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Accelerating Cities, Constitutional Brakes? Local Authorities Between Global Challenges and Domestic Law

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European Yearbook of Constitutional Law 2020

Part of the book series: European Yearbook of Constitutional Law ((EYCL,volume 2))

Abstract

Increasingly, local authorities around the world invoke international law to tackle global challenges autonomously while distancing themselves from national laws and policies, sometimes stimulated by international authorities. This chapter addresses the relevance of national constitutional arrangements for the way in which the resulting conflicts are, or are not, resolved. More specifically, how do domestic courts respond to ‘accelerating cities’ invoking international law as they oppose policies of the national government? Discussing cases from Germany, Turkey, France, the Netherlands and Spain, we offer an initial exploration of how such cases have the potential to challenge the constitutional order in federal and unitary states alike. At the same time, ‘accelerating cities’ are confronted with ‘constitutional brakes’—barriers in national constitutional and administrative rules. Our analysis suggests that national courts may permit harmless symbolic acts, but step down, or even create a ‘backlash’ in the case of more consequential actions. Given the potential in local engagement with international law, and the rise of the phenomenon, it is urgent to set up systematic and detailed investigations and comparisons of the dynamics of local government law in different countries and how they are shaped by an invocation of international law in general, and human rights law in particular.

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Notes

  1. 1.

    See, amongst others, Acuto 2013, Barber 2013, and Blank 2006.

  2. 2.

    See https://www1.nyc.gov/assets/sustainability/downloads/pdf/publications/1point5-AligningNYCwithParisAgrmt-02282018_web.pdf, last accessed 30 August 2020.

  3. 3.

    On the ‘invisibility’ of local governments internationally, see Nicola 2012 and Oomen and Baumgärtel 2018a.

  4. 4.

    The term is derived from Frug and Barron 2006.

  5. 5.

    See, for instance, on local action in the field of human rights, Oomen et al. 2016; for local action in the field of migration, Bendel et al. 2019; Glorius and Doomernik 2017; Zapata-Barrero et al. 2017; and for climate change Aust 2015; Kern and Bulkeley 2009.

  6. 6.

    It is important to keep in mind that cities are not necessarily more proactive or effective in tackling global challenges, as is discussed critically in Aust 2015.

  7. 7.

    https://www.un.org/development/desa/en/news/population/2018-revision-of-world-urbanization-prospects.html, accessed 25 October 2019.

  8. 8.

    See for a wider discussion Hudson 2010; Sassen 2006.

  9. 9.

    Barber 2013.

  10. 10.

    See, for instance, Marcenko’s 2019 discussion of local support for introducing the Right to the City in the UN Habitat III.

  11. 11.

    See Sabchev 2018, available from https://citiesofrefuge.eu/publications/comprehensive-relational-model-study-local-responses-arrival-and-settlement-forced. There is more and more literature on the relevance of such city networks, such as Caponio 2019; Davidson et al. 2019; and Oomen 2020.

  12. 12.

    On the role of civil society, for instance, Triviño-Salazar 2018.

  13. 13.

    See for instance Ambrosini and Van der Leun 2015 and Filomeno 2016, p. 6.

  14. 14.

    See, for instance, Marchetti 2020 on the narratives employed by Italian cities concerning migration.

  15. 15.

    See, however, Hirschl 2020 for a rare but critical discussion of these aspects.

  16. 16.

    In October 2018, 188 jurisdictions in 18 countries had declared such an emergency: https://iclei.org/en/media/iclei-members-are-leading-the-climate-emergency-movement, last accessed 28 October 2019.

  17. 17.

    Oomen 2020.

  18. 18.

    See Chueca 2016.

  19. 19.

    The term decoupling is derived from the public policy literature, most notably Scholten 2015.

  20. 20.

    The term multilevel government is derived from EU Studies, most notably Hooghe et al. 2001. It results in a situation of constitutional pluralism (Avbelj and Komárek 2012; Maduro 2009) of which the current topic of discussion is a manifestation.

  21. 21.

    By means of UN Human Rights Council Resolution 24/2. Local government and human rights, A/HRC/RES/24/2, of 8 October 2013, which in turn built upon work by its advisory committee, with the mandate repeated by means of UNHRC Resolution 27/4 of 25 September 2014.

  22. 22.

    UN Human Rights Council Resolution 33/8. Local government and human rights, A/HRC/RES/33/8, of 29 September 2016.

  23. 23.

    UN Human Rights Council, Role of local government in the promotion and protection of human rights—Final report of the Human Rights Council Advisory Committee, A/HRC/30/49, of 7 August 2015.

  24. 24.

    Local government and human rights Report of the United Nations High Commissioner for Human Rights, A/HRC/42/22, of 2 July 2019, as discussed in the Human Rights Council in September 2019.

  25. 25.

    Ibid., para 49.

  26. 26.

    Ibid., para 51.

  27. 27.

    Ibid., paras 61 and 65.

  28. 28.

    See, for instance, the recommendations of the Committee on Economic, Social and Cultural Rights to Sweden in E/C.12/SWE/CO/6, para 8. Other treaty monitoring bodies have emphasized the need for participation of ethnic minorities, persons of African descent and women in local government; for an overview, see A/HRC/42/22 para 43.

  29. 29.

    See, for example the Report of the Special Rapporteur on adequate housing as a component of the right to an adequate standard of living, and on the right to non-discrimination in this context, Leilani Farha, A/HRC/28/62, 22 December 2014.

  30. 30.

    (Habitat III, 2017), United Nations, Habitat III, New Urban Agenda, 2017.

  31. 31.

    Ibid., para 90.

  32. 32.

    United Nations, Paris Agreement, FCCC/CP/2015/L.9, as adopted 15 December 2015.

  33. 33.

    UNGA, Global Compact for Safe, Orderly and Regular Migration, A/RES/73/195, 19 December 2018, para 44.

  34. 34.

    See for an overview of the documentation, Congress of Local and Regional Authorities 2018.

  35. 35.

    Council of Europe Congress of Local and Regional Authorities, Recommendation 280 (2010), as revised 2011, and Resolution 296 (2010) revised, at 5.

  36. 36.

    Molin 2011.

  37. 37.

    Council of Europe 2019.

  38. 38.

    Ibid., p. 17.

  39. 39.

    EU Fundamental Rights Agency 2012.

  40. 40.

    See, for instance, Levarlet et al. 2019.

  41. 41.

    Council of Europe, European Charter of Local Self-Government, ETS no. 122, 1985, as ratified by all Council of Europe member states.

  42. 42.

    See Piccoli 2016 and Piccoli 2018.

  43. 43.

    For a detailed recent analysis, see Aust 2017.

  44. 44.

    Grundgesetz, Articles 28(2) and 31(1–3).

  45. 45.

    Aust 2017, pp. 115–118.

  46. 46.

    Aust 2017, p. 115.

  47. 47.

    BVerwGE 87, 237, 238.

  48. 48.

    Aust 2017, p. 240.

  49. 49.

    Aust 2017, pp. 74–75.

  50. 50.

    Aust 2017, p. 117.

  51. 51.

    BVerwGE 87, 228, 231.

  52. 52.

    Aust 2017, p. 118.

  53. 53.

    BVerfGE 8, 122.

  54. 54.

    Aust 2017, p. 127.

  55. 55.

    Aust 2017, pp. 133–134.

  56. 56.

    Folz 2011, p. 244.

  57. 57.

    In this context, the term ‘glocal’, as a combination of global and local, seeks to signify the way in which citizenship in a given locality and the rights that it has to offer become shaped in the permanent interplay between international, national and local authorities. It highlights that developments at the local level are constitutive of what happens globally, and the relationship between the global and the local is dialectical rather than unidirectional (Bauman 1998; Oomen 2018; Papisca 2011; Randeria 2003).

  58. 58.

    Peralta-Gallego et al. 2018.

  59. 59.

    CESCR 2017. Peralta-Gallego et al. 2018 offers a full overview of the mitigating legislation passed, in the end, in 15 out of Spain’s 17 autonomous regions.

  60. 60.

    On Barcelona as a human rights city, see Grigolo 2011. More specifically on Barcelona’s policies towards migrants: Agustín and Jørgensen 2019; Gebhardt 2016.

  61. 61.

    Constitutional Court (Spain), 134/17, judgement of 16 November 2017, published in Boletin Official d’Estado, 20 December 2017, 15179.

  62. 62.

    Constitutional Court (Spain), 145/17, judgement of 14 December 2017.

  63. 63.

    UNCESCR, Concluding Observations on Spain, E/C.12/ESP/CO/6, of 25 April, para 11 in referring to Articles 2(1) and 28 of the ICESCR.

  64. 64.

    Ibid., at 12, in also referring to a previous recommendation (E/C.12/ESP/CO/5, para 9).

  65. 65.

    Gultekin 2008.

  66. 66.

    Gultekin 2008.

  67. 67.

    Gultekin 2008.

  68. 68.

    Cumhuriyet 2010.

  69. 69.

    Cangi 2011, p. 66. The Domestic Legislation are the Law Nr. 2560 titled “İstanbul Su ve Kanalizasyon İdaresi Genel Müdürlüğü Kuruluş ve Görevleri Hakkında Kanun”, Article 23; and Law Nr. 4736 Kamu Kurum Ve Kuruluşlarının Ürettikleri Mal Ve Hizmet Tarifeleri İle Bazı Kanunlarda Değişiklik Yapılması Hakkında Kanun, Article 1, adopted 19 January 2002.

  70. 70.

    Cumhuriyet 2010; Gultekin 2008.

  71. 71.

    Bakircay 2008.

  72. 72.

    Bakircay 2008; Constitution of the Republic of Turkey, Articles 2, 5, 90 and 127.

  73. 73.

    Cumhuriyet 2010.

  74. 74.

    Constitution of Turkey, Article 4.

  75. 75.

    See the summary of the decision provided in a paper prepared for the International Symposium on the Right to Water by the defence attorney in the case Arif Ali, Cangi 2011, p. 67.

  76. 76.

    Cumhuriyet 2010.

  77. 77.

    International Symposium on the Right to Water 2010.

  78. 78.

    Gultekin 2008.

  79. 79.

    Bakircay 2008.

  80. 80.

    See Conseil d’Etat, Le Juge des Référés, Ordonnance du 21 Juin 2019, No 431115, at 1.

  81. 81.

    Ibid.

  82. 82.

    Ibid., at 11.

  83. 83.

    Ibid., at 20.

  84. 84.

    Le Monde and AFP 2019.

  85. 85.

    Discours de la cérémonie des vœux du maire, Damien Carême, 13 Janvier 2018, https://www.ville-grande-synthe.fr/2019/01/14/discours-de-la-ceremonie-des-voeux-du-maire-damien-careme/, accessed 7 November 2019.

  86. 86.

    La loi nous oblige à faire un minimum/Et ce, même s’il faut affronter les plus hautes autorités.

  87. 87.

    Le Monde 2019.

  88. 88.

    See Baumgärtel and Oomen 2019; Oomen and Baumgartel 2018; and Oomen 2014, Chapter 7.

  89. 89.

    ESCR, European Federation of National Organisations working with the Homeless (FEANTSA) v. the Netherlands, judgment of 9 July 2014, Complaint No. 86/2012, and ESC, Conference of European Churches (CEC) v. the Netherlands, judgement of 1 July 2014, Complaint No. 90/2013, both published 10 November 2014.

  90. 90.

    The quote comes from an interview with the lawyer that put the case forward, mr P. Fischer, 20 May 2011.

  91. 91.

    The Hague Aliens Court (seat: Utrecht), 201500585/1/V1, judgement of 23 December 2014, ECLI:NL:RVS:2016:581.

  92. 92.

    House of Representatives II, Parliamentary proceedings 2014–2015, 1937–1940, Brief van de Staatssecretaris van Veiligheid en Justitie, 18 December 2014.

  93. 93.

    See Commissioner for Human Rights, ‘Report by Niels Muiznieks Following His Visit to the Netherlands from 20–22 May 2014’, (Strasbourg: Council of Europe, 2014), 126–29; Mandates of the Special Rapporteur on extreme poverty and human rights; the Special Rapporteur on adequate housing as a component of the right to an adequate standard of living, and on the right to non-discrimination in this context; and the Special Rapporteur on the human rights of migrants, NL 1/2016, 25 February 2016.

  94. 94.

    UNCESCR, Concluding Observations on the Netherlands, 23 June 2017, E/C.12/NLD/CO/6, paras 39 and 40.

  95. 95.

    See European Court of Human Rights, Hunde v. the Netherlands, judgment of 5 July 2016, 17931/16, para 5.

  96. 96.

    Dutch Association of Municipalities, Letters to the chair of the parties in parliament, 28 April 2015, ECSD/U201500740.

  97. 97.

    Central Appeals Tribunal, cases 14/4389 WMO, 15/5095 WMO, 14/4382 WMO, 15/5094 WMO, 14/4387 WMO, 15/5093 WMO, 26 November 2015.

  98. 98.

    Appeals Division of the Council of State, case 201500577/1/V1, 26 November 2016. Because of the focus of this chapter, we refrain from discussing the subsequent steps, such as the Bestuursakkoord, also because this did not address the fundamental tension in the interpretation of human rights obligations between the national government and local authorities.

  99. 99.

    E.g. Acuto 2013, Barber 2013, Aust 2015.

  100. 100.

    Oomen and Baumgärtel 2018a.

  101. 101.

    Oomen 2020.

  102. 102.

    Ibid.

  103. 103.

    Handmaker 2019.

  104. 104.

    Frug and Barron 2006, p. 1.

  105. 105.

    Baumgärtel 2021.

  106. 106.

    Spijkerboer 2007.

  107. 107.

    Cf. Resnik 2007.

  108. 108.

    Nelken 2004, p. 1.

  109. 109.

    Oomen and Baumgärtel 2014.

  110. 110.

    European Court of Justice, Fratelli Costanzo SpA v Comune di Milano, Case 103/88, judgment of 22 June 1989, ECR 1989, 01839.

  111. 111.

    Nicola 2012, p. 1309.

  112. 112.

    Oomen and Baumgärtel 2018a.

  113. 113.

    Blank 2006, p. 928.

  114. 114.

    A valuable start in this direction has been made by Hirschl 2020.

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Oomen, B., Baumgärtel, M., Durmuş, E. (2021). Accelerating Cities, Constitutional Brakes? Local Authorities Between Global Challenges and Domestic Law. In: Hirsch Ballin, E., van der Schyff, G., Stremler, M., De Visser, M. (eds) European Yearbook of Constitutional Law 2020. European Yearbook of Constitutional Law, vol 2. T.M.C. Asser Press, The Hague. https://doi.org/10.1007/978-94-6265-431-0_12

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