Thelegalapproach of ecological sustainability intheEuropeanEnvironmentalLawand its

contribution as aparadigm for the CommonMarketofSouthAmerica (Mercosul)

EELFConferece 2017- Copenhagen

MarcoTúlio R.MagalhãesPhDStudentUniversidade deSãoPaulo(Brazil)andFreie Universität Berlin(Germany)Contact:marucosam@yahoo.com.br

• A.Introduction• B.Thelegalapproachofsustainability(orsustainabledevelopment)asapolicy/normativeprinciple?

• EuropeanEnvironmentalLaw(EELF)• ConstitutionallevelofsomeEUMembers• InternationalEnvironmentalLaw• Commentsandimpressions• C.Thelegalapproachofsustainability(orsustainabledevelopment)intheMercosul(CommonMarketofSouthAmerica)

• PoliticalandnormativebasisforsustainabilityinMercosul• ConstitutionallevelofsomeMembersofMercosul• Commentsandimpressions• D.FinalRemarks

Mainquestions

• Sustainability?EcologicalSustainability?SustainableDevelopment?Howtounderstandthosetermsfromalegal

approach?Synonyms?

• WhatwehaveseeninthelegalapproachofEUandInternationalLaw?

• WhatwehaveseeninthelegalapproachofMercosulandit’scountries?

• CouldMercosul’sperspectivebeimproved,consideringtheexamplesofthenormativeapproachofEuropean

EnvironmentalLaw?

• HISTORICALASPECTSOFSUSTAINABILITY• Thedevelopmentoftheideaofsustainabilitysince14thCentury

(Bosselmann,2008;Mosley,2010)• Someexamples– Mainroots(forestry)

• Germany• Allmende systemforlanduse• Ideaofsustainedyield(nachhaltende Nutzung)concerningexcessivedeforestationandwoodexploitation(economical/comercial purposes)Hanns CarlvonCarlowitz –(1763)Sylvicultura oeconomica,oder Hauswirthliche NachrichtundNaturmässige Anweisung zur Wilden Baum-Zucht

• France• granderéformation des forêts /Minister of LouisXIV,Jean-BaptisteCoulbert //“Ordonnance des Eaux etForêts” (1669);

• England• JohnEverlyn /“Sylva,oraDiscourseofForest-TreesandthePropagationofTimberinHisMajestiesDominions”(1664)

• Portugal/Brazil (JoséBonifácio deAndrada eSilva)

• CONCEPTUALASPECTSOFSUSTAINABILITY

• Spreadtoalotofdifferentfields- notonlyforestry=>naturalresources(BRÜGGEMEIER,2014))

• Challengeofanuniformcomprehension(misunderstandings)• Importanceofaecologicalapproachofsustainability?• Istherenon-westernpointofviews?Roleoftraditionalpopulationsandotherexperiences.

• Strong sustainabilityxweak sustainability(Bosselmann,2008)• environmental sustainability;• sustainabledevelopment(Threepillarsconcept);• ecologicalsustainability.

• Acontestedconcept?Differentlevelsofcomprehension/consensus(JODOIN,2012)

SustainabilityandSustainableDevelopmentasgeneralconcepts

AretheyworkingastheBedofProcustes?Shouldwecutofffromthedebatethepartsof(ecological)sustainabilitythatdonotfitinthepathofeconomicdevelopment?

DotheyworkguidedbytheformulaOnesizefitsall?Shouldwehaveanuniqueshoe(concept)tofitallourfeet(expectations/sectorsregardingsustainability)?Shouldweputeverythinginsideit(rememberRio+20Reportandthethreepillarsconcept)?

SustainabilityandtheDevelopmentoftheEEL

TwoPerspectives(EnvironmentalPolicyandnotonlyEnvironmentalLaw)

Detailedperspective5differentphases

I - 1958 -1972II - 1972 -1987III - 1987 - 1993IV - 1993 (Maastricht) - 1999V - (Amsterdam und Nizza): From1999 (and after the Treaty ofLisbon

GeneralPerspective3differentphases

1972-19871987-1992From1992

• GeneralPerspective(3phases)• Phase 1: 1972-1987 – Development of the Environment Policy as part ofthe Economic Policy (Focus on the common market) – withoutexpressed norms of environmental protection. (although theimprovement through de Action Program of 1973

• Phase 2: 1987 - 1992 – With the Single European Act (SEA) starts thebeginning of a specific Environmental Policy with fundaments, principlesand procedural norms.

• Phase 3: From 1992 – No relevant changes regarding the formalprescriptions of the Environmental Policy, although the improvement ofinstitutional action of the EU and the Member States. Mainstream(economic problems and crises)

ActorsDie EU Organs / The Member States / The EU citizens? / NGOs

EuropeanEnvironmentalLegislation• Main Highlights:

• SEA and specific environmental policy (ex-Art.174-176 EGV) –until today (Art. 191-Art. 193 TFEU).

• Primary Legislation (TEU and TFEU and EU Charger offundamental rights – Objetives, Principles, protectionmeasures, competences, decision procedures, financeaspects.

• The cross-section clause (art. 11 TFEU).• EU Level: No individual right to environmental protection.• Environmental protection as union‘s objectives – Art. 3 parags.3 and 5 TEU / Art. 191 parag. 1 and parag. 3 TFEU.

• Summary of the current types of rules of EEL

• generalprovisions• rulesconcerningtothequalityofthedifferentelementsofnature

• rulesregardingtospecificactivitiesandmaterials• rulesrelatedtotherationaluseandprotectionoftheenvironmentalresources

• RememberingArt.288TFEU:regulations,directives,decisions,recommendationsandopinions.

• Specialattentionfordirectivesinenvironmentallawfield• (“lalegislazioni”perprinzipi”,PaoloDell`Anno,2008,Riskfortheruleoflaw(legalcertainty)

• Sustainability/SustainableDevelopmentinEUPrimaryLegislation

• PreambleTEU(takingintoaccounttheprincipleofsustainabledevelopment[...]withinthecontextofenvironmentalprotection)

• Art.3,3and5TEU(internalmarketshallworkfor thesustainabledevelopmentofEuropebasedon[...]andahighlevelofprotectionandimprovementofthequalityoftheenvironment.)/theUnionshallcontributeto[...]thesustainabledevelopmentoftheEarth)

• Art.21,2,fTEUPromoteinternationalhelpinordertoensuresustainabledevelopment

• Art.11TFEU(EnvironmentalprotectionrequirementsmustbeintegratedintothedefinitionandimplementationoftheUnion'spoliciesandactivities,inparticularwithaviewtopromotingsustainabledevelopment.)

• Art.191TFEU((indirectly - Unionobjectivesonenvironmentalprotection)

• CFREUArt.37(AhighlevelofenvironmentalprotectionandtheimprovementofthequalityoftheenvironmentmustbeintegratedintothepoliciesoftheUnionandensuredinaccordancewiththeprincipleofsustainabledevelopment)

• Introducingsustainability/sustainabledevelopmentinconstitutionalprovisions(examplesofsomeEUCountries)

• Portugal(art.66,2Ensureenvironmentalprotectionintheframeworkofsustainabledevelopment/art.81well-beingandsustainabledevelopmentashighstatepriority)

• Switzerland(art.73Nachhaltigkeitandstatecompetences)• Belgium (art.7sustainabledevelopment3pillarsandintergenerationasolidarity

• France (Chartedel’environnement 2004,développementdurable,Preambleandart.6)SimilartoBrundtlandapproach

• Germany 20aBasicLaw/alsoaLegislativePropositionfora20bBL(Sustainabledevelopmentinawiderperspective,includingintergenerationequity/Generationengerechtigkeit )

• EuropeanizationofSustainability?• RecognitionxImplementation(enforcement)?

SustainabilityandEnvironmentalInternationalLaw

4maindifferentphases

I - End of the 19th Century and Begin of 20th Century

II - 1945 - 1950s (International Organizations )

III - from 1960s or from 1970s (Declaration of Stockholm (1972) and„Brundtland Report in 1987 (World Commission on Environment andDevelopment: Our Common Future).“ Growing concerns aboutenvironmental damages and impacts as „side effects“ of state andeconomic activities)

IV - 1992-1997 and from 1997 (Rio 92, Agenda 21, […], Rio+20 (threepillars clearly defended) / Climate Changes Agreements[…]

• Someexamplesofthecontroversyofthelegalcomprehensionofsustainabledevelopmentin

InternationalLaw

• Policyprinciple?• Softlaw?• Meta-principle?• “Twillight”norm(BEYERLIN)?• Normativeconcept(DUPUY)?• Connectiveprinciple/Verbundsbegriff(KAHL);

• SomeRemarks

• Parallel development between EEL and EIL, but with importantdifferences;

• Potential of the EU as a „global player“ on the internationallevel of environmental protection (KRÄMER, 2006).

• Dynamic „Multi-level system“ of the EU level and significanttendency of Europeanisation of the national environmentallaw and policy levels (also procedural and organization levels)

• Certain common comprehension about sustainability from alegal approach, but not necessary talking about ecologicalsustainability (as strong sustainability)

• Proceduralenvironmentalrightsaspartofanideaofsustainability?

• ProceduralEnvironmentalRightsinEurope• 3 Elements (milestones) are already present in EU andnational levels (and also international law level) (Aarhus-Convention Articles. 1, 4, 6, 9); (Principle 10 Rio-Declaration):

• (a)rightonaccesstoinformation(Art.4);• (b) right to public participation in decision-making (Art. 6);• (c)rightonaccesstojusticeinenvironmentalmatters(asmuchasnecessarytoenforcethetwoothersrights)(Art.9)

• C.ThelegalapproachoftheideaofsustainabilityintheMercosul(SouthernCommonMarket)

• Mercosul: Brazil,Argentina,Paraguay,Uruguay,dVenezuela(laterinclusion)andBolivia(laterinclusion)• Othercountriesareonlyassociated(notStateMembers)

• Mercosulestablishedin1991inAssunção(Paraguay)

• Itbasicallyaimsatpromotingfreetradeofgoods,services,andproductioninputs.

• Sourceofthefigurebelow:PortalBrasil(15/07/2017)

• I.PoliticalandnormativebasisforsustainabilityinMercosul:mainsteps

• StepOne- FoundationTreaty:TreatyofAssunção1991(Brazil,Argentina,Paraguai,Uruguay)

• Absentofdetailedprescriptionsregardingenvironmentalprotectionandsustainability

• AsimplementioninthePreamble:• Inordertoguaranteeandenforceacommonandintegratedmarket

towardseconomicdevelopmentandsocialjustice,thebestuseofnaturalresourcesshouldbeimproved,aswellasenvironmentalprotection,commoninfrastructure,coordinativemacroeconomic

policies

• StepTwo- FrameworkAgreementof2001regardingenvironmentalprotection:generalprovisions

• Preamble:relevanceofcooperationonenvironmentalprotection,inordertoachieveabetterlifequalityandsustainabledevelopment

• Arts.1and2- ReaffirmsthecommitmentwithRio92Declarationprinciplesinordertoincorporatethemintoactivities/policiesofMercosul

• Art.3,“a”and“b”:declarationtoenforceenvironmentalprotectionasacross-sectionmattertoallotherpolicies

• Art3,“c”:declarationtoenforcepublicparticipation\Arts.5Arts.5and6– maincoreregardingcooperativeactivitiesbyStateMembers

• Art.8– systemforsolvingcontroversiesregardinginterpretationandapplicationoftheprovisions.

• NormativeandpoliticalproblemsregardingprovisionsoftheTreatyofMercosul:

• lackofnormativeeffect(non-bindingeffect);• Absentofsanctionsincaseofviolation(nonobservation)ofthelegalprovisions;

• Softlaw?• WeakdirectiveforacommonactioninMercosul;• Priorityofeconomicalandcommercialissues;• Asymmetryandpoliticalchallengesbetweencountries;• AbsenceofaeffectiveLatinAmericanEnvironmentalLaw;• Istherereallyacommonviewtosupportsustainability?

• Introducingsustainability/sustainabledevelopmentinconstitutionalprovisions(examplesofcountriesintegrating

Mercosul)• Brazil• art.170,VIenvironmentalprotectionasgeneralprincipleoftheeconomicorder;

• art225,intra- andintergenerationalconcernregardingenvironmentalprotection

• Argentina• art.41provisionsimilartoBrundtland’ssustainabledevelopment(derechoaunambientesano,equilibrado,aptoparaeldesarrollohumanoyparaquelasactividadesproductivassatisfaganlasnecesidadespresentessincomprometerlasdelasgeneracionesfuturas)

• Venezuela• Art.128Statepoliciesshouldbeinaccordancewiththepremisesofsustainabledevelopment

• Bolívia• manyreferencestosustainableuse(e.g.Art.108,15),alsosustainabledevelopment(art.346)andprincipleofsustainability(art.186)

• Equador• Art.71Rightsofnature(derechosdelanatureza)orrightsofmotherearth(PachaMama)

• RecognitionxImplementation(enforcement)?

AspectsfromEULawthatmightcontributefortheimprovementofMercosul Law,speciallyregardingsustainability

• semanticalandconceptualapproach(anthoprocentric)• effectiveintegrationwithothersectorialpolicies• influencefrominternationallaw• bindingeffect• Sanctions• Institutionaldevelopmentwithdifferentkindsofnormative

rulesandcontrolinstitutions• Enforcementofproceduralrightsandenvironmentalpolicies

• Finalremarks• Important distinguishing of semantical, historical, conceptualand normative aspects between sustainable development,ecological/environmental sustainability;

• Environmental sustainability and sustainable development(anthropocentric approaches) have been the mainstreamapproach in terms of legal rules, including the EU Primary lawexperience, which shows important legal effects (specially art.11 TFEU and arts. 191-193 TFEU); The same can be said aboutEnvironmental International Law and domestic constitutionallaw (although some remarkable examples should not bedenied);

• This evidence does not mean that the above mentionedapproach is better than an ecological sustainability approach;

• (continues)

• The experience of Mercosul, regarding its main legislation,mentions the importance of sustainable development (andenvironmental sustainability), but do not establish minimumlegal effects that should bind and enforce Member States toact;

• Some historical and political reasons might help understandingthis situation (recent constitutionalism of South America hasincorporated significant constitutional provisions regardingenvironmental law and sustainability/sustainabledevelopment). But they do not substitute lacks that should bedevelopment at the supranational level.

• The EU experience can contribute to point out someexperiences regarding minimum legal effects that contributefor the development of an adequate legal approach of(ecological) sustainability

• THEEND

• Thankyou!

• MarcoTúlioR.Magalhães• PhDStudent• UniversidadedeSãoPaulo(Brazil)andFreieUniversitätBerlin(Germany)

• Contact:marucosam@yahoo.com.br