Four Freedoms (European Union)
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- For article on Franklin D. Roosevelt’s four freedoms, see "Four Freedoms".
In European Union law, the Four Freedoms is a common term for a set of Treaty provisions, secondary legislation and court decisions, protecting the ability of Goods, Services, Capital, and Labour to move freely within the Internal Market of the European Union. More precisely, they are:
- The free movement of goods;
- The free movement of services and freedom of establishment;
- The free movement of persons (and citizenship), including free movement of workers;
- The free movement of capital.
These four freedoms form part of the substantive law of the EU. Although it is not easy to summarize compactly the activities of the European Union, one can define them as the free flow of economic factors, in pursuit of greater prosperity of the states and its citizens. The law of the Single Market plays a key role there by removing the barriers that Member States might otherwise impose on trade originating in other Member States.
Article 12 of the EC Treaty prohibits discrimination on the basis of nationality and is one of its fundamental provisions. However, on its own it would not suffice to ensure free movement of factors of productions for the simple reason that not all barriers discriminate. For instance, a prohibition on discrimination would make illegal any measure in State A imposing a total ban or a quota on, say, toys from State B. But that provision would not prevent a measure that mandates that all toys sold in State B be packaged in recyclable material, even if such measure can in practice act as a ban or at least make the export of toys to State B more expensive. This difficulty has largely been eliminated in EU law through the concept known as “home country control”. According to this, a product or a service is allowed to access markets of other Member States if it has lawfully been made/provided in the state of origin (Home State). Host State rules that present a barrier to this movement will be illegal unless justified by a set of specifically provided rules in the EC Treaty.
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[edit] Free Movement of Goods
The European Union is a customs union. This means that Member States have removed customs barriers between themselves and introduced a common customs policy towards other countries. Customs duties are, therefore, prohibited between Member States. On the other hand, as Article 90 of the EC Treaty provides, the states are free to tax as long as they do not discriminate towards other Member States. Therefore, Member State A will be able to tax cars at a rate that is twice as high as in Member State B, provided that it taxes all cars equally – imported as well as those produced domestically.
In addition to prohibiting customs duties and discriminatory taxes, the EC Treaty, in Article 28, prohibits quotas and “measures having equivalent effect”. But what are measures having equivalent effect and how do they affect trade between Member States? The Treaty does not answer these questions and European Court of Justice has over several decades provided detailed case law interpreting Article 28. In a well-known series of cases beginning with case 8/74 Dassonville, continuing with case 120/78 Cassis de Dijon and culminating in C-267/91 Keck and Mithouard, the Court has said that discriminatory and non-discriminatory rules of Member States (therefore not actions of private corporations or individuals) that hinder trade shall be illegal.
Discriminatory rules distinguish between national and imported goods in law and in fact. A prohibition of imports imposed by state A on goods from state B is directly discriminatory but restrictions do not have to take the shape of prohibitions or quotas. A Member State can lead advertising and promoting campaigns that favours domestic products, or it can impose higher prices or more stringent conditions (such as health inspections) on imported goods. The key to discrimination is that domestic products are not subject to the added difficulties, and are therefore put at an advantage.
Non-discriminatory rules that hinder trade do not distinguish in law but do so in fact. They impose a higher burden on the importer due to additional work it has to complete to make the product marketable. Although in law the rules apply equally to domestic producers and importers, in reality the burden is born by importers, the domestic producers already complying with the rules. If, in addition, the product is marketed in a number of Member States, the exporter from state A might be subject to as many different regimes as there are countries into which he is hoping to import.
For example, a (fictitious) law in state A is that alcoholic drinks of a particular kind must not contain more than 20% alcohol. Producer from state B makes and regularly exports drinks which contain 25% alcohol. It will be observed that law in state A applies to all those who wish to market the alcoholic drinks in question – whether they are domestic in origin or foreign. In that respect, in law, they do not discriminate. On the other hand, as a result of their presence, a legally marketed drink from state B either has to be modified and its alcohol contents reduced to only 20% or must be absent from market of state A altogether. EU law, under the circumstances mentioned in the previous paragraph, prohibits this kind of distinction: although the law appears to treat all parties equally, in fact domestic producers are favoured.
Naturally, allegations can be made against any rule that inconveniences the trader, and this includes a very large number of rules. Therefore, in the last of the mentioned cases, Keck, and those that followed it, the Court decided that only rules relating to product requirements (shape, size, colour, etc.) should be illegal, while those relating to selling arrangements (opening hours, staff training requirements, etc.) will mostly not be. The division was an attempt to limit the number of cases to only those situations where, in the absence of discrimination, there is real danger of importer suffering the presence of dual burden.
Under certain circumstances, Member States whose rules have been disapplied may defend them. For rules that discriminate, a defence will be possible under Article 30 which mentions, among other things, public health or public morality. For example, a restriction of import of meat from certain countries will be legal if it has clear medical grounds. A restriction of importation of pornographic material may be justified if such material is normally not available in the said Member State. Non-discriminatory rules may be justified not only by reference to Article 30 but also to a Court-made list of exceptions. This list of “mandatory requirements” is wider than Article30, as it is meant to give Host States more space to defend their own rules.
[edit] Free Movement of Persons
Broadly defined, this freedom enables citizens of one Member State to travel to others, alone or with their families, to work there (permanently or temporarily), to visit places as tourists or simply to live there. The idea behind EU legislation in this field is that citizens from other Member States should be treated equally with domestic ones – they should not be discriminated against.
The main provision of the freedom of movement of persons is Article 39 (ex 48) of the EC Treaty that prohibits restrictions on the basis of nationality. This is complimented by some other important provisions, such as Regulation 1612/68 on the rights of workers and the recent Directive 2004/38 on citizenship.
Workers have the right to move to a different Member State, to look for work and be employed under the same conditions as nationals of that State and benefit from the same social and tax advantages. This right has been extended by the Court of Justice to family members that accompany the worker, although they derive their rights from the main holder. Family Members from non-EU states also have these rights. In order to claim these rights, family members may claim these rights by completing the relevant paperwork. In the United Kingdom, for example, the relevant document is the EEA family permit.
Under the Citizenship Directive, anyone has a right to reside in a different Member States for up to three months, without any restricitons. Residence is also possible for periods longer than this provided that the person is a worker or has sufficient funds or is a dependent, or in education, or an old age pensioner.
[edit] Positive and Negative Integration
The law of the Single Market relies on two models of integration. One is negative and consists of prohibitions imposed on Member States of discriminatory behaviour and other restrictive practices . The four freedoms mainly, but not exclusively, rely on this approach. There are other examples in the Treaty where it is utilized (e.g. prohibition on State Aid in Article 87).
The other is positive and consists in approximation of laws and standards (such as common customs tariff (Art. 23 EC Treaty) or common commercial policy (Article 133 EC Treaty). Especially important (and controversial) in this respect is the adoption of harmonizing legislation under Article 95 of the EC Treaty.
Since late 80s, the Community adopted the so-called 'New Approach' to the regulation of the Single Market. This is a combination of positive and negative integration. It relies on 'minimum' rather than 'exhaustive' harmonisation, obliges Member States to recognize legally produced goods and services from other Member States ('mutual recognition') and gives Host States the ability to defend some of their (otherwise) restrictive laws on the basis of public policy or other narrowly interpreted grounds ('mandatory requirements').
The appropriate balance between positive and negative integration measures is strongly contested although both play an important role.
[edit] Further reading
- Hartley, Trevor C. (2003). The Foundations of European Community Law, 5th Edition, Oxford, New York: Oxford University Press. ISBN 0-19-925846-5.
- Chalmers, D., et al. (2006). European Union Law: Text and Materials, 1st Edition, New York: Cambridge University Press. ISBN 978-0-521-82041-7.
- Craig, P., de Búrca, C. (2003). EU Law: Text, Cases and Materials, 3rd Edition, Oxford, New York: Oxford University Press. ISBN 0-19-925608-X.
