THE FRAMEWORK CONVENTION FOR THE PROTECTION OF NATIONAL MINORITIES: A USEFUL PAN-EUROPEAN INSTRUMENT? A. VERSTICHEL A. ALEN B. DE WITTE P. LEMMENS (editors) intersentia Antwerp - Oxford - Portland
TABLE OF CONTENTS PREFACE ABOUT THE EDITORS LIST OF PRINCIPAL ABBREVIATIONS v vii xv INTRODUCTION: EXPLORING A CENTRAL PILLAR OF THE EUROPEAN MINORITY RIGHTS SYSTEM BRUNO DE WITTE 1 TOWARDS A PAN-EUROPEAN INSTRUMENT? ASBJ0RN ElDE 5 1. The Questions to Be Discussed 5 2. On the Expanding Pattern of Ratification 6 3. 'Empty' Ratifications - For International Solidarity Only? 7 4. The Essence of Minority Protection in the Framework Convention 9 5. On the Personal Scope of Application 13 6. On the Effectiveness of the Monitoring by the Council of Europe 15 7. Concluding Remarks 16 CONSTITUTIONAL RECOGNITION OF ETHNIC DIFFERENCE - TOWARDS AN EMERGING EUROPEAN MINIMUM STANDARD? JOSEPH MARKO 19 1. State-Nation or Nation State: Two Opposing Concepts? 19 2. Equality and Difference: The Need for Reconceptualisation 23 3. The Jurisprudence of the ECtHR - An Emerging European Minimum Standard for Minority Protection? 28 'X
MINORITY PROTECTION AND CONSTITUTIONAL RECOGNITION OF DIFFERENCE. Reflections on the Diversity of European Approaches JULIE RINGELHEIM 33 Introduction 33 1. The Modes of Recognition of Difference in European Constitutions 35 2. Constitutional Recognition of Difference and International Protection of Minorities 38 2.1. Belgium and Spain: The Principle of Territoriality and the Fate of Regional Minorities 39 2.2. Slovenia: the Situation of Non-Constitutionally Recognised Groups 42 2.3. Cyprus: The Right Not to Belong to a Community 42 3. Constitutional Recognition of Difference and the Place of Minorities in the Political Community 43 Conclusion 48 TERRITORIALITY VERSUS PERSONALITY JAN CLEMENT 51 1. Introduction 51 2. The Language Problem in Belgium 51 3. The Principle of Territoriality under Pressure? 55 4. The FCNM and the Identification of Minorities in Belgium 56 5. The FCNM and Territorial Autonomy 60 6. The Lund Recommendations 63 7. A Preference for Personality? 64 8. The Theory of Personality 65 9. Human Rights and Personality 66 10. Conclusion 68 THE ADDED VALUE OF THE FRAMEWORK CONVENTION FOR THE PROTECTION OF NATIONAL MINORITIES (I) SIA SPILIOPOULOU AKERMARK 69 1. Added to What? 69 2. Was the Framework Convention on National Minorities Intended Only or Mainly for the Former Communist Countries of Eastern Europe?... 73 3. What is the Relation between the Framework Convention and the European Convention on Human Rights? 77 X
4. What is the Function of the FCNM? 87 Conclusion 89 THE ADDED VALUE OF THE FRAMEWORK CONVENTION FOR THE PROTECTION OF NATIONAL MINORITIES (II). The Two Pillars of an Adequate System of Minority Protection Revisited KRISTIN HENRARD 91 1. Introduction 91 2. The FCNM is 'Not Adding Anything': Two Nuances 93 3. The Framework Convention's Special 'Position' in Terms of the Two-Pillar Story 96 4. Nuances to the Two-Pillar Structure: Shifts in Relative Importance 101 4.1. Developments in Relation to the First Dimension of the First Pillar: Non-Discrimination 104 4.2. Developments in the Jurisprudence in Relation to the Second Dimension of the First Pillar: Individual Human Rights (of Special Relevance to Minorities) 113 The Right to Respect for an Own Way of Life 114 5. Conclusion 116 SUBSTANTIVE CHALLENGES TO THE PROTECTION OF RELIGIOUS FREEDOM UNDER THE FRAMEWORK CONVENTION DlLEK KURBAN 119 1. Who are the "European" Minorities that the Framework Convention Aspires to Protect? 120 2. Substantive Scope of Freedom of Religion under the Framework Convention 122 3. Substantive Challenges Awaiting the Advisory Committee 125 PERSONAL SCOPE OF APPLICATION: AN OPEN, INCLUSIVE AND DYNAMIC APPROACH - THE FCNM AS A LIVING INSTRUMENT ANNELIES VERSTICHEL 127 1. Introduction 127 2. Which Groups Constitute a Minority under the FCNM? 128 2.1. Absence of a Definition 128 2.1.1. Rules of Interpretation and the Authority to Interpret... 128 XI
2.1.2. State Practice and General Approach of the ACFC 130 2.2. Elements of a Definition 137 2.2.1. 'National' Minorities 139 2.2.2. Ethnic, Cultural, Linguistic and Religious Characteristics different from 'the Rest of the Population' - Numerical Minority Position - 'Minority-in-minority' 142 2.2.3. Durable Ties with the Territory and the Citizenship Requirement 144 2.2.4. Dominant or Co-dominant Position 151 2.3. Implicit ACFC Definition 155 3. Conclusion 156 IMPLEMENTATION OF THE FCNM: SUBSTANTIVE CHALLENGES RAINER HOFMANN 159 1. Introduction 159 2. The Contents of the Substantive Provisions of the FCNM 163 2.1. The Right to a Distinct Identity (Self-Identification, Protection and Promotion of the Distinct Identity, Prohibition of Forced Assimilation) 163 2.1.1. Right to Self-Identification and Prohibition of Forced Assimilation 163 2.1.2. Obligation to Protect and Promote the Distinct Identity of National Minorities Including through the Use of Positive Measures 164 2.2. Non-Discrimination and Effective Equality 165 2.3. Inter-Cultural Dialogue and Tolerance 166 2.4. Freedom of Religion and Political Rights (Freedom of Assembly, Association, Expression, Thought, and Conscience) 168 2.5. Media Rights 169 2.6. Linguistic Rights 171 2.7. Educational Rights 174 2.8. Participatory Rights 177 2.9. Free Cross-Border Contacts 179 3. Concluding Remarks 180 4. Summary 182
DOMESTIC ENFORCEMENT AND DIRECT EFFECT OF THE FRAMEWORK CONVENTION FOR THE PROTECTION OF NATIONAL MINORITIES. On the Judicial Implementation of the (Soft?) Law of Integration FRANCESCO PALERMO 187 1. Introduction 187 2. A 'Pan-European Instrument' Within the Framework of the 'Geo-Juridical' Spheres of European Integration 189 3. The FCNM in the Comparative Light of Judicial Interpretation 192 3.1. Methodology 192 3.2. The FCNM as a Source of Rights and Obligations and as 'European Standard' 194 3.2.1. The 'Soft' Approach 196 3.2.2. The FCNM as a Parameter 197 3.2.3. The FCNM as a 'European Standard" 199 3.3. The FCNM as an Interpretative Support in Minority Issues 201 3.3.1. Definition of Minorities 201 3.3.2. Interpretation of the FCNM 204 3.3.3. The Core of the FCNM: Language, Education, Political Representation 206 4. Concluding Remarks 209 List of Cases 212 THE FRAMEWORK CONVENTION AS A PAN-EUROPEAN INSTRUMENT. A Perspective of the OSCE High Commissioner on National Minorities KRZYSZTOF DRZEWICKI 215 1. Introduction 215 2. The Framework Convention for the Protection of National Minorities. 216 3. The OSCE High Commissioner on National Minorities 217 4. Positivisation of Minority Issues at the Universal Level 219 5. Positivisation of Minority Issues at European Levels 220 6. The HCNM's Normative Position 221 7. From Normative Permeation to Mutual Feedback 222 7.1. Ratification of the Framework Convention 223 7.2. Declarations and Reservations in Relation to the Framework Convention 224 7.3. Consultation on Interpretation of the Framework Convention 225 8. Extending Outreach of the FCNM by the High Commissioner 226
9. Concluding Remarks 228 THE FRAMEWORK CONVENTION ON THE PROTECTION OF NATIONAL MINORITIES AND THE LAW OF THE EUROPEAN UNION OLIVIER DE SCHUTTER 231 1. Introduction 231 2. The Potential Role of European Union Law in Contributing to the Implementation of the FCNM 235 2.1. The Legal Bases for a Minority Rights Policy of the EU 236 2.2. The Anti-Discrimination Strategy of the EU and the Principles of the FCNM 237 2.3. The Other Contributions of the EU to the Implementation of the Principles of the FCNM 247 2.3.1. The Promotion of Regional and Minority Languages 247 2.3.2. The Regulation of Audio-Visual Services 249 3. The Obligation not to Violate the Rights of the FCNM in the Field of Application of European Union Law 254 3.1. The Components of the Negative Dimension of the EU Approach to Minority Rights 255 3.2. The Limitations of the Negative Dimension of the EU Approach to Minority Rights 262 4. Conclusion 268 A PAN-EUROPEAN INTERPRETATION AND APPLICATION OF THE FRAMEWORK CONVENTION. Statement at the International Conference on the Framework Convention for the Protection of National Minorities: A Useful Pan-European Instrument? PlETER VAN DlJK 273 CHALLENGING THE QUESTION MARK: THE FRAMEWORK CONVENTION AS AN INCREASINGLY USEFUL PAN-EUROPEAN TOOL ANTTI KORKEAKIVI 277 XIV