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8/12/2019 The State in International Law
1/23Electronic copy available at: http://ssrn.com/abstract=1646394
OSGOODEHALLLAWSCHOOLComparativeResearchinLaw&PoliticalEconomyRESEARCHPAPERSERIES
ResearchPaperNo.27/2010
TheStateinInternationalLaw
KarlHeinzLadeur
Editors:
PeerZumbansen(OsgoodeHallLawSchool,Toronto,Director,ComparativeResearchinLawandPoliticalEconomy)JohnW.Cioffi(UniversityofCaliforniaatRiverside)LisaPhilipps(OsgoodeHallLawSchool,AssociateDeanResearch)NassimNasser(OsgoodeHallLawSchool,Toronto,ProductionEditor)
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2 CLPERESEARCHPAPER SERIES [VOL.06NO.06
CLPEResearchPaper27/2010
Vol.06No.6(2010)
KarlHeinzLadeur
TheState
in
International
Law
Abstract:Theanalysisofprocessesoftheglobalisationoflawneedsnewparadigmsbeyondthereferencetotraditionalstatebasedlawincludinginternationallaw.Globaladministrativelaw,inparticular,shouldnotbeconceivedasaphenomenonthatisnolongerstatebasedlawandnotyet the lawofacomingworldstate. It isanewheterarchicalorder in itsown right.Thetheoreticalandpracticalchallengesofitsnetworkstructurecanonlybemetbyapproachesthatare focusedonanew relational rationalityofmetarules for themanagementofconflictsofheterogeneous norms. This goes for administrative law as well as for the transnational
cooperationof
courts.
Keywords:globaladministrative law, transnationalnetworksof courts, state in transnationallaw
JELClassification:K10,K33
KarlHeinzLadeurProfessor,UniversityofHamburg,
LawFaculty,Schlterstr.28,D20146Hamburg,Germany,Email:[email protected]
Thispaperisforthcomingin:C.Joerges&J.Falke(eds.),TheSocialEmbeddednessof
TransnationalMarkets(Oxford,HartPublishing,2010)
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2010] THE STATE IN INTERNATIONAL LAW 3
TheStateinInternationalLaw*
KarlHeinzLadeur**
I.INTRODUCTION
Jrgen Habermas seems to regard the European nation state as the privileged frame of
referencefordemocracyanditsconstitutionalandlegalstructure.1Accordingtohisassumption
thestatesupportsthe ideaoftheunityofthe legalorderandofdeliberativereflection inapublicrealmaccessibletoallarguments.Itallowsfortheemergenceofalternativeversionsofpoliticsviapoliticalpartieswhichcan finallybe theobjectofparliamentarydecisionmaking.Can Europe be the successor of the nation state under conditions of globalisation? In thecontextof thediscussionof theEuropeanisationof law, and the constitutionalisationof the
EuropeanUnion
in
particular,
this
argument
seems
to
be
quite
appealing
to
many.
Globalisation is interpretedashaving curbed theStates capability2 to imposenormson thetransnationalprocessofexpandingmarkets.3Thisevolutionseemsnotonly tohave reducedtheactionpotentialoftheStatebut,atthesametimeandevenmoreimportantly,italsohasreduced the value of citizenship. Citizenship can no longer be the core element of therelationship between the individual and the State in the postmodern society. It cannot be
constituted via a direct relationship with the State, which at the same time constitutes the
realm of deliberation, because the diffuse networks of transnational interrelationships4beyond theStatecannotbe reflectedby theprocessofpublicdeliberation in the traditionalunderstanding.The spaceof the State is,on theonehand, too small.On theotherhand, it
mightappeartoobig.AgainstthisbackgroundEuropecannotberegardedasthebeareroftheEuropeanacquistatique(stateacquis).
*TranslationbyRoryS.Brown
**Professor, University of Hamburg, Law Faculty, Schlterstr. 28, D 20146 Hamburg, Germany, karl
1 J.Habermas, Dereuropische Nationalstaat unterdem Druck derGlobalisierung,48Bltterfrdeutscheund
internationalePolitik1999,p.425.
2M.Zrn,Facingthe21
stCentury.ChallengetotheState, in:HertieSchoolofGovernance(ed.),TheRoleofthe
Stateinthe21stCentury,April22/232004,p.48.
3Zrn,ibid.,p.48.
4Thenetworkconcept isoftenused ina looseway; itshouldspecifiedwithrespecttosomecombinationof
informality, equality, and commitment P. DiMaggio, Conclusion: The Futures of Business Organization and
Paradoxes of Change, in: idem (ed.), The 21st Century Firm: Changing Economic Organization in International
Perspective, Princeton: Princeton UP 2001, 212I would add its functionality for a mode of generation of
knowledgeandmanagementofuncertainty, cf. for the conceptof the disaggregatedStateA.M.Slaughter,A
NewWorldOrder,Princeton:PrincetonUP2004
freado
como o portador
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Theemergenceofthenewtransnationallawbeyondthestateisnotprimarilyduetoissuesofscale.Neitheristhetransnationalelementoftheglobalizationprocessonlyprivatelaw.Itissomethingbetweennationalandinternationallaw.ThesizeoftheEuropeanCommunityclearly
presents advantages for todays economic and legal systems. However, this advantage is
different from the gains derived by the nation states from that size. Globalisation is not
equivalentto
more
conformity,
greater
harmonisation,
more
and
higher
standards,
or
even
the
convergenceoflegalorders.5
Beyond the traditional forms of territorial separations a new sectoral principle ofdifferentiation,6whichdeploysitseigenrationality(specificrationality)isemerging.Thenewlegalsystemfollowsa logicofnetworking:evermoretransnationallegalregimescometothe
forefrontthatgenerate,observe,andmanagetheirownrules.Thereflexivepotentialofprivateregimesforthemanagementofrulesdiffersfromthenormativesystemsofthepast.
Thisevolutioncorresponds to theabovementioned riseofnetworklikehybridorganisationsand interrelationships (flathierarchies) in theeconomy.7This deep transformation is alsoimportantfortheinstitutionaldesignoftheEU.Theconceptionofsupranationalityhasbeenfunctionallyopenandflexibleinthepast.8ItisaparadoxthatinrecentyearsthisexperimentalopencharacteroftheEuropeaninstitutionshasincreasinglyvanishedandbeensupplantedbyaStatecenteredperspectiveofakindofsuperstateinspiteofthefactthatthisrunscountertothe new relational logic of societal selforganisation and its open dynamic of selftransformation.Thepostmodern legaldiscourseat the levelof theMemberStateshasbeenfocused for quite some time on the value and productivity of divergence.9 The emergent
systemofgovernanceisexperimentalandnetworked,nothierarchical.10
Ofcourse,spaceasa frameofreferenceof theState inparticularhasbeen transformed,yet
thisis
not
aone
dimensional
process.
It
is
also
mirrored
by
internal
processes
of
restructuring
5A.FischerLescano&Teubner,RegimeKollisionen,Frankfurt:Suhrkamp,2006,p.36.
6Forthegeneralprinciplesofdifferentiationintheworldsocietycf.N.Luhmann,DieWeltgesellschaft,in:idem,
SoziologischeAufklrung2,Opladen:WestdeutscherVerlag1975,p.71.
7SeeR.G.Rajan&L.Zingales,TheFirmasaDedicatedHierarchy:ATheoryoftheOriginandGrowthofFirms,
NBER7546,February2000.
8U.DiFabio,DasRechtoffenerStaaten,Tbingen:Mohr1998;idem,DerVerfassungsstaatinderWeltgesellschaft,
Tbingen:Mohr2001.
9
O.
Lobel,
The
Renew
Deal:
The
Fall
of
Regulation
and
the
Rise
of
Governance
in
Contemporary
Legal
Thought,
89
MichiganLawReview2004,p.262,305.
10 C.F. Sabel & J. Zeitlin, Active Welfare, Experimental Governance, Pragmatic Constitutionalism: The NEW
Transformation of Europe, Draft for the International Conference of the Hellenic Presidency of the EU: The
ModernisationoftheEuropeanSocialModelandEUPoliciesandInstruments,May21/222003,p.19.
vanguarda que gera
apesar
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theroleofspace.11Technologyhasalsodeeplychangedtheroleofterritorywithinthenationstate.12IfonetakesthetransformationprocessofsocietyinEuropeancountriesseriously,thereconstructionofEU institutions should follow thenew relational rationality thatemerges in
the differentiated social systems. A postmodern approach to institutionbuilding (and not
nationbuilding)shouldadaptitselftothelogicofplurallegalregimesandtrytoestablishrules
ofcollision
for
the
management
of
different
legal
regimes.
13
It
should
endeavour
to
design
strategies for the irritationof the selforganisationalpotentialprocessed in socialnetworks14
and try tobreakup lockineffectsby the introductionofnew flexibility into thedistributed
poolsofvarietyforwhichnoprivilegedpositionofobservationcanbefound.15Allthisrunscounter to the search for a stable hierarchical position that couldbe used for a strategy ofsteeringsocietybythedemocraticstate.16
Inwhatfollows,boththeevolutionoftheEUandofglobalgovernanceshallbeobservedastheexpression of a new logic of networks which can be regarded neither from a statecentredperspectiveasunderminingdemocraticauthoritynoras something completelynewbeyondthestate.Theacentriclogicofthenetworkstransformsbothstatebasedandinternationallaw(includingsupranationalEuropean law)andopensanewperspectiveonapluralityofhybridlegal orders which might be governed by an emerging logic of experimental metarules ofcollisionnorms.TheEU, the collisionsofjurisdictions (administrativeandjudicial),and theemergenceofagloballaw(includingitsrelationshipwiththetraditionalinternationallaw)shallbeanalysedwithreferencetothenewlogicofnetworks.
II.THEECASANASSOCIATIONOFSTATESANDTHENEEDFORALAWOFCOLLISIONS
OFANEWTYPE
Thesingularity
of
the
construct
of
an
association
of
states
17
,the
EC,
is
marked
by
manifestly
different types of collisions beween national and supranational laws and the absence of a
general harmonising formula, such as the recourse to the unity of a legal order, or the
integratingfunctionofaconstitutionas ina federationofstates.Thisconstellation is thrown
11Forthefundamentaltransformationandflexibilisationofspacecf.S.Sassen,Territory,Authority,Rights.From
MedievaltoGlobalAssemblages,Princeton:PrincetonUP2008.
12K.Ohmae,TheEndoftheNationState:TheRiseofRegionalEconomies,NewYork:SimonandSchuster1995.
13A.FischerLescano&G.Teubner,RegimeCollisionTheVainSearchforLegalUnityintheFragmentationofGlobal
Law,25MichiganJournalofInternationalLaw2004,p.999.
14N.Luhmann,PolitischeTheorie imWohlfahrtsstaat,Olzog:Munich&Vienna1981;K.H.Ladeur,Postmoderne
Rechtstheorie,2nded.,Berlin:Duncker&Humblot1995,p.159etseq.
15Cf.generallyN.Luhmann,ErkenntnisalsKonstruktion,Bern:Benteli1988.
16Cf. foracritiqueO.Lepsius,Steuerungsdiskussion,SystemtheorieundParlamentarismuskritik,Mohr:Tbingen
1999.
17ReportsoftheGermanFederalConstiturionalCourt(BVerfGE)Vol.89,p.155Maastricht.
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into relief,whereEuropeancompetition lawclasheswithnational radio licensing laws.18Thisconflictcanariseinternallywithinthenationstate,butthenationaldivisionofcompetencesinGermany for instance, proceeds from the demarcation of subjects ofjurisdictional conduct,
whereas, in the EC respective authority is determined by the aims of the internal market,
raising the questions of whether the organisation and conduct of radio stations can be
consideredeconomic
activity
and
hence
be
regulated.
ChristianJoerges19andChristophSchmid20havesuggestedthatthistypeofcollisionshouldbe
characterisedasdiagonal anotionwhichfittinglyexpressesapeculiarcollectionofcollisionsbetween laws. Here, neither the classic international private law nor the collisions order ofadministrative law for territoriallydeterminedhorizontalcollisionsand therewitha logicof
referentialitystandachance,norforthatmatterdotherulesofprecedencewhichpertaintoGerman constitutional law (pursuant to Art. 31 Basic Law) and to the EC itself where lawscollidevertically.Rather,neededherearemorenovelrules,thoughstillconceptuallycollisionsrules,ofreciprocalagreementandcooperationwhichmustbedeterminedbythedynamicsofindividual problems and not by stable boundaries. 21 This ordering of the aforementionedconflicttypeasdiagonalcollisionsacquitsitselfascompatiblealsoforthedogmaticconturingofthebordersoftheefficacyofadministrativeactsinEuropeanisedpubliclaw:heretooweareconcernedwith a limitedoverlapofgeneralnationalandparticularEuropean administrative
18 K. H. Ladeur, Die Kooperation von europischem Kartellrecht und mitgliedstaatlichem Rundfunkrecht, 50
WirtschaftundWettbewerb2000,p.965.
19 C. Joerges, The Impactof European Integration on Private Law:Reductionist Perceptions, 3 European Law
Journal1997,
p.
374;
id.,
Europarecht
als
Kollisionsrecht
neuen
Typs,
Festschrift
Rehbinder,
Berlin:
Erich
Schmidt
2007, p. 717; id. & F. Rdl, Zum Funktionswandel des Kollisionsrechts II: Die kollisionsrechtliche Form einer
legitimenVerfassungderpostnationalenKonstellation,in:Festschrift Teubner,Berlin:deGruyter2009,p.775;id.,
ConstitutionalisminPostnationalConstellations:ContrastingSocialRegulationintheEUandintheWTO,id.&E.
U.Petersmann(eds.),Constitutionalism,MultilevelTradeGovernanceandSocialRegulation,Oxford:Hart2006,p.
491; id., RethinkingEuropean LawsSupremacy:APlea foraSupranationalConflictofLaws, in:BeateKohler
Koch & Berthold Rittberger (eds.), Debating the Democratic Legitimacy of the European Union, Lanham, MD:
Rowman&Littlefield,2007,p.311;id.,ConflictofLawsasConstitutionalForm:ReflectionsonInternationalTrade
LawandtheBiotechPanelProject,RECONWP2007/03.
20 C. Schmid, Diagonal Competence Conflicts between European Competition Law and National Regulation: A
ConflictofLawsConstructionoftheDisputeofBookPriceFixing,8EuropeanReviewofPrivateLaw2000,p.155.
21Traditionalrulesonconflictoflaws,aswellaspublicandprivatelawcertainlyhasthatorientation,cf.C.Ohler,
Die Kollisionsordnung des allgemeinen Verwaltungsrechts. Strukturen des deutschen internationalen
Verwaltungsrecht,Tbingen:Mohr2005;onprivate law,seeR.Michaels,EULawasPrivate InternationalLaw?
ReconceptualizingtheCountryofOriginPrincipleasVestedRightsTheory,2JournalofPrivateInternationalLaw
2006, p. 195 , 211; R. Wai, Transnational Private Law and Private Ordering in a Contested Global Society, 46
HarvardInternationalLawJournal2005,p.471,472;Joergessupra,note19.
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law, where the conflict cannot be resolved with a simple rule of supremacy. The duty tovouchsafetheeffetutileis,correctly,derivedfromtheprincipleofcooperation(Art.10ECT).22
Ithasas itsobjectnotapurely instrumentaldutyofeffectivetranslationofthediktatsofthe
particularEuropeanadministrative law,assistedbythenationalgeneraladminstrative law, its
formsand
processes;
rather
it
aims,
properly
understood,
to
render
permeable
the
general
formsofcivilandadministrativelaw(possiblyalsocriminallawinthefuture)fortherealisation
ofthepeculiaritiesofamultipolarlegalorder,which,throughtheapplicationanddevelopment
of instances of general administrative law, may not ignore the interests of the EC, othermemberstates,orcitizensinitsinterpretationofthepublicinterest.Thisnotwithstanding,anexpectation of cooperation obtains reciprocally, by virtueof the diagonal character of the
collision,whichadmitsofnoprecedencebetween theoneand theother legalorder. 23Theexpectationofcooperation isnot therefore tobeunderstoodasunilateral;thusly effetutilecannot aim towards the total setting aside, for instance, of rules on the basis of theenforcement of administrative acts. The principle of effet utile cannot be allowed tocircumventthehigherprincipleofdelimitedisolatedempowerment.
Legitimate expectations are a valid foundation of general public law, which falls within thecompetenceofthememberstates.TheharmonisingexpectationsforEuropeanpubliclawmustbecorrespondinglycurtailed.InthisareaofcooperativeagreementoflegitimateexpectationsofEuropean lawandequally legitimate conserving considerations as to the retentionof theorderingideaoftheprevailingnationalgeneraladministrativelaw24,itmustbesaidthattheECJhasbeenoflittleassistancethroughitsroleinthecasebycasedevelopmentofdecisional,
evidential and balancing rules. 25 This finds its expression many times over in the EU law
literature, in the three schematic categories of general administrative law in the European
multilevel regulatory system: geneneral adminsitrative law of the ECs own administration,
general
national
administrative
law
of
the
member
states
and
Europeanised
national
adminstrativelawthatservestheimplementationofparticularEuropeanadministrativelaws.26
This leaning towardsa schematicdifferentiation sits togetherwithan initiallyproductivebutmore recently increasingly disruptive indiscriminating option for the implementation of the
22Th.Oppermann,Europarecht,3rded.,Munich:Beck2005,No.243.
23 Ladeur,supra,note18.
24E.SchmidtAmann,DasallgemeineVerwaltungsrechtalsOrdnungsidee,2nded.,Berlin:Springer2004.
25Cf.onthemeaningoflearningofgeneraladministrativelawinjurisprudence,C.Harlow,ChangingtheMindset:
ThePlaceofTheoryinEnglishAdministrativeLaw,14OxfordJournalofLegalStudies,p.419;onlearningthrough
the development of ordering ideas, in the exchange between general and particular administrative law, E.
SchmidtAmann&S.Dagron,DeutschesundfranzsischesVerwaltungsrechtimVergleichihrerOrdnungsideen,
45ZeitschriftfrauslndischesffentlichesundVlkerrecht 2007,p.395.
26St.Kadelbach,EuropeanAdministrativeLawandtheLawoftheEuropeanizedAdministration,in:C.Joerges&
R.Dehousse(eds..),GoodGovernanceinEuropesIntegratedMarkets,Oxford:OUP2002,p.167.
outorgar
ditames
no obstante
contornar
cerceada
essa inclinao
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supremacyofEuropeanlawwiththeassistanceofasystematicpenetrationintonationallaw.27Inanyevent the increasingdepthofpenetrationofEuropeanisedadministrative law (which,similarly, applies to civil law) in the general legal structures of the member states wreaks
evermore problematic collateral damage. An example from civil law is provided by the
expanding interpretationoftheproduct liabilitydirectiveasacomprehensiveregulationofall
claimsdue
to
damage
within
the
remit
of
the
directive
28
;by
dint
of
this
the
application
of
all
possiblenational laws fulfillingorextending liability in scenarios touchedbyEuropean law is
excluded29,whilst theycontemporaneouslystillhaveapplication topurely internalsituations.
Thisisacceptedeventhoughthispossibilityofanexpansiveunderstandingofthedirectivewasnotforetoldatthetimeofitsissuance.30
Incivilandinpubliclaw,theECJoughttobemorecarefulwhenscrutinisinganddevelopingtheproductiveaspectof themultipolarEuropean legalorder,whichwill likely result in ithavingevenmore input into thesubstantiveandproceduralcooperationof the legalordersand thecourts of the member states. In that vein, it should, above all, be considered that theEuropeanisationoflawbyitsveryinterferencewithnationallegalorders,interruptstheprocessof theirembedding (bywayofdogmatic selfrestraint) inavariedpractice, inparticularwithrespect to decisions about a multiplicity of cases and the experiences therefrom gained,without for its part being able to dispose of a corresponding structure of case knowledge,patternsofconductandexpectations,normativepriorityandcognitiveexperiential,evidentialandassumptive rules.TheECcan,on thebasisof its sizeand thepluralityof itsexperience,political, cultural and legal traditions never meaningully strive to become a Europeansuperstate.31TheECJseemstoignorethisinitsoverestimationofthemeaningoftheunityof
lawasaninterpretivetool32,threateningtheboundariesofthedivisionofcompetences.
As a preliminary hypothesis it might be held, based on the interpretations of the force of
adminstrativeacts
in
European
administrative
law,
that
aEuropean
general
administrative
law
cannot be conceptualised pursuant to the unitybuilding pattern of the systematising and
reflexive functions of the traditional national generalpublic law. Itmust be conceived of ascollisions law in the sense of an opening of the national general administrative law for
27K.H.Ladeur,RichterrechtundDogmatikeineverfehlteKonfrontation?,79KritischeVierteljahresschriftfr
GesetzgebungundRechtswissenschaft1996,p.77.
28ECJ,Rep.2002, I3901 GonzlezSanchez;C.Schmid,C.,TheECJasaConstitutionalandaPrivateLawCourt,
ZERPDP4/2006.
29
Joerges,
supra,
note
18
at
736.
30Joerges,supranote(2007).
31J.J.Rosa,Lerreureuropenne,Paris:Grasset1998;id.,LesecondXXesicle,Paris:Grasset2000.
32Schmid,supra,note27.
rofundidade
responsabilidade
or fora
enquanto
redito no momento
examinando
nesse sentido
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heterarchicallegalrelationshipsinaEuropeanmultipolarlegalsystem.33Inthissense,ageneralEuropeanadministrativelawmustfollowprinciplederivedfromthelawofcollisionsandmustdirect itself, cooperatively, to the porosity of national law for the realisation of law or the
interests of the supranational leveljust as the laws of other member states. Such a law of
collisionsno longerhearkensto theclassicbutnotpeerlessrulesofrelegation,but is instead
orientedtowards
the
permeability
of
other
legal
orders
and
also
towards
cooperation
with
thoselegalorders.34InthissensealsotheparadoxicalassumptionofAnneMarieSlaughterand
WilliamBurkeWhitethatthefutureofinternationallawisdomestic35isplausible.
With a view to the aporia of the collisions norms of a new type, reference to a possibleambivalence to the concept of a law of collisions is required: in the realm of the European
multilevel system, or rather, the European network of overlapping legal orders we areconcerned on the national level with starkly differentiated sets of rules, whichjostle withEuropean lawwith itsprinicplesofharmonizationandpriority.Thisnewtypeofcollisions law(whichrunscountertothinkinginahierarchicalway)oughttobeconstructeddifferentlytotheconflictsrulesthatoncegovernedtheagreementofvaried,butonlypartiallycrystallisedanddistinct internationalor transnational regimes (e.g.,WTO andenvironmental regimes) andwhichalsoaccording to the interpretationofFischerLescanoandTeubner36spontaneouslydevelopedthroughcivilsocialising.
Howalawofcollisionsistobeunderstoodthatisagreeduponrequiresfurtherinterpretationswhichwouldnecessitatefurtherinterdisciplinarystudy.Alawofcollisionsthatisgeareduptothistypeofregime,mustdistinguishitselffromthetypethatwouldbethinkableforEuropean
law.Howare incomplete trans and international regimesand their rules tobe incorporated
intothinkingaboutalawofcollisions?AreweconcernedhereperFischerLescanoandTeubner
with the lawatall?How can such regimesbedistinguished? 37Towhatextent canwe truly
33 In particular Joerges, supra, note 19; Th. Vesting, Die Staatsrechtslehre und die Vernderung ihres
Gegenstandes: Konsequenzen von Europisierung und Internationalisierung, 63 Verffentlichungen der
VereinigungderDeutschenStaatsrechtslehrer2004,p.41;K.H.Ladeur,K.H.,MethodologyandEuropeanLaw
CanMethodologyChangesoastoCopeWiththeMultiplicityofLaw?,in:M.VanHoecke(ed.),Epistemologyand
MethodologyofComparativeLaw,Oxford:Hart2004,p.92.
34Michaels,supra,note21.,p.232;P.Legrand,EuropeanLegalSystemsarenotConverging,45Internationaland
ComparativeLawQuarterly1996,p.45.;id.,AgainstaEuropeanCivilCode,60ModernLawReview1997,S.40;
K. P. Sommermann, Konvergenzen im Verwaltungsverfahrens und Verwaltungsprozessrecht der europischen
Staaten,55DieffentlicheVerwaltung2002,p.133;J.Schwarze,TheConvergenceoftheAdministrativeLawsof
theEUMemberStates,4EuropeanPublicLaw1998,p.191.
35This is the titleofanarticlebyA.M.Slaughter&W.BurkeWhitewhichappeared inA.Nollkaemper& J.E.
Nijman(eds.),NewPerspectivesontheDividebetweenNationalandInternationalLaw,Oxford:OUP2007,p.110.
36 A. FischerLescano & G. Teubner, G., Regimekollisionen.Zur Fragmentierung des globalen Rechts, Frankfurt:
Suhrkamp2006.
37Theexamplegiven for the territorial stateof the delimitationof theexpansive logicof science (GMOsR.C.
Christensen&A.FischerLescano,DasGanze imRecht,Berlin:Duncker&Humblot2008,p.317etseq.)through
public law isnot terriblyplausible, sincehere, there isasupposition in favourof the freeconfirmationofbasic
nitidamente que se acotovelam
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10 CLPERESEARCHPAPER SERIES [VOL.06NO.06
observe theautopoetic solemnizationof law in international law (for an affirmative takeonworldlawfromapoliticalscientificperspective.38
ItisworthnotingthatthejudgmentoftheGermanConstitutionalCourtontheLisbonTreaty39
mightwellseemantiquated in itsabstraction,where itseemstodefendaformofsubstantial
statehoodagainst
the
assault
of
the
association
of
states,
namely
the
EC.
Yet,
this
corresponds
exactly to the tendencyofsupranationalorgansof theEC (Commission,ECJ), tobuildup the
Europeansuperstatewithoutshowinganyunderstandingthattheeraofstatehood isperhaps
notbehindus,butthatitstraditionalterritorialjuridicalform,basedonhomogeneity,unityandhierarchy cannot thereby be reanimated; that the dimensions of territoriality are beingextended.40Marketshavealwaysbeenembedded,i.e.constitutedbypoliticsandsociety,as
KarlPolanyihasputit.41Theformsofembeddednesshavechangedovertimefromthesocietyof individuals via the society of organisations (and the insurance limiting the risks of thedynamism of economic change42) to the contemporary society of networks.43 Against thisbackground the most recent evolution of the economic system which is driven by a deeptransformation of the technological infrastructure of society demands a new institutional
rights (legal reservations for new technologies); also: R. Wahl & J. Masing, Schutz durch Eingriff, 45
Juristenzeitung1990,p.553).
38 M. Albert, M. & R. SchmalzBruns, Antinomien der Weltgesellschaft. Mehr Weltstaatlichkeit, weniger
Demokratie?,in:H.Brunkhorst(ed.),Demokratie inderWeltgesellschaft(SpecialVolumeof thereviewSoziale
Welt) 2009, p. 57, and distinctly A. FischerLescano & Ph. Liste, Vlkerrechtspolitik. Zur Trennung und
VerknpfungvonPolitikundRechtderWeltgesellschaft,12Zeitschriftfr InternationaleBeziehungen2005,p.
209.
39 FederalConstitutionalCourt (BVerfG),Decisionof30 June2009,published inGerman in:62NeueJuristische
Wochenschrift (NJW)2009,p.2267,andavailableonlineat:http://www.bverfg.de/entscheidungen/es20090630;
English translation available at: http://www.bverfg.de/entscheidungen/es20090630_2bve000208en.html.Cf. the
commentaries in: German Law Journal 2009, August 2009, pp. 12011308, available at:
http://www.germanlawjournal.com/index.php?pageID=2&vol=10&no=8, and the critique in C. Franzius,
EuropischesVerfassungsrechtsdenken,Tbingen:Mohr2010.
40 S.Sassen,Territory,Authority,Rights.FromMedievaltoGlobalAssemblages,Princeton:PUP2008.
41 K.Polanyi,TheGreatTransformation.ThePoliticalandEconomicOriginofourTime (1944),Boston:Beacon
Press, 2001; J. A. Caporaso/S. Tarrow, Polanyi in Brussels: Supranational Institutions and the Transnational
EmbeddingofMarkets,63I.O.2009,p.593,598;J.G.Ruggie,InternationalRegimes,Transactions,andChange:
EmbeddedLiberalisminthePostWarEconomicOrder,36I.O.1982,p.379.
42ForthetranformationbroughtaboutbytheNewDeal(notonly)intheUScf.D.Kennedy,WhattheNewDeal
Did,124PSQ2009,p.251,254.
43Cf.Vesting,supra,note33;at66;id.,Rechtstheorie,Munich:Beck2007,p.57etseq.;generallyK.H.Ladeur,Der
StaatgegendieGesellschaft,Tbingen:Mohr2006.
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frameworkwhichhastobenetworklikeaswellasthegovernancestructureinsociety.44 Beingawareof the embeddednessofmarkets alsomeans respecting thediversityof institutions,rules, norms which have been the product of the different processes of embedding in the
differentcountries,andthismeansthatdiversity isnotasituationwhichhastobeovercome
but has to be managed according to new metarules to be derived from the paradigm of
conflictof
norms.
The
EC
can
only
be
conceived
of
according
to
the
new
paradigm
of
a
heterarchicalnetworkotherwisethecrisisoftraditionalstatehoodwillonlyreproduceitselfin
anamplifiedform.
In this respect, thecontention that theECs socalleddemocracydeficit should (orcould)beeliminatedalsofallsshortofthemark.45 TheEClaboursratherunderanetworkdeficit,itlacks
a productive, collisionsjuridical concept of the processes of plurality, heterogeneity andheterarchy.That thecrisisof thestatehasnothing todowith itssize46,also reveals that thesmallerstatescanadjustthemselvesbettertoglobalisationthanthelargerstates.
III.NATIONALANDEUROPEANBASICRIGHTS
Problemsofcoordinationofplural legalordersrevealthemselves intheagreementsbetweeninternational,Europeanandnationalprotectionoffundamentalrights.Heretoo,itisclearthathierarchichalthinkingis,withviewtotheglobalisationofrights,nolongeradequate.47Collidingandoverlappingprotectionoffundamentalrightsistherulenottheexception.48
Finally, this is incoherent with the idea that the unity of law can no longer be the primary
realisingprincipleof construction in thenationalor the transnationalarena. 49 Law takesonsuchplural forms thatunitycanno longerbeparadigmatic.Thatdoesnotofcourseexcludethat thereareareas inwhichunitycanbeanordering tool (fordefinitemarketrelatedrules
which should facilitate a unified market). The European Human Rights Convention expresslyrecognises thisdifferencewith respect to infringementsofhuman rights,but inamistakenly
44 Cf. R. Mayntz, ber Governance. Institutionen und Prozesse politischer Regulierung, Frankfurt/New York:
Campus2009.
45K.H.Ladeur,We,thepeople...Relche?,15EuropeanLawJournal2008,p.147.
46Rosa,supra,note31.
47N.Krisch,ThePluralismofGlobalAdministrativeLaw,17EuropeanJournalofInternationalLaw2006,p.247;
P.SchiffBerman,P.,FromInternationalLawtoGlobalizationandLaw,43ColumbiaJournalofTransnationalLaw
2005,p.485.
48N.Krisch,TheOpenArchitectureofEuropeanHumanRightsLaw,71ModernLawReview2008,p.183.
49 A. FischerLescano & G. Teubner, Fragmentierung des Weltrechts statt etatistischer Rechtseinheit, in: M.
Albert&R.Stichweh(eds.),WeltstaatundWeltstaatlichkeit.BeobachtungenglobalerpolitischerStrukturbildung,
Wiesbaden:VSVerlag2007,p.37.
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statefixatedform,whenitgrantstheconventionstatesamarginofappreciation.50Thisisanerroneousplatformforconstructionsince,incentralquestions,theissueisnottherelationshipbetween state and societybut rather the socialgenerationof conventions that concern, for
instance,themeaningofrightstofreedomofinformationandtheirrelationshiptocompeting
rights(righttofreedomofconscience).51
Why in Europe, where the mediumistic public phenomena are to a large extent separated,
should there not also be diverse regimes for the agreement between the conflicting
fundamentalrights?Theapproachbasedonthestatalmarginofappreciationisaredherring.It concerns diverse social stocks of knowledge, rules and values, which originate in variousfundsofnormativedevelopment.52Theimpressionofunityinalegalorderismisleadinghere.
This isnotamatterof recognising the independenceof thenational legalordersper sebutrather of societal trajectories this is afortiori the case as the differences are not exactlyprimarily determined by national traditions but by various transnational legal circles, whichhistoricallyhavefacilitatedandstructuredlearningbetweensocieties.
In this way, with respect to the social/welfare state and also, for instance, with respect tofreedomof information,multipleEuropeanmodelshavedeveloped,whichcompetewithoneanother,reciprocallyobserveoneanother,butneednotbeunified.Thesame is true for thestatusofreligion:Whydoweneedcommonstandardsfortheroleofreligioninpublic,inpublicschoolsinparticular?Whetherornot,forexample,acrucifixmaybedisplayedinclassroomsinEuropeshouldnotbeacommonEuropean issue:Thishasbeen ignored in the Italiancrucifixcase.53Evenmoresyptomatic istheECTHRsdecisionontheacceptabilityofastatereligion
(Norway)54: Ajudgmentbrought about by a 9:8 vote on a cultural issue can only be wrong
irrespectiveof theoutcome:Therespectforpluralismanddiversity inEurope isatstakeand
notastandardforEurope.
Interestingly, the European Court of Human Rights (ECtHR) recognises differences in the
protection of fundamental rights where the concern is the diverse financial potential of the
50 L. Favoreu, Cours constitutionnelles nationales et Cour Europenne des droits de lHomme, in:Mlanges
CohenJonathan,Brussels:Bruylant2004,S.789
51 K. H. Ladeur, Verfassungsrechtliche Grundlagen, in: H. P. Gtting, et al (eds.), Handbuch des
Persnlichkeitsrechtsschutzes,Munich:Beck2008,22.
52 S. Oeter, Rechtsprechungskonkurrenz zwischen nationalen Verfassungsgerichten Europischem Gerichtshof
undEuropischem
Gerichtshof
fr
Menschenrechte,
in:
66
Verffentlichungen
der
Vereinigung
der
Deutschen
Staatsrechtslehrer2007,p.361.
53ECtHRNo.30814/06,3November2009.
54ECtHRNo.15472/02,26June2007.
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memberstates,and in reference to the fittingoutofprisons. 55Thisseems tobe thoroughlyplausibleasanisolatedcase,buttheaccentuationofthedifferencesinperformanceshowsthatplurality is seen more as an emergency solution under financial pressure, whilst mutatis
mutandis, the insight that plurality, rather than posing a problem for the protection of
fundamental rights, iskey toweaving together the tapestryof societies,values, regimesand
developmentaltrajectories.
56
European
oversight
of
fundamental
rights
could
then
be
a
proceduralmechanismforreflectionondiversestandardsandifnecessaryforthefacilitationof
interventionswith thepurposeofunstoppingunpleasantblockages,whichcould impede the
developmentoftherelevantsocietyorcoulddisseminatenegativeeffectstoothersocieties.57An example of the diverse standards for the determination of the relationship of mediafreedom and privacy is found in the Caroline judgment of the ECtHR58: Why should this
relationship not be differently calibrated in different societies? 59 On this point, the ECtHRdeclaredtheFrenchvariantincomparisontotheEnglish60andtheGermanmodelaviamedia,andgenerallybinding.61Thismightbediverselyevaluatedbydifferentsocietiesbutwhoistosaythatsuchdiverseevaluationisnotsalutary?Thismightbediverselyevaluatedbydifferentsocieties but who is to say that such diverse evaluation is not salutary? Divergence andheterogeneity are, on the one hand, elements of the new types of embeddedness of themarkets in postmodern times, on the other hand, the internal legal rules inherent in legalsystems, such as rules of interpretation, argumentation, preservation of consistency aredifficulttosustainintransnationalandmultilevellegalsystems62,ifonlyforlackofasufficientnumberofcaseswhichallowfordevelopingexperienceandmetarulesonmethodology.Thisisalsoareasonwhyhorizontaltransformationamongtribunalsofdifferentnationallegalsystemsshouldnotbeoverestimated.The legalsystemofthepostmodernnationstate ismuchmore
loosely coupled than it used to be in the past: it is much less integrated by laws but by a
complexmanagementofnetworksofcases:themedialawofacountryisgovernedbyawhole
hubofcaseswhichareinterrelatedinadifferentiatedway.Andthesupremetribunalshaveto
keepthis
network
of
cases
and
decisions
over
which
patterns,
rules
of
argumentation,
of
proof
and presumption in cases of factual uncertainty are processed. Judgements delivered by
55Seecritically,Favoreu,supra,note50;cf.onthecaselawTh.Schilling, InternationalerMenschenrechtsschutz,
Tbingen:Mohr2004,No.109etseq.
56M.Rosenfeld,RethinkingConstitutionalOrderinginanEraofLegalandIdeologicalPluralism,CardozoSchoolof
Law.JacobBurnsInstituteforAdvancedLegalStudies,No.242(2008).
57Thisisthecaseinfinancialmarketsregulationinparticular,cf.D.Zaring,InformalProcedure,HardandSoft,5
ChicagoJournalofInternationalLaw2005,p.545,595.
5857NJW2004,p.2647.
59Cf.alsoforadifferentiationoftheneedforlegalhomogeneityL.R.Helfer&A.M.Slaughter,TowardaTheory
ofEffectiveSupranationalAdjudication,97YaleLawReview1997,p.273.
60However,thisisnottrueforlibelinthenarrowsense,cf.TheEconomist2ndJan.2010,p.29.
61Cf.CourdAppeldeVersailles, 24.11.2005,No.05/05739AlbertIIofMonaco.
62 W. Peter, J. Q. de Kuyper & B. de Candolle, Arbitration and Renegotiation of International Investment
Agreements,TheHague/Boston:Kluwer1995,p.152etseq.
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coherencewheretheysodo.SomethingsimilarappliesalsotothedecisionsoftheECJontheindirect effect of market freedom in private law. 67 Here we are rather concerned with thecollisionofdiversesociolegalregimeswhere,inthisinstance,socialstateistobeunderstood
as societalstate68, thatcompriseawealthofsocialconventions,decisions,statenorms, in
which thecourt intervenes. 69Thismightwelloccur in thedevelopmentofaEuropean legal
space,but
it
is
necessary
70
to
see
the
complexity
of
the
problem
and
not
as
aquestion
of
the
implementationofEuropeanbasiclawsandnormsespeciallywhencomparedtotheprivate
lawthathasasitstouchstoneselforganisation.
IV. GLOBALADMINISTRATIVELAW
Beyond theclassicnation stateandon thenearsideof the formsofclassic international law(and the particular administrative law of international organisations), transnational, publicadministrative, global law has developed71, which can no longer be described in the classicsenseaspublic lawbut stands inacorresponding relationship to transnationalprivate law
(lexmercatoria
of
anew
sort
and
other
forms
of
neo
spontaneous
law).
72
It
is
hardly
surprisingthatalsothislaw,similartopostmodernnationallawhasdemonstratedclearformsofpluralityandheterogeneityoflawmakingprocesses.73
Transnationaladministrative lawhasnoeasily identifiablelegalsources; its institutionsandproceduresareunderdeveloped;therelationshipbetweenpublicandprivate isoftenopaque.
67ECJC438/05,Rep.2007,I1077 Viking;C341/05,Rep..2007,I11767Laval.
68H.K.J.Ridder,ZurverfassungsrechtlichenStellungderGewerkschaftenimSozialstaatnachdemGrundgesetzfr
die Bundesrepublik Deutschland, Stuttgart: Fischer 1960; F. Hase, Helmut Ridders berlegungen zum
Sozialstaatsgebot,32KritischeJustiz1999,p.295.
69SimilarcanbesaidoftheMangoldcase,ECJ,NJW2005,p.3695.
70Joerges&Rdl,supra,note19.
71 B. Kingsbury, N. Krisch & R. B. Stewart, The Emergence of Global Administrative Law, 68 Law and
ContemporaryProblems2005p.15;C.Harlow,GlobalAdministrativeLaw:TheQuestforPrinciplesandValues,
17EJIL2006,p.187;J.B.Auby,J.B.,Laglobalisation.LedroitetlEtat,Paris:Montchrestien2003.
72G.Teubner,Privatrechtsregimes.NeospontanesRechtunddualeSozialverfassungen inderWeltgesellschaft,
FestschriftSpiros
Simitis,
Baden
Baden:
NOMOS
2000,
p.
437;
id.,
Breaking
Frames:
Economic
Globalisation
and
theEmergenceoflexmercatoria,5EuropeanJournalofSocialTheory 2002,p.199.
73P.Zumbansen,PiercingtheLegalVeil:CommercialArbitrationandTransnationalLaw,8EuropeanLawJournal
2002,p.400;C.P.Calliess&P.Zumbansen,RoughConsensusandRunningCode:ATheoryofTransnationalPrivate
Law (Oxford: Hart Publishing, 2010), ch. 1; G. P. Calliess & M. Renner, From Soft Law to Hard Code: The
juridification of Global Governance, 22 Ratio Iuris 2009, p. 260; A. FischerLescano, 63 Transnationales
Verwaltungsrecht,Juristenzeitung2008,p.373;cf.alsoC.Mllers/A.Vokuhle/C.Walter (eds.), Internationales
Verwaltungsrecht,Tbingen:Mohr2007.
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Whether or not it is law at all is a contentious issue. 74 The line of demarcation betweenpublicandprivate lawbeginstoblur.Conversely,thequestionisposed,whetherandtowhatextent and in what forms secondary rules (H. L. A. Hart) are necessary so law can be
distinguishedfromothernorms.Thepropositionthatwemustbeconcernedwithformalrules
about the making and altering of (primary) norms seems, in the context of a world law
markedby
plurality
to
lose
its
urgency.
It
is
apparent
that
also
private
transnational
environmentalstandardscouldprotectpublicinterests.75Inretrospectonehastobearinmind
thattheevolutionofgeneraladministrativelawwasbothincountrieslikeFranceandGermany
primarilyaprocessdrivenbytheadminstration itselfwhichhasdevelopedandexperimentedwithnew formsofdecisionmakingdrawingon theknowledgeofcivilsociety (insteadof thestate centred polizeywissenschaft).76 It is only in 1976 that basic rules of general
administrative lawhavebeen (partly)codified inGermany.Thenewnetworkbased formsoftheemergingglobaladministrative lawwill inthe longrunalsoallowfornewformsofpubliccontrol and accountability on the basis of a new logic of cooperative law making at thetransnational level but the development cannot follow a topdown model of a centralisedlegimationbyademocraticlegislator.Amoretransparentmodeofadministrativetransbordernetworkingmayevencontributetoanewandimprovedversionofaccountability,whichleavesaside the illusions of attributing a privileged position for the observation of society to thelegislator. Democratic legitimation77 alone may not be a sufficient basis for a new role oflegislation. Theproblemsoftheadequatedescriptionforthenewadministrative lawbeyondthenationstatecanalreadybejudgedby the terminologicaldifferences in theprocessof itsconceptualisation.78
74 B. Kingsbury, B., The Concept of Law in Global Administrative Law, International Law and Justice Working
Papers,GlobalAdministrativeLaw Series,NewYorkUniversity,2009/1;D.Dyzenhaus, TheConceptof (Global)
AdministrativeLaw,IILJWorkingPaper2008/7,www.iilj.org
75 G. Winter (ed.),MultilevelGovernance ofGlobal EnvironmentalChange, Cambridge: CUP 2006; M. Herberg,
GlobalisierungundprivateSelbstregulierung:UmweltschutzinmultinationalenUnternehmen,Frankfurt/NewYork:
Campus2007;O.Dilling,M.Herberg&G.Winter,ResponsibleBusiness.SelfGovernanceandLawinTransnational
EconomicTransactions,Oxford:Hart2008.
76 M. Bohlender, Metamorphosen des Gemeinwohls von der Herrschaft guter polizey zur Regierung durch
FreiheitundEigentum,in:GemeinwohlundGemeinsinnHistorischeSemantikenpolitischerLeitbegriffe,ed.byH.
Mnkler/H.Bluhm,Berlin:AkademieVerlag2001,p.247;fortheUScf.T.R.Powell,AdministrativeExerciseofthe
PolicePower,24Harvard LawReview1911,p.268; forFranceM.Senellart, Lesartsdegouverner.Du rgime
mdivalauconceptdegouvernement,Paris:Seuil1995.
77
D.
Dyzenhaus,
Accountability
and
the
Concept
of
(Global)
Administrative
law,
in:
Acta
Juridica:
Global
AdministrativeLaw,ed.byHughColber,Capetown:FacultyofLaw2009,p.3.
78 For a conceptual clarification cf. M.S. Kuo, Between Fragmentation and Unity: The Uneasy Relationship
betweenGlobalAdministrativeLawandConstitutionalism,10SanDiegoLawInternationalLawJournal2009,p.
437.
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Theconceptualaccentuationof internationalasopposedtoglobaladministrative law isdownto close guidance fromnationalpublic lawand its stateorientation, fromwhichperspectivedefinite materials of administrative law be they national or international can be
distinguished,whilstthequestionofglobalpubliclawneglectsthisstartingpremiseandasa
resultpaysmoreattentiontotheascentofprivateactorsintheglobalarena.Thestateisthusly
inthe
era
of
globalisation
fragmented
from
the
offset
into
amultiplicity
of
offices
and
agencies who maintain their orientation towards transnational networks79, which are
generatedtogetherwithotherpublicandprivateactorsinparticulararenas.
Globaladministrativelawcantherefore,againstthisbackdrop,beassociatedwiththeconceptof the disaggregated state80, which does not disintegrate but transforms itself through
regulatory tasks into related networks81, inwhich the issue is lessselectivedecisionmakingthan the achievement of relatively broadly conceived goals. 82 Surely, this constitutes asubstantialfeatureof internationaladministrative law,nevertheless, itwillbecomeapparentthatthecontextofthedisaggregatedstatecanberetainedonanabstractlevelandmustbecalled forth, only because state administration is still the subject of definite organisationalprinciplesandlegitimatingrequirements,whicharetiedfastlytothecentralityofthestate.Thisis,aboveall,thecasewhenitcomestolegitimationandaccountabilityforstateconduct.83Theglobalnetworkscannotavoidthequestionsraisedbythisdynamic.Theproblemisrecognisedin the debate about global administrative law and is discussed in the context ofaccountability of globalised public and private conduct. 84 International adminstrative lawemphasizesratherwhat is leftover fromtheunityofthestateand theprinciplesthatderivetherefrom.85
79Ontheresponsibilityoftransnationalgovernancenetworks,seeA.M.Slaughter,GlobalGovernmentNetworks,
GlobalInformation
Agencies,
and
Disaggregated
Democracy,
Harvard
Law
School,
Public
Law
WP
No.
18/2004;
for
thepermeabilityofthesovereigntycf.ead.&W.BurkeWhite, supra,note 35,p.117;ead./Zaring, supra,note
64,p.211.
80A.M.Slaughter,SovereigntyandPowerinaNetworkedWorld,40StanfordJournalofInternationalLaw2004,
p.283;generallyead.,ANewWorldOrder,Princeton:PUP2004;D.F.Kettl,TheTransformationofGovernance.
PublicAdministrationforTwentyFirstCenturyAmerica,Baltimore:JohnsHopkinsUP2002.
81 Ladeur&Mllers, supra,note 63;generally I.Augsberg/L.Viellechner/T. Gostomzyk,Denken inNetzwerken,
Tbingen:Mohr2009.
82On the informationalaspectofadministrativeconduct,seeTh.Vesting,Nachbarwissenschaftlich informierte
undreflektierteVerwaltungsrechtswissenschaftVerkehrsregelnund Verkehrsstrme, in:W.HoffmannRiem
&E.
Schmidt
Amann
(eds.),
Methoden
der
Verwaltungsrechtswissenschaft,
Baden
Baden:
NOMOS
2004,
p.
253.
83D.Held,TheTransformationofthePoliticalCommunity.RethinkingDemocracyintheContextofGlobalization,
in: I.Shapiro&HackerCordn (eds.),DemocracysEdges,Cambridge:CUP1999,p.84; J.Cohen&C.F. Sabel,
GlobalDemocracy?,37NewYorkUniversityJournalofInternationalLawandPolitics2004p.763.
84 K. Raustiala & A. M. Slaughter, International Law, International Relations and Compliance, Princeton Law &
PublicAffairsPaper20022.
85Cf.thecontributionsinMllers/Vokuhle/Walter(eds.),supra,note72.
enquanto
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Wemightaskwhatvantagepointcanbewonongeneral internationaladministrative law inthespecificfieldsofinternationaladministrativelaw(conceivedofasreferenceareas).Here,we face a methodological problem, which has not yet been sufficiently resolved within the
European Community. In Europeanised administrative law, rigid and simplified distinction is
drawn between three parts86: The law of the European administration, that of the national
administrationand
the
general
national
administrative
law
that
has
as
its
purpose
the
realisationoftheparticularEuropeanadministrativelaw.Equally,ontheinternationalplane,a
functional equivalent to this problem obtains: global administrative law is the law of self
administration,standingrelativelyindependentlytosupervisingregulatorynetworks,whereasinternationaladministrativelawdoesnotnecessarilyneglectthisrelation,butfocusesonthecooperative link with the ordering ideas of the national, and thereby national general
administrative law in so far as this is concerned with the participation of the state in thetransnationalinteractionsandnetworks.87WTOlawisestablishedasaselfsufficientsubjectofstudy88and,asenabledbyinternationaldelegation,increasinglytakesonthecharacteristicsofa selfadministration, which distinguishes itself from legal materials, from which theinstitutionaldifferentiationof international cooperationhaswonno comparable institutionalelaboration.89
This fragmentationof global administrative law and the consequent variablepermeabilityofthesurvivingterritorialcomponentsofthenew,plural legalorderfindsproceduralexpressioninthenecessity,throughjudicialdecisionscontrarytotheformerprincipleoflaw,parinparemnon habet iurisdictionem which proceeds from the sovereignty of states of ensuring forreasonsderivingfromtheruleoflaw,thatadministrativecooperationofstatescannotregress
into isolatedproceduralspheresofstate regulators.Thishas theconsequence thatacitizen,
affectedbyameasureinaprocedureintheadministrativeassociation(visagrantstothirdstate
citizens,whowishtoremainintheECandtravelbetweenmemberstates),forexampleagainst
anexternally
addressed
administrative
decision
of
one
state
as
well
as
against
internal
approval
orwarningsandsoforthofanotherstate,wouldhavetotakeintoaccountjudicialprotectionof
86Kadelbach,supra,note26.
87 Cf. for a vision of globalisation as a form of extension of state trade, D. W. Drezner,All Politics is Global.
ExplainingInternationalRegulatoryRegimes,Princeton:PUP2007:inparticular,p.32etseq.
88
Cf
on
the
development
of
new
context
and
efficacy
related
interpretive
rules
in
WTO
law,
I.Van
Damme,
Treaty
InterpretationbytheWTOAppellateBody,Oxford:OUP2009,especially,p.213etseq.,287etseq..
89B.Zangl,DieInternationalisierungderRechtsstaatlichkeit.StreitbeilegunginGattundWTO,Frankfurt/NewYork:
Campus 2007; id. (ed.),AufdemWeg zu internationalerRechtsherrschaft? Streitbeilegung zwischenPolitikund
Recht,Frankfurt/NewYork:Campus2009.
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theirrights(seethejustifiablydistinctdecisionbytheFrenchConseildEtatof9June1999,No.198344,MmeHamssaoui.90
V.INTERNATIONALLAWINAGLOBALLEGALORDER
Inthe
international
law
context,
Koskenniemi91
has
complained
of
the
dominance
of
expert
knowledgeinfragmentedregimes,whichcouldnotbeintegratedbyahierarchicalsystemoflaw, as being a variant of legal decay. Indeed, we can observe a parallel between internal
domesticand internationalexternaldisbandmentof traditional statehoodand itsdissolution
throughnonterritorial regimes, neverthelessmerely to criticize thepredominanceofexpert
knowledgeisnottogofarenough,assuchacriticismlosessightofthechangeinthecognitiveinfrastructure of law in the transformation from society of individuals to society oforganisations to society of networks. It cannot be ruled out, on the domestic or on theinternational level, that the plurality of regimes cannot, through new procedural rules ofreflectionandevaluationofdevelopedexpertknowledge92,generateafunctionalequivalentof
theclassic
forms
of
legal
integration
through
internal
system
formation
of
the
second
order
(throughstabilitymonitoringmetanorms)intheformofmetarulesofanewlawofcollisions.
The plea in favour of a new formalism of inclusion of the excluded93 would have thecorresponding need for support, mediated by observation of the fundamental selftransformationofnationalandinternationallaw,inparticularthroughtheriseoforganisationsasactorsand thedecentringof law in thecontextof the societalknowledge and rulebase.
Therefore it seems hard to accept that pluralisation of regimes in recourse to a new
formalism can be compensated94, rather taking on the character of a quasireligious belief(faith,inclusionoftheexcluded),whichquestionsthedefactorulesofcommonpractice.
Internationallawfindsitselfconfrontedherewithanewformofdiscontemporaneity,whichisdetermined,aboveall, in that theperviousnessofnationaland international lawexternalisestheeffectsof the failureof internal tessellationof apluralityof rulesand rule systems intodeveloping countries and erects almost insurmountable barriers to the formulation of new
collisionslawsforvariouslegalorders.95Inanyeventtheseproblemscannotbeovercomewith
90Seethejustifiablydistinct,ConseildEtat,9June1999,No.198344,MmeHamssaoui;cf.alsofortherelationship
ofEuropeanCourtstoUNdecisionsBehramiandBehramivFrance,ECHR(GrandChamber),applicationnumber
71412/01,(2007)45EHRRSE10;approvinglyKingsbury,supranote74,p.25etseq..
91 M. Koskenniemi, The Fate of Public International Law, 70 Modern Law Review 2007, p. 1; cf. also id.,
International
Law
Between
Fragmentation
and
Constitutionalism,
Canberra,
27.11.2006;
and
generally
id.,
From
ApologytoUtopia.TheStructureofInternationalLegalArgument,Cambridge:CUP2006.
92B.Wollenschlger,WissensgenerierungimVerfahren,Tbingen:Mohr2009.
93Koskenniemi,supra,note90.
94Koskenniemi,supra,note90; J.Beckett,ARebelWithoutaCause?MarttiKoskenniemiandtheCriticalLegal
Project,7GermanLawJournal2006,p.1045.
95Joerges,supra,note19;id./Rdl,supra,note19.
dissoluo
vista
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redistributive demands or general demands for inclusion, which, in the light of increasingpluralisationofgovernanceprocesses couldbeappliedneither to individualsnor states.Theshortcomingsoftheinternalgovernancestructureofthedevelopingcountriestranslatesitself,
needs must, to their participation in transnational legal regimes; abstract appeals for the
chargingofaninternationalformalismwithsubstantialequalisingrightstoparticipationandthe
reflectionof
western
self
centredness
96
can
do
nothing
to
change
this.
The
more
precise
observationofpartial legalregimeswouldhowever invite the temptation towardsevermore
specific collisions norms, which, could partially compensate the disproportionate support
affordedtothelegalpositionoftransnationalundertakingsindevelopingcountries,throughaweakstate,neglectful inprotecting the interestsof itscitizens, in favourof the transnationalexpansion of the protection afforded by national fundamental rights to the benefit of
(indigenous)thirdparties.97
Above all, the fundamental right to human dignity (in Art. 1 of Germanys basic law and infunctionallyequivalentprovisionsinotherwesterncountries)alsoobligesprivateundertakings,toavoidviolatingtheelementaryrightsofotherprivateparties(employees,neighboursetc.).This duty is primarily implemented by means of private law; adjacent to this stands theprotection of rights from state interference itself as well as the legal triangular relation ofconcernstate thirdparty,whichcomplimentstheprotectivedutiesofthestatetowardsitscitizenswithpositiveobligations,inrespectofnewrisksorthosewhichcannotbesubsumedintheprivatelawemanatingfromprivateparties.98Aheterarchical,pluralunderstandingoflawcannottransferenmassethiscoordinationofvariouslegalnorms,whichpropupaproductivenetwork of relationships, e.g., between private companies, without reference to altered
functionalconditions,withtheresultthatprivateforeignconcernsmustfulfiltheirprivatelaw
duties (for instance with respect to inconsistent provisions of foreign law and journeying
domesticlaw)butcouldignoreunconstitutionalactsoromissionsofthestate.99
Conversely, this cannot be permitted to lead to a state of affairs whereby the functional
separationbetween stateandmarkets is ignored.More importantly, theaforesaid triangularrelationshipmust be so calibrated that private undertakings are encumbered by dintof thefundamental right tohumandignitywitha compensatoryobligation for violationsofhumandignitythatoccurwithintheprivatepublicnetworksinwhichtheundertakingisactivewiththe
goal of unburdening, so far as is possible, the state. This would be an example that the
96Koskenniemi,supra,note90(2006).
97K.H.Ladeur&L.Viellechner,DietransnationaleExpansionstaatlicherGrundrechte,46ArchivdesVlkerrechts
2008,p.
42
98G.Teubner,DieanonymeMatrix.ZuMenschenrechtsverletzungendurchprivatetransnationaleAkteure,45
DerStaat2006,p.161
99 Seeforexmplethecase:Shell/KenSaroWiwainNigeria,www.FAZ.net,June9,2009.
supracitado
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independent rationality of the emerging heterarchical, plural legal order can vouchsafe newlawsof collisions,basedonduties of cooperation beyond the classic forms grounded in theseparationofnationallegalorders.100Theseobligationstocooperatearenottobethoughtof
as restricted to the lawmaking institutions in the classic sense (state, international
organisations); rather they extend to subjectless, spontaneous or privately aggregated
transnationalnorms.
101
Such
constructions
sit
more
comfortably
with
the
self
standing
rationalityof lawbetter than theabstractnew formalismwhichKoskenniemipostulates ina
thoroughlyambivalentwiseaccordingtoaquasireligiousprecept.
Other conceptions of the postmodern international law, which could, again, lead to aproductivecooperationbetween legalstudiesandsocialsciencesrelatetotheobservationof
different ways of reading constitutionalising processes. 102 One way of interpreting themconsiders the increasing density of international legal phenomena as the expression of anascent world statehood which attributes to a world society a new organisational legalformbeyondthatoftheinternationallawderivingfromthewillofthestate.103Fromanotherperspective, a new logic of the community of citizens has developed, which has utilises aprocessofjuridification forcingstatesso theformulationgoes,toapplythestatecentredpublicinterestfromtheoffsettoanopencommunity,understoodasanemergentcitizenryoftheworld.
Nuancing itslightlydifferently,Ch.Chwasczca104 liberatesstatehood from itsbondage inprelegalsocietiesanddeliversittoanewformofinstitutionalisationofdemocraticwillformationwhichpermitsofvarious references.Even theconceptofa globalconstitution,withhuman
rights at its fundament, searches for its reference point not in a (developing) world
sovereignty but in a row of functionspecific regimes, which harmonise and coordinate
throughcollisionsrules.105
100Ohler,supra,note21.
101G.Teubner&P.Korth,ZweiArtendesRechtspluralismus:Normkollisionen inderdoppeltenFragmentierung
derWeltgesellschaft,in:M.Ktter&G.F.Schuppert,(eds.),NormativePluralittordnen,inprint(2009).English
version:http://ssrn.com/abstract=1416041
102OnthattermseeR.Wahl,HerausforderungenundAntworten:DasffentlicheRechtderletztenfnfJahrzehnte,
Berlin/NewYork:DeGruyter2006,p.97etseq.
103 B. Fabender, The United Nations Charter as Constitution of the International Community, 35 Columbia
JournalofTransnational Law1998,p.529; J.A.Frowein, KonstitutionalisierungdesVlkerrechts.Berichtder
Deutschen Gesellschaft frVlkerrecht,2000, p. 427; C. Mllers,Der vermisste Leviathan. Staatstheorie in der
Bundesrepublik,Frankfurt:
Suhrkamp
2008,
p.
92;
skeptically
as
to
social
scientific
observation
S.
Leibfried
&
M.
Zrn, Von der nationalen zur postnationalen Konstellation, in: dies. (eds.), Transformationen des Staates?,
Frankfurt:Suhrkamp2006,p.19,32etseq.
104C.Chwasczca,MoralResponsibilityandGlobalJustice,BadenBaden:Nomos2007.
105 A. FischerLescano, Globalverfassung. Die Geltungsbegrndung der Menschenrechte, Weilerswist: Velbrck
2005; cf. also id./Teubner, supra, note 5 (2006); G. Teubner, Globale Zivilverfassungen: Alternativen zur
staatszentrierten Verfassungstheorie, 2003 ZaR 63 2003, p. 1 English version:
http://ssrn.com/abstract=876941skeptically,duetoalackofsharedvalues,Koskenniemi,supranote90(2006);for
outorgar
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22 CLPERESEARCHPAPER SERIES [VOL.06NO.06
Theconceptofconstitutionalisationtooneedsadisciplinaryapproachthroughlegalstudiesandsocial sciences. Many forms of the concept proceed from a simple interpretation of thehierarchyof internationalnorms.Constitutionalisation inthesensegivento itby legalstudies
cannotbereducedtothehierarchyoflaws(andthetransferofthesestatebasedprinciplesto
internationalandtransnational law).Even ifarankingofrulescouldbesubordinated, itdoes
notfollow
therefrom
that
acorresponding
constitutionalising
process
arises,
which
(at
least
in
Germany)canbeobservedonthestate level.Constitutionalisationneednotalwaysmeanthe
same in the domestic legal sphere. Constitutionalisation refers always to an institutional
construct,whichleadstoamoreorlessfarreachingdensificationoflegalmaterial106,andbythismeans,correspondingtotheacceptanceofjuridificationalprocesses,withdrawingpolitical(decisionmaking)processesfrompoliticalcontroversythroughaconstitutionalcourtandalaw
centredpublic.107
Acollisionslegal interpretationof the relationshipbetween legalmaterials inaheterarchicaltrans and international network can and must, through different institutions andinterrelations, reflect the determinate selflimitation of the constitutionalisation process.Besides,juridification is not necessarily synonymous with constitutionalisation. 108 Anothervariant of the fortification of the internal connection within a fragmented network ofinternationalandtransnationalnormsisthesettlingofguidelinesforadministrativeprocedureon the basis of international covenants. This leads to the challenge of an internationaladministrative law109, which, given its orientation towards classic statehood, can bedistinguishedfromthemorepronouncedlydetachedvariantofglobaladministrativelaw.Nextto this, there is a further variant of hybridisation in the linkage of material bonds with
(difficult to implement) obligations of financial and technical assistance. 110 Here too, the
groundisfertilefortheinternalandexternalobservationoflawconstitutingprocessesinlegal
studiesandsocialsciences.
a critique see also C. Mllers, Transnational Governance Without a Public Law?, in: C. Joerges/I. J. Sand/G.
Teubner(eds.),TransnationalGovernanceandConstitutionalism,Oxford:Hart2004,p.329.
106 C. Mllers, C., Verfassunggebende Gewalt Verfassung Konstitutionalisierung, in A. v. Bogdandy (ed.),
EuropischesVerfassungsrecht:TheoretischeunddogmatischeGrundzge,Berlin/NewYork:Springer2003,p.1,
48.
107Cf.on thedependenceofconstitutional interpretation from the selfunderstandingandempathyofpolitical
institutions,A.Vermeule,JudgingunderUncertainty.An InstitutionalTheoryof Interpretation,Cambridge (MA):
HUP2006;id.,LawandtheLimitsofReason,Oxford:OUP2008.
108Mllers,supra,note102,p.92etseq.
109Mllers,
ibid.,
p.
94.
110V.Heyvaert,HybridNorms in InternationalLaw,LondonSchoolofEconomics,Law,SocietyandEconomyWP
6/2009.
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VI.OUTLOOK
The new phenomena of globalisation lead not the the generation of a further legal planebeyondthestatebuttheyaretheexpressionofafundamentalchangeinlaw,whichgraspsall
itsforms
and
sets
out
adifferential
logic
of
hybridisation,
which
permits
of
the
transcending
of
competences and perceived boundaries (public/private), the linkage of irreconcilablerationalitiesandthecoordinationofhithertoforeseparatedfunctions.Thisdoesnotentailthe
dissolutionofa legalorderbasedonunityandhierarchybut theemergenceofanother that
operateswithcollisions laws insettlingplural law,onewhichalters theroleof thestateand
intrastatallawinthatitmarriesapermeabilityfortheobservationofextrastatalinterestswiththeexpansionofitsexternalvalidityandefficacy.