen on tärkeää? (What does the rule of law mean and why is it important to study?)
  • 1.2 Tutkimuksen tavoitteet, kysymyksenasettelu ja rajaukset (Research objectives, questions, and limitations)
  • 1.3 Selvityksen lähtökohdat, tutkimusaineisto ja menetelmät (Study background, research material, and methods)
  • 1.4 Selvityksen rakenne (Study structure)

• 2 Oikeusvaltio-käsite Suomessa ja Euroopan unionissa (The concept of the rule of law in Finland and the European Union)

  • 2.1 Oikeusvaltio-käsite Suomessa (The concept of the rule of law in Finland)
  • 2.2 Oikeusvaltio-käsite EU:ssa (The concept of the rule of law in the EU)
  • 2.3 Oikeusvaltion ja ihmisoikeuksien välinen suhde (The relationship between the rule of law and human rights)
  • 2.4 Oikeusvaltio ja demokratia (The rule of law and democracy)

• 3 Oikeusvaltio ja EU:n toimintaedellytykset (The rule of law and EU operating conditions)

  • 3.1 Keskinäinen luottamus (Mutual trust)
    • 3.1.1 Keskinäinen luottamus EU-oikeudellisena velvoitteena (Mutual trust as an EU legal obligation)
    • 3.1.2 Oikeusvaltiorikkomusten vaikutus jäsenvaltioiden viranomaisten keskinäiselle luottamukselle (The impact of rule-of-law violations on mutual trust between member states' authorities)
  • 3.2 Tuomioistuinten riippumattomuus (Independence of the judiciary)
    • 3.2.1 Tuomioistuinten riippumattomuus EU-oikeudellisena vaatimuksena (Independence of the judiciary as an EU legal requirement)
    • 3.2.2 Tuomioistuinten riippumattomuuden sisältö (The content of judicial independence)

• 4 Oikeusvaltion periaatteiden rikkominen ja rikkomuksiin puuttuminen (Violation of the principles of the rule of law and addressing violations)

  • 4.1 Oikeusvaltion periaatteiden rikkominen EU:ssa (Violation of the principles of the rule of law in the EU)
    • 4.1.1 Mitä ”oikeusvaltiorikkomus” tarkoittaa EU-oikeudessa? (What does "rule of law violation" mean in EU law?)
    • 4.1.2 Oikeusvaltio ja EU-oikeuden ensisijaisuus (The rule of law and the primacy of EU law)
  • 4.2 Oikeusvaltiorikkomuksiin puuttuminen (Addressing rule-of-law violations)
    • 4.2.1 SEU 7 artikla: sanktiot (TEU Article 7: Sanctions)
    • 4.2.2 EU:n varojenkäytön ehdollisuus (Conditionality of the use of EU funds)
    • 4.2.3 Rikkomusmenettely (Infringement procedure)
    • 4.2.4 Oikeusvaltiorikkomuksiin puuttuminen jäsenvaltioissa: EU-rahoitus ja ennakkoratkaisumenettely (Addressing rule-of-law violations in member states: EU funding and preliminary ruling procedure)

• 5 Oikeusvaltiollisuuden edistäminen EU:n ulkosuhteissa (Promoting the rule of law in EU external relations)

  • 5.1 Oikeusvaltio EU:n ulkosuhteissa – yleistä (The rule of law in EU external relations - general)
  • 5.2 Oikeusvaltion edistämiskeinot EU:n ulkosuhteissa (Means of promoting the rule of law in EU external relations)
    • 5.2.1 Kansainvälinen vaikuttamistyö (International advocacy)
    • 5.2.2 Kaupallisten ja rahoituksellisten etuuksien ehdollistaminen (Conditionality of commercial and financial benefits)
    • 5.2.3 Toimenpiteet EU:n tekemien kansainvälisten sopimusten nojalla (Measures under international agreements made by the EU)
    • 5.2.4 Rajoittavat toimenpiteet (pakotteet) (Restrictive measures (sanctions))
  • 5.3 Oikeusvaltio ja kansainvälinen oikeus (The rule of law and international law)
  • 5.4 Kokoavia havaintoja (Comprehensive observations)

• 6 Huomioita oikeusvaltiollisuuden toteutumisesta Suomessa (Notes on the implementation of the rule of law in Finland)

  • 6.1 Yleiskuva suomalaisesta oikeusvaltiosta (Overview of the Finnish rule of law)
    • 6.1.1 World Justice Projectin oikeusvaltioindeksi (World Justice Project's Rule of Law Index)
    • 6.1.2 Komission oikeusvaltiokertomus (Commission's Rule of Law Report)
      • 6.1.2.1 Oikeuslaitoksen toimivuus (Functioning of the judiciary)
      • 6.1.2.2 Korruptiontorjunta (Anti-corruption)
      • 6.1.2.3 Tiedotusvälineiden moniarvoisuus ja vapaus (Media pluralism and freedom)
      • 6.1.2.4 Muut hallitusjärjestelmän osien keskinäiseen valvontaan liittyvät institutionaaliset kysymykset (Other institutional issues related to mutual supervision of parts of the government system)
    • 6.1.3 Havaintoja WJP:n ja komission Suomea koskevista oikeusvaltioarvioista (Observations on WJP's and the Commission's rule of law assessments for Finland)
  • 6.2 Huomioita oikeusvaltiollisuuden ongelmakohdista Suomessa (Notes on problem areas of the rule of law in Finland)
    • 6.2.1 Perustuslakivaliokunnan rooli ja jälkikäteisen säädösvalvonnan johdonmukaisuus (The role of the Constitutional Law Committee and the consistency of ex post regulation)
      • 6.2.1.1 Perustuslakivaliokunnan rooli: riippumaton laintulkitsija? (The role of the Constitutional Law Committee: an independent interpreter of the law?)
      • 6.2.1.2 Jälkikäteisen säädösvalvonnan johdonmukaisuus: perustuslain 106 §:n nk. ilmeisyysvaatimus (Consistency of ex post regulation: the so-called manifest requirement of Section 106 of the Constitution)
    • 6.2.2 Tuomioistuinten riippumattomuus, oikeusturvan saatavuus ja EU-oikeuden toteutuminen Suomessa (Independence of the judiciary, access to justice and the implementation of EU law in Finland)
      • 6.2.2.1 Tuomioistuinten riippumattomuuden takeet (Guarantees of judicial independence)
      • 6.2.2.2 Oikeusturvan saatavuus: liian pitkät käsittelyajat, liian kallis prosessi? (Access to justice: too long processing times, too expensive a process?)
      • 6.2.2.3 Ongelmia EU-oikeuteen perustuvien oikeuksien toteutumisessa Suomessa – esimerkkinä alkoholin etämyynti (Problems in the implementation of rights based on EU law in Finland – an example of distance selling of alcohol)

• 7 Johtopäätöksiä (Conclusions)

• Liite: A Declaration on the Rule of Law in the European Union

• Lähteet (Sources)

Lukijalle (To the Reader)

• This report reviews the concept and practical significance of the rule of law in European Union law.
• Examining the rule of law is relevant due to serious threats worldwide and in Europe.
• Some EU member states have questioned the importance of the rule of law, viewing it as merely a political ideal.
• Examples of undermining the rule of law in 2020s Europe include leveraging courts for administrative control, misusing EU funds, and prioritizing majority rule over minority rights.

TIIVISTELMÄ (EXECUTIVE SUMMARY)

• The rule of law is a fundamental concept in Western societies, guaranteeing democracy and individual rights.
• Examining the rule of law is vital due to serious threats globally and in Europe.
• This report approaches the rule of law through contextual jurisprudence, emphasizing EU law and court decisions to understand the European concept.
• The significance of the rule of law for the EU's operation is assessed through concrete problem situations; Finland's situation is contextualized with international studies.
• The report focuses on clarifying the concept of the rule of law in EU law and evaluating how to address violations within the EU.
• It does not assess the rule of law globally, except in the context of EU external relations, and evaluates Finland's situation primarily through historical context and EU law-related issues.
• Early in Finland's independence, the rule of law was strongly tied to adherence to the law, with emphasis on legal compliance amid external and internal threats, though the importance of legal protection was also noted.
• From the 1960s, welfare state goals led to a broader understanding of the state's role beyond formal legal adherence.
• In the late 20th century, fundamental and human rights gained prominence with Finland's accession to the European Convention on Human Rights in 1990 and the reform of national fundamental rights regulations in 1995.
• Joining the EU in 1995 and the constitutional reform in 2000 also represented major changes, leading to a domestic understanding of the rule of law based on the new constitution and Finland's EU membership.
• Contemporary Finland views the rule of law as part of a broader European model that emphasizes democracy, fundamental rights, and independent courts.
• This background motivates efforts to clarify the conceptual content of the rule of law in EU law.
• The report suggests that the rule of law in the EU encompasses principles regulating the operation of the legal system, such as legality, legal certainty, prohibition of abuse of power, effective judicial protection, and the separation of powers.
• The EU recognizes a "trinity" between respect for fundamental rights, a democratic social system, and the rule of law, indicating that each value is necessary for the others to be realized.
• The rule of law is not merely political rhetoric but a binding legal obligation on member states, forming part of the EU's constitutional identity.
• The EU Court of Justice has emphasized member states' broad obligation to ensure the independence of their courts, and the rule of law must be considered in the practical operations of courts and authorities.
• The interpretation of EU law should favor the option most compatible with the principles of the rule of law, indicating an obligation for "rule of law-friendly" legal interpretation.
• The report asserts that the rule of law should be understood as having the same content at both the EU and member state levels, as a shared understanding is essential for the functioning of the Union's legal order.
• The EU does not allow an à la carte approach to the rule of law, with member states unable to define its basic features in ways that deviate from EU law.
• While the EU Treaties do not define the rule of law, its conceptual content has been refined through Union legislation and court decisions; the EU Court of Justice has deemed the concept well-established and holds the power to interpret its principles within the Union's legal sphere.
• Mutual recognition of administrative decisions or court judgments may falter if these principles are not universally respected.
• The text illustrates how such regression could impact the extradition of cross-border criminals, enforcement of debt judgments, or the free movement of goods around the Union.
• Member States have a legal responsibility to trust each other's legal systems; this may only be expected if the rule of law is regarded everywhere.
• Regulatory solutions based on mutual trust cut across many areas of EU law.
• In recent years, the confidence in mutual systems among Member States has occasionally cracked due to rule-of-law infractions, with possibly grave consequences for the Union's operating parameters going forward.
• The report then turns to explore methods of addressing rule-of-law infractions in the EU.
• The political sanction procedure of Article 7 of the EU Treaty has proven practically ineffective due to its high voting threshold.
• The EU legislature has implemented a