DORIAN GJERKEŠ
Pravni sistemi in institucije EU Pravna fakulteta Maribor Dorian Gjerkeš 1.1.2012
Za izdelavo skripte je uporabljena knjiga Uvod v pravo Evropske unije (A. Ferčič, J. Hojnik, M. Tratnik) ter izpiski iz predavanj Pravni sistemi in institucije EU (dr. Aleš Ferčič in dr. Matjaž Tratnik).
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Kazalo KAZALO ............................................................................................................................................................ 2 I. EVROPSKO PRAVO, PRAVO EU IN PRAVO ES ................................................................................................. 7 1. EVROPSKO PRAVO: ............................................................................................................................................... 7 2. PRAVO EU: ......................................................................................................................................................... 7 3. PRAVO ES: .......................................................................................................................................................... 7
II. ZGODOVINA IN PERSPEKTIVE EVROPSKIH INTEGRACIJ ................................................................................. 8 1. USTANOVITEV EVROPSKIH SKUPNOSTI: ..................................................................................................................... 8 1.1. ESPJ (1952) – Evropska Evropska skupnost za premog in jeklo ............................................................................... 8 1.2. EGS (1958) – Evropska Evropska gospodarska skupnost ......................................................................................... 8 1.3. ESAE (1958) – Evropska Evropska skupnost za atomsko energijo ........................................................................... 8 1.4. Institucionalna struktura: ......................................................................................................................... 8 2. OBDOBJE PO USTANOVITVI EVROPSKIH SKUPNOSTI : ..................................................................................................... 8 3. EEA - ENOTNI EVROPSKI PAKT (1987): .................................................................................................................... 8 4. PEU – POGODBA O USTANOVITVI EVROPSKE UNIJE (1993): ....................................................... .................................. 9 5. POGODBA IZ AMSTERDAMA (1999): ....................................................................................................................... 9 6. POGODBA IZ NICE (2003): .................................................................................................................................... 9 7. PUE - POGODBA O USTAVI ZA EVROPO (PROPADLA ): .................................................................................................. 9 8. LIZBONSKA POGODBA (SPREJETA 2007, ZAČETEK VELJAVE 2009): ................................................................................. 9
III. TEMELJNE ZNAČILNOSTI EU IN ESAE .......................................................................................................... 11 1. ZGRADBA EU IN ESAE: ....................................................................................................................................... 11 2. PODROČJE UREJANJA : .......................................................................................................................................... 11 3. PRAVNA OSEBNOST EU (IN ESAE): ........................................................................................................................ 11 4. PRAVO EU IN ESAE (V RAZMERJU DO MEDNARODNEGA MEDNARODNEGA PRAVA ):............................................................ ..................... 11 4.1. Cilji in sredstva: ...................................................................................................................................... 11 4.2. Institucionalna zgradba: ......................................................................................................................... 11
IV. INSTITUCIJE ............................................................................................................................................... 12 1. EVROPSKI PARLAMENT (EP):................................................................................................................................. 12 2. EVROPSKI SVET (ES): ........................................................................................................................................... 12 3. SVET: ............................................................................................................................................................... 12 3.1. Visoki predstavnik za zunanje zadeve in varnostno politiko: ................................................................. 13 4. EVROPSKA KOMISIJA (EK): ................................................................................................................................... 13 5. ZAKONODAJNI POSTOPKI : ..................................................................................................................................... 14 5.1. Redni zakonodajni postopek: ................................................................................................................. 14 5.2. Posebni zakonodajni postopki: ............................................................................................................... 14 5.3. Klavzula passerelle: ................................................................................................................................ 15
5.4. Začasna prekinitev zakonodajnega postopka: ....................................................................................... 15 5.5. Vloga nacionalnih parlamentov pri sprejemanju zakonodaje EU: ......................................................... 15 6. SODIŠČE EU: ..................................................................................................................................................... 15 7. RAČUNSKO SODIŠČE: ........................................................................................................................................... 16 8. EVROPSKA CENTRALNA BANKA : ............................................................................................................................. 16
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1.1. Temeljne pravice kot primarni vir prava EU: .......................................................................................... 17
1.2. Splošna pravna načela kot primarni vir prava EU: ................................................................................. 17 2. SEKUNDARNO PRAVO EU: .................................................................................................................................... 17 2.1. Mednarodni sporazumi, ki jih sklene EU: ............................................................................................... 17 2.2. Avtonomni pravni viri institucij EU: ........................................................................................................ 18 2.2.1. Uredbe: ............................................................................................................................................................. 18 2.2.2. Direktive: ........................................................................................................................................................... 18 2.2.3. Sklep: ................................................................................................................................................................. 19 2.2.4. Soft law ali akti sui generis: ............................................................................................................................... 19
VI. NARAVA PRAVA EU ................................................................................................................................... 20 1. NAČELO AVTONOMNOSTI: .................................................................................................................................... 20 2. NAČELO PRIMARNOSTI : ....................................................................................................................................... 20 3. NAČELO NEPOSREDNE UPO RABNOST I IN NEPOSREDNEGA UČ INKA: ................................................................................ 20 3.1. Neposredna uporabnost: ........................................................................................................................ 20 3.1.1. Pogodbe: ........................................................................................................................................................... 20 3.1.2. Uredbe: ............................................................................................................................................................. 20 3.1.3. Direktive: ........................................................................................................................................................... 20
3.2. Neposredni učinek: ................................................................................................................................. 20 3.2.1. Pogodbe: ........................................................................................................................................................... 20 3.2.2. Uredbe: ............................................................................................................................................................. 20 3.2.3. Direktive: ........................................................................................................................................................... 21
4. LOJALNA RAZLAGA : ............................................................................................................................................. 21 5. IZKLJUČEVALNI UČINEK :............................................................. ................................................................. .......... 21 6. ODŠKODNINSKA ODGOVORNOST DRŽAVE ČLANICE : ......................................................... ........................................... 21
VII. PRAVNO VARSTVO ................................................................................................................................... 22 1. SODIŠČE EU: ..................................................................................................................................................... 22
1.1. Tožba zaradi kršitve prava EU (člen 258 PDEU): .................................................................................... 22 1.1.1. Potek postopka: ................................................................................................................................................ 22 1.1.2. Denarna kazen: ................................................................................................................................................. 22
1.2. Ničnostna tožba (člen 263 PDEU): .......................................................................................................... 22 1.2.1. Aktivna legitimacija: .......................................................................................................................................... 22
1.2.2. Tožbeni razlogi: ................................................................................................................................................. 23 1.2.3. Posledice (člen 264 PDEU): ................................................................................................................................ 23 1.3. Tožba zaradi nedelovanja (člen 265 PDEU): ........................................................................................... 23 1.3.1. Aktivna legitimacija: .......................................................................................................................................... 23 1.3.2. Posledice: .......................................................................................................................................................... 23
1.4. Odškodninska tožba: .............................................................................................................................. 23 1.4.1. Pogoji za odškodninsko odgovornost: ............................................................................................................... 23 1.5. Predhodna vprašanja: ............................................................................................................................ 23 1.5.1. Postopek: .......................................................................................................................................................... 24 1.5.2. Razlaga prava EU: .............................................................................................................................................. 24 1.5.3. Veljavnost sekundarnih predpisov: ................................................................................................................... 24
1.5.4. Posebni postopki predhodnega odločanja: ....................................................................................................... 24 2. NOVOSTI NA PODROČJU SODNEGA VARSTVA PO LIZBONSKI POGODBI : ........................................................................... 25
VIII. ŠTIRI TEMELJNE EKONOMSKE SVOBOŠČINE ............................................................................................ 26
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2.4. Ekonomska in monetarna unija:............................................................................................................. unija:............................................................................................................. 26 2.5. Popolna ekonomska integracija: ............................................................................................................ 26 3. NAČELA NOTRANJEGA TRG A:...................................................... ................................................................. .......... 26 3.1. Svobodno opravljanje gospodarskih dejavnosti: .................................................................................... 26 3.2. Neposredna izvršljivost:.......................................................................................................................... 27 3.3. Prepoved diskriminacije: ........................................................................................................................ 27 4. PROSTI PRETOK BLAGA (TEMELJNA SVOBOŠČINA): ..................................................................................................... 27 4.1. Carinska unija (28 PDEU): ....................................................................................................................... 27 4.1.1. Prepoved carin: ................................................................................................................................................. 27 4.1.2. Prepoved dajatev z enakim učinkom carinam (DzEU): ...................................................................................... 27
4.1.3. Dajatve, ki niso dajatve z enakim učinkom:....................................................................................................... 27 4.2. Prepoved diskriminatornih notranjih davščin (110 PDEU): .................................................................... 28
4.3. Prepoved količinskih omejitev uvoza: .......................................................... ........................................... 28 4.3.1. Količinske omejitve (34 PDEU): ......................................................................................................................... 28 4.3.2. Prepoved ukrepov z enakim učinkom, kot ga imajo ko ličinske omejitve: ......................................................... 28 4.3.3. Izjeme od prepovedi iz člena 34 PDEU: ............................................................................................................. 29 4.3.4. Načini prodaje: .................................................................................................................................................. 30
4.4. Prepoved količinskih omejitev izvoza in ukrepov z enakim učinkom: ..................................................... 30 5. PROSTO GIBANJE OSEB : ....................................................................................................................................... 30 5.1. Gibanje ekonomsko aktivnih oseb: ......................................................................................................... 31 5.1.1. Prosto gibanje delavcev: ................................................................................................................................... 31 5.1.2. Pojem delavca v smislu PDEU (zadeva Hoekstra): ............................................................................................. 31 5.1.3. Pravice delavcev v PDEU: .................................................................................................................................. 32 5.1.4. Upokojenci (uredba 1251/70): .......................................................................................................................... 32 5.1.5. Izjeme: ............................................................................................................................................................... 33
5.2. Svoboda ustanavljanja sedeža: .............................................................................................................. 33 5.2.1. Svoboda gibanja samozaposlenih oseb: ............................................................................................................ 33 5.2.1.1.
Priznavanje poklicnih kvalifikacij: .......................................................................................................... 33
5.2.2. Svoboda ustanavljanja sedeža pravnih oseb: .................................................................................................... 34 Evropska delniška družba (societas europaea): .................................................................................... 34 5.2.2.1. 5.3. Svoboda gibanja ekonomsko neaktivnih oseb (21 PDEU): ..................................................................... 34 5.3.1. Državljanstvo EU (20 PDEU): ............................................................................................................................. 34 6. PROSTI PRETOK STORITEV : .................................................................................................................................... 34
6.1. Čezmejni promet storit eev: v: ...................................................................................................................... 34 6.2. Pojem storitev in doseg določil PDEU: ................................................................................................... 34 6.3. Prepoved diskriminacije in drugih ovir: .................................................................................................. 35 6.4. Izjeme: .................................................................................................................................................... 35 7. PROSTI PRETOK KAPITALA IN PLAČIL : ....................................................................................................................... 35 7.1. Pojem: .................................................................................................................................................... 35 7.2. Prepoved omejitev (63 PDEU): ............................................................................................................... 36 7.2.1. Izjeme: ............................................................................................................................................................... 36
8. SKLEPNO O ŠTIRIH SVOBOŠČINAH : .......................................................................................................................... 36
IX. PRAVO KONKURENCE ................................................................................................................................ 37 1. SPLOŠNE ZNAČILNOSTI PRAVA KONKURENCE EU: ...................................................................................................... 37 1.1. Definicija in koncept prava konkurence EU: ........................................................................................... 37 1.2. Pomen prava konkurence EU: ................................................................................................................ 37 1.3. Viri prava konkurence EU: ...................................................................................................................... 37
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2.2. Pravne posledice kršitve načelne prepovedi (člen 101(2) PDEU): ........................................................... 40 2.3. Izjeme od načelne prepovedi (člen 101(3) PDEU): ............................................................. ..................... 40 3. ZLORABA PREVLADUJOČEGA POLOŽAJA (ČLEN 102 PDEU): ........................................................................................ 42 3.1. Generalna klavzula in njeni elementi: .................................................................................................... 42
3.2. Druga vprašanja povezana s členom 102 PDEU: ............................................................... ..................... 44 4. OMEJEVALNA KONCENTRAC IJA DVEH ALI VEČ POD JETIJ (UREDBA 139/2004): ................................................................ 44 4.1. Uredba 139/2004: .................................................................................................................................. 44 5. EX ANTE REGULACIJA TRGA (ČLEN 106 PDEU): ........................................................................................................ 45
5.1. Prepoved ex ante regulacije (člen 106(1) PDEU): ................................................................................... 45 5.1.1. Temeljne značilnosti: ......................................................................................................................................... 45 5.1.2. Ključi elementi: .................................................................................................................................................. 45 5.2. Izjema od prepovedi (člen 106(2) PDEU): ............................................................................................... 46 5.2.1. Temeljne značilnosti: ......................................................................................................................................... 46 5.2.2. Ključni elementi: ................................................................................................................................................ 46 5.3. Procesna določba (člen 106(3) PDEU): ................................................................................................... 47 6. DRŽAVNE POMOČI (ČLENI 107 DO 109 PDEU):....................................................................................................... 47
6.1. Koncept državne pomoči in načelna prepoved (člen 107(1) PDEU): ....................................................... 47 6.1.1. Elementi, ki tvorijo koncept državne pomoči: ................................................................................................... 47 6.1.2. Tipične oblike državne pomoči: ......................................................................................................................... 47 6.2. Obligatorne izjeme od prepovedi (člen 107(2) PDEU): ........................................................................... 48
6.3. Potencialne izjeme (člen 107(3) PDEU): ................................................................................................. 48 6.4. Procesna določba (člen 108 PDEU): .............................................................. .......................................... 48 6.4.1. Temeljni koncepti člena 108 PDEU: ................................................................................................................... 49 6.5. Člen 109 PDEU: ....................................................................................................................................... 49
6.6. Pravne posledice kršitve pravil o državnih pomočeh EU: ....................................................................... 49 X. OBMOČJE SVOBODE, VARNOSTI IN PRAVICE (OSVP) .................................................................................. 50 1. OPREDELITEV: .................................................................................................................................................... 50
1.1. Štiri politike: ........................................................................................................................................... 50 2. RAZVOJ OSVP: .................................................................................................................................................. 50 3. MEJNA KONTROLA , AZIL IN PRISELJEVANJE: .............................................................................................................. 50 3.1. Schengenski pravni red: .......................................................... ................................................................ 50 3.2. Azil in priseljevanje: ................................................................................................................................ 50 3.2.1. Štiri načela iz Tampereja (zasedanje Evropskega sveta):................................................................................... 50 3.2.2. Sekundarna zakonodaja: ................................................................................................................................... 51
3.3. Pravosodno sodelovanje v civilnih zadevah: .......................................................................................... 51 3.3.1. Cilji: .................................................................................................................................................................... 51 3.3.2. Sekundarna zakonodaja (samo nekatere uredbe):............................................................................................ 51
3.3.3. Evropska pravosodna mreža v civilnih in gospodarskih zadevah: ..................................................................... 51 3.4. Pravosodno sodelovanje v kazenskih zadevah: ...................................................................................... 51 3.5. Policijsko sodelovanje: ............................................................................................................................ 51
XI. ZUNANJE DELOVANJE EU........................................................................................................................... 52 1. SKUPNA ZUNANJA IN VARNOSTNA POLITIKA (SZVP): ................................................................................................. 52 1.1. Razvoj: .................................................................................................................................................... 52 1.2. Cilji SZVP: ................................................................................................................................................ 52 1.3. Nosilci SZVP: ........................................................................................................................................... 52
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2.2.2. Ukrepi trgovinske zaščite: ................................................................................................................................. 53 2.2.2.1. Protidumpinški ukrepi (Uredba 1225/2009): ........................................................................................ 53 2.2.2.2.
Protisubvencijski ukrepi (Uredbi 597/2009 in 560/2009): .................................................................... 54
2.2.2.3.
Ukrepi proti trgovinskim oviram: .......................................................................................................... 54
2.3. Sodelovanje v okviru S vetovne trgovinske organizacije (STO): ............................................................... 54
2.4. Odnosi z državami naslednicami SFRJ: ................................................................................................... 54
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Evropsko pravo, pravo EU in pravo ES
I. Evropsko pravo, pravo EU in pravo ES 1. Evropsko pravo: V GEOGRAFSKEM SMISLU: pravo, ki je skupno evropskim državam oz. tisto , kaj imajo pravni redi evropskih držav skupnega. Ta pravna pravila se imenujejo ius commune Europaeum in Europaeum in temeljijo predvsem na vplivu rimskega prava in drugih skupnih splošnih načelih (npr. demokracija, spoštovanje temeljnih pravic in svoboščin, delitev oblasti, vladavina prava, itd.). Vključimo lahko tudi pravila velikega števila dvostranskih in večstranskih mednarodnih konvencij, ki so jih med seboj sklenile evropske države. V OŽJEM SMISLU: oznaka za pravo evropskih gospodarskih integracij (EU in ESAE).
2. Pravo EU: Je celovit sistem pravnih načel in pravil, ki jih sprejemajo institucije EU. To pravo temelji na Pogodbi o EU (PEU), Pogodbi o delovanju EU (PDEU) in Listini EU o temeljnih pravicah. Takšna vsebina prava EU velja šele od Lizbonske pogodbe (prej trije stebri).
3. Pravo ES: Je obsegalo načela in pravila, ki so se nanašala na Evropsko skupnost (ES, nekdanja EGS). To so bila pravna pravila Pogodbe o ustanovitvi Evropske skupnosti (PES) in drugi pravni akti, ki so bili sprejeti na podlagi PES. Lizbonska pogodba je ES odpravila in jo nadomestila z EU.
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Zgodovina in perspektive evropskih integracij
II. Zgodovina in perspektive evropskih integracij Ideja o evropskem integriranju se je okrepila med drugo svetovno vojno z ciljem dolgoročne ohranitve miru in krepitve blaginje.
1. Ustanovitev Evropskih skupnosti: 1.1. ESPJ (1952) – Evropska skupnost za premog in jeklo Ustanovljena z Pariško pogodbo 1951 . Nastane na podlagi t.i. Schumanovega načrta in je namenjena kontroli premogovništva in jeklarstva (predvsem nemškega), ki je neločljivo povezano z vojaško industrijo. Članice so bile Nemčija, Francija, Italija in države Beneluxa . ESPJ je bila ustanovljena za dobo 50 let in tako nehala veljati leta 2002. Od takrat velja za premog in jeklo enak
režim, kot za vse drugo blago.
1.2. EGS (1958) – Evropska gospodarska skupnost Ustanovljena z Rimsko pogodbo 1957. Načrte za EGS je izdelal posebni odbor pod vodstvom Henrija Spaaka (belgijski zunanji minister). Je vse-sektorska organizacija. -
Temeljni cilji EGS: Skupni trg (prosti pretok blaga, storitev, kapitala in oseb) v treh fazah po 4 leta do 1970, približevanje gospodarskih politik DČ, dvig blaginje, itd.
-
Temeljni instrumenti za uresničitev ciljev EGS: odprava carin in količinskih omejitev med DČ, skup na carinska tarifa do tretjih držav, odprava ovir za prosti pretok blaga, storitev, kapitala in oseb, varovanje konkurence, približevanje prava DČ.
1.3. ESAE (1958) – Evropska skupnost za atomsko energijo Ustanovljena z Rimsko pogodbo 1957. Je sektorska organizacija in se nanaša na atomsko energijo za miroljubne namene.
1.4. Institucionalna struktura: Vse institucije integracij so bile leta 1967 združene s t.i. spojitveno pogodbo (merger treaty). -
Svet
-
Komisija
-
Skupščina
-
Sodišče
Skupno od leta 1967 (prej pa je imela vsaka integracija svojo Komisijo in Svet). Skupno že od začetka.
Tako EGS kot ESAE sta bili sklenjeni za nedoločen čas, vendar danes obstaja samo še ESAE, EGS pa je po Lizbonski pogodbi nadomestila EU.
2. Obdobje po ustanovitvi evropskih skupnosti: -
Širitev članstva : VB (dvakrat veto Francije), IRL, DAN, GR, ŠPA, POR.
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Zgodovina in perspektive evropskih integracij
4. PEU – Pogodba o ustanovitvi Evropske unije (1993): Tudi Maastrichtska pogodba. Sprememba PEGS in določila o sodelovanju med državami članicami na področju skupne zunanje i n varnostne politike (SVZP) ter na področju pravosodja in notranjih zadev. -
EGS se črta pridevnik gospodarska, zaradi širitve na skupno socialno, okoljsko in regionalno politiko.
-
Ustanovitev EU, s tristebrno strukturo: o
1. Steber: ES + ESAE + ESPJ(do 2002):
o n l a n o o v i a c r a p n d a N
Ustanovitev EMU in ECB.
Načelo subsidiarnosti (EU sprejema ukrepe, ki niso v njeni izključni pristojnosti samo, če države same ne morejo doseči ciljev teh ukrepov. Uporaba direktiv ima prednost pred uporabo uredb.
Uvedba t.i. državljanstva EU (pravica do sodelovanja na občinskih volitvah in volitvah v EP v državi stalnega prebivališča, pravica do diplomatske zaščite s strani katerekoli
članice, pravica do peticije v EP, itd.)
Krepitev vloge Evropskega parlamenta.
Medvladno
o
Drugi steber: SVZP (Skupna zunanja in varnostna politika).
sodelo sodelovan van e
o
Tretji steber: sodelovanje na področju pravosodja in notranjih zadev.
5. Pogodba iz Amsterdama (1999): -
Širitev Unije; Demokracija in temeljne pravice (nove članice morajo podpisati EKČP);
-
Krepitev socialnih pravic;
-
Institucionalne spremembe (krepitev EP, krepitev položaja predsednika EK, širitev področij o katerih
-
Svet odloča s kvalificirano večino);
6. Pogodba iz Nice (2003): Rešitev institucionalnih vprašanj, v kontekstu širitve na »vzhod«, ki jih ni rešila amsterdamska pogodba. Sestava Komisije (iz vsake države članice po en komisar), Odločanje v Svetu (razdelitev glasov, ki pripadajo posamezni državi članici pri večinskem odločanju), Razdelitev sedežev v Evropskem parlamentu (732 sedežev). Do sprememb pride v vseh stebrih, najmanj pa v tretjem.
7. PUE - Pogodba o ustavi za Evropo Ev ropo (propadla): Podpisana leta 2004 in potem zavrnjena na referendumih v Franciji in Nizozemskem (2005), posledično pa ustavljeni ratifikacijski postopki tudi v drugih državah članicah. -
Politična kriza od 2005 do 2007 (obdobje premisleka).
-
2007 obnovitev pobude za reformo (Angela Merkel).
8. Lizbonska pogodba (sprejeta 2007, začetek veljave 2009):
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Zgodovina in perspektive evropskih integracij
-
Poudarjeno varstvo človekovih pravic in temeljnih svoboščin:
-
Listina EU o temeljnih pravicah je izenačena z PEU in PDEU, Demokratične vrednote, o Solidarnost med državami članicami (v primeru naravnih nesreč, itd.) . o Boljša prepoznavnost EU: o
o
Nova funkcija visokega predstavnika EU za zunanje zadeve in varnostno politiko,
o
Evropska služba za zunanje politično delovanje (podpora za visokega predstavnika),
o
Pravna osebnost EU.
Od Lizbonske pogodbe naprej, obstajata samo še EU in ESAE. Evropska skupnost (ES, prej EGS) E GS) je nadomeščena
z EU, ESPJ pa je prenehala veljati že leta 2002.
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Temeljne značilnosti EU in ESAE
III. Temeljne značilnosti EU in ESAE EU in ESAE sta edini integraciji, int egraciji, ki še danes obstajata (od vseh naštetih v prejšnjem poglavju). Med seboj sta tesno prepleteni, tako v dejanskem kot v pravnem smislu. Imata tudi skupno institucionalno zgradbo, v praksi pa je EU veliko pomembnejša od ESAE .
1. Zgradba EU in ESAE: EU in ESAE imata enotno institucionalno zgradbo, ki jo sestavlja sedem uradnih institucij: Evropski parlament,
Evropski svet, Svet, Evropska komisija, Sodišče EU, Evropska centralna banka in Računsko sodišče. Združene so samo institucije, ne pa tudi skupnosti.
2. Področje urejanja: EU je splošna integracija, integracija , ki se nanaša na celotno gospodarstvo držav članic in tudi na vse več negospodarskih
področij (sociala, izobraževanje, kultura, itd.). ESAE je sektorska integracija, ki se nanaša zgolj na ozko področje atomske energije. ESAE je v razmerju do EU posebna ureditev ( lex specialis), specialis), zato ima v primeru, da neko področje ureja tako
določilo EU kot določilo ESAE prednost določilo ESAE , kot bolj specialno pred splošnim.
3. Pravna osebnost EU (in ESAE): -
EU in ESAE sta pravni osebi in imata v vseh državah članicah najširšo pravno in poslovno sposobnost . -
EU je pravno osebnost dobila šele z Lizbonsko pogodbo . o
Prej je lahko delovala samo preko institucij ES, ki je imela pravno osebnost.
o
Z pridobitvijo pravne osebnosti, ima EU pravico sklepati mednarodne sporazume z
-
drugimi mednarodnimi organizacijami in posameznimi državami, vendar samo na področjih, kjer ima za to pristojnost. EU in ESAE imata tudi procesno sposobnost, torej lahko tožita ali sta toženi.
-
Pravno osebnost imata tudi Evropska centralna banka in Evropska investicijska banka.
4. Pravo EU in ESAE (v razmerju do mednarodnega prava): EU in ESAE sta mednarodni organizaciji sui generis (svoje vrste) in vrste) in se po svoji vsebini močno razlikujeta od drugih mednarodnih organizacij. Razlike se kažejo predvsem pri ciljih in sredstvih za njihovo doseganje ter v institucionalni zgradbi.
4.1. Cilji in sredstva: -
Mednarodne organizacije: Za njih je značilno sektorsko (npr. STO, MDS) oziroma splošno (npr. OECD)
sodelovanje med državami članicami. -
EU: Temeljni cilj je gospodarska integracija držav članic (in ne zgolj sodelovanje). Ta cilj se je uresničil s
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Institucije
IV. Institucije 1. Evropski parlament (EP): -
-
Uradni sedež – sedež – Strasbourg (redna zasedanja); o
Bruselj (dodatna zasedanja in zasedanja odborov);
o
Luksemburg (generalni sekretariat EP in njegove službe);
Voljen organ – splošne, neposredne in tajne volitve v državah članicah za dobo 5 let;
-
Aktivna in pasivna volilna pravica sta stvar nacionalnih zakonodaj držav članic; IZJEMA: vsak državljan lahko v državi stalnega prebivališča voli in je voljen v EP pod enakimi pogoji kakor državljani te države, tudi če nima državljanstva. »Evroposlanci« – so predstavniki državljanov EU. Sedeži v EP so razporejeni po političnih strankah – »Evropske stranke« o EP ima 750+1 članov (predsednik EP nima glasovalne pravice); o Nobena država nima manj kot 6 sedežev in nobena manj kot 96 sedežev. o EP odloča z večino oddanih glasov (razen če PEU ali PDEU določata drugače);
-
Naloge EP:
o
-
o
Nadzor nad delom Komisije:
EP na zahtevo četrtine poslancev ustanovi preiskovalni odbor, ki preveri domnevne kršitve ali nepravilnosti pri izvajanju zakonodaje EU pri delu Komisije. Če EP z delovanjem Komisije ni zadovoljen, jo lahko prek glasovanja o nezaupnici prisili k odstopu (z večino vseh članov in 2/3 večino navzočih). EP postavlja pisna ali ustna vprašanja Komisiji, ta pa na vprašanja mora odgovoriti.
EP potrjuje predsednika Komisije (ki ga predlaga Evropski svet).
o
Proračunske pristojnosti: EP skupaj s Svetom sprejema proračun.
o
Zakonodajne pristojnosti: (skupaj s Svetom).
2. Evropski svet (ES): Ne smemo zamenjevati s Svetom EU ali s Svetom Evrope
1
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Institucije
COREPER: je okrajšava za Odbor stalnih predstavnikov, ki Svetu pomaga pri opravljanju njegove dejavnosti. Coreper sestavljata dve telesi:
-
o
Coreper I: namestniki ambasadorjev,
o
Coreper II: ambasadorji držav članic.
Temeljne naloge Sveta so: o
Usklajevanje splošnih ekonomskih politik držav članic,
o
Sprejemanje odločitev in zakonodaje (je najpomembnejši zakonodajni organ EU, odločitve pa navadno sprejema skupaj z Evropskim parlamentom),
o
Sprejemanje proračuna (skupaj z Evropskim parlamentom),
o
Sklepanje mednarodnih pogodb,
Sprejemanje odločitev v zvezi z izvajanjem SZVP (po smernicah Evropskega sveta). Svet pristojnost za izvrševanje svojih sklepov pogosto delegira Komisiji, predvsem zato, ker se Svet ne sestaja stalno in svojih odločitev ne more sam izvrševati. Odločanje v Svetu: Kvalificirana večina (če PEU in PDEU ne določata drugače ); o Postopoma se povečuje število področij o katerih Svet odloča s kvalificirano večino, kar je pomembno za hitrejši dosežek ciljev EU. Po Pogodbi iz Nice (velja do 30.10.2014): Kvalificirana večina je dosežena, če se s predlogom strinja večina držav in ima podporo najmanj 255 glasov. Poleg tega lahko vsaka država zahteva potrditev, da glasovi za predlog predstavljajo najmanj 62% o
-
prebivalstva EU.
Po Lizbonski pogodbi (od 1. 11.2014): Kvalificirana večina je dosežena, če se s predlogom strinja 55% držav (najmanj 15) in predstavljajo najmanj 65% prebivalstva
EU. o o
Navadna večina: Politično najmanj sporna vprašanja (npr. poslovnik); Soglasnost: Zahteva se za najbolj temeljne odločitve, kot so sprejem ukrepov za boj proti diskriminaciji, sprejem novih članic, razširitev pristojnosti .
3.1. Visoki predstavnik za zunanje zadeve in varnostno politiko:
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Institucije
Odgovornost: Komisija za svojo politiko odgovarja Evropskemu parlamentu, ki jo lahko kot celoto
odpokliče tako, da ji izglasuje nezaupnico (to se do danes še ni zgodilo). Odpoklic Odpokli c posameznega komisarja ni možen, ker Komisija nastopa kot kolektivni organ. Razrešitev komisarja: komisarja: če ne izpolnjuje pogojev za opravljanje svojih dolžnosti ali zaradi hujših o kršitev. Razreši ga Sodišče, na predlog Sveta ali Komisije. o
-
Odstop komisarja lahko zahteva tudi predsednik Komisije.
Komisija ima svoj uradniški aparat, aparat, ki ga sestavljajo kabineti posameznih komisarjev, splošne službe
(npr. pravna služba) in več kot dvajset generalnih direktoratov, ki so primerljivi z ministrstvi v nacionalnih državah. -
Naloge Komisije: o
Nadzor nad spoštovanjem prava EU (pred Sodiščem EU lahko sproži postopek proti DČ ),
o
Pobuda za sprejemanje aktov (EP in Svet sprejemata akte na podlagi predloga, ki ga da EK),
Priporočila in mnenja (vsako leto objavi splošno poročilo o dejavnostih EU in številna specifična priporočila, ki pa so neobvezujoča), o Lastne pristojnosti (pogajanje s tretjimi državami in mednarodnimi organizacijami), Delegirane pristojnosti (pristojnosti, ki jih podeli Svet in izdaja izvršilne predpise ), o Izvrševanje proračuna (skrbi za izvrševanje proračuna). o Komisijo imenujemo »srce ali motor EU« , pa tudi »pes čuvaj Pogodb«. o
5. Zakonodajni postopki: Zakonodajna pristojnost je porazdeljena med Svet, Evropski parlament in Komisijo. -
Institucionalno ravnovesje (nobena institucija ne more sama sprejeti odločitve). o
Evropski parlament in Svet – zakonodajna funkcija;
o
Komisija – dajanje zakonodajnih predlogov.
Večina odločitev se sprejema v rednem zakonodajnem postopku, vse ostale pa v posebnih zakonodajnih postopkih.
5.1. Redni zakonodajni postopek: Redni zakonodajni postopek se uporablja za sprejem približno 85% zakonodaje. Potek postopka:
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Institucije
5.3. Klavzula passerelle: V določenih primerih PDEU omogoča spremembo p osebnega zakonodajnega postopka v redni zakonodajni postopek ali pa spremembo načina glasovanja v Svetu (namesto soglasja večino). Ta institu t se imenuje poenostavljeni revizijski postopek ali klavzula passerelle.
5.4. Začasna prekinitev zakonodajnega postopka: Začasna prekinitev je novost Lizbonske pogodbe, izvede pa jo Evropski svet. PDEU razlikuje dve obliki začasne prekinitve: -
Na področju usklajevanja nacionalnih sistemov socialne varnosti, lahko član Sveta zahteva da se zadeva predloži Evropskemu svetu. Po razpravi Evropski svet vrne osnutek Svetu ali pa od Komisije zahteva nov predlog.
-
Ukrepi za pospeševanje sodnega sodelovanja v kazenskih zade vah, opredeljevanje kaznivih dejanj in kazni.
5.5. Vloga nacionalnih parlamentov pri sprejemanju zakonodaje EU: Nacionalni parlamenti imajo možnost, da se izrečejo o skladnosti predlogov z načelom subsidiarnosti (tj. da EU ni pristojna za sprejem akta). Če tretjina vseh parlamentov meni, da predlog ni v skladu z načelom subsidiarnosti, mora Komisija o predlogu vnovič razmisliti , ter pri predlogu vztrajati ali od njega odstopiti.
6. Sodišče EU: Sodišče EU = Sodišče + Splošno sodišče + specializirana sodišča. Sedež Sodišča EU je v Luksemburgu. Sodišče in Splošno sodišče imata vsako po 27 sodnikov (vsaka članica ima po enega sodnika v vsakem). Sodnike določijo vlade držav članic sporazumno, za dobo šestih let z možnostjo ponovnega imenovanja. Pri Sodišču deluje tudi osem generalnih pravobranilcev, ki ne sprejemajo odločitev, ampak pomagajo Sodišču s pripravo neodvisnih pravnih mnenj (sklepni predlogi) v posameznih pomembnejših zadevah. Splošno sodišče nima generalnih pravobranilcev, je pa mogoče da se v posamezni zadevi iz vrst sodnikov tega sodišča imenuje generalni pravobranilec. Specializirana sodišča so pristojna za odločanje na prvi stopnji o nekaterih vrstah tožb in postopkov sproženih
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Institucije
7. Računsko sodišče: Računsko sodišče ima sedež v Luksemburgu in ga sestavlja 27 članov, ki jih na predlog držav članic, po posvetovanju z EP, s kvalificirano večino imenuje Svet. Pri opravljanju svojih nalog so člani Računskega sodišča popolnoma neodvisni.
Najpomembnejša naloga Računskega sodišča je nadzor nad zakonitostjo porabe proračunskih sred stev. Pri izvrševanju svojih nalog izvaja revizijo v institucijah in državah članicah.
8. Evropska centralna banka: Evropska centralna banka določa monetarno politiko EU, katere poglavitni cilj je stabilnost cen.
9. Drugi organi in agencije: Poleg uradnih institucij ima EU še vrsto organov in agencij .
9.1. Organi: -
ECOSOC (Ekonomsko-socialni odbor): je svetovalno telo, ki pomaga Svetu in Komisiji. Predstavlja
najpomembnejše interesne skupine (delodajalci, delojemalci in drugi predstavniki civilne družbe ). Ima 344 članov (SLO 7), ki pa morajo naloge opravljati v splošnem interesu EU in so popolnoma neodvisni. -
Odbor regij: je posvetovalno telo, ki pomaga Svetu in Komisiji. Sestavljajo ga predstavniki regij in lokalnih skupnosti držav članic. Odbor regij sodeluje v zakonod ajnih postopkih in kadar se sprejemajo
-
odločitve, ki vplivajo na posamezne regije, mora biti pridobljeno njegovo mnenje. Ima 344 članov. EIB (Evropska investicijska banka) : pomaga pri uresničevanju ciljev EU tako, da financira investicijske projekte. Financira se s prispevki držav članic in krediti (za najemanje katerih ima zelo ugodne pogoje). EIB nikoli ne zagotovi vseh sredstev, ampak ponuja samo sofinanciranje.
-
Varuh človekovih pravic (ombudsman) : sprejema pritožbe državljanov EU ali fizičnih ali pravni h oseb s prebivališčem v EU, glede nepravilnosti pri dejavnosti institucij ali organov EU. Nima pristojnosti za nacionalne zadeve in za nadzor Sodišča EU. Imenovan je po vsakih volitvah v EP, za mandatno dobo EP. Lahko samo nadzira in opozarja na nepravilnosti, nima pa nobenih drugih sredstev za posredovanje
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Pravni akti institucij EU
V. Pravni akti institucij EU Institucionalno pravo EU: so primarni in sekundarni predpisi, ki se nanašajo na institucionalno zgradbo EU (sestava, delovanje, pristojnosti institucij).
Materialno pravo EU: so primarna in sekundarna pravna pravila, ki urejajo cilje, naloge in politike EU. Konstitucionalno pravo EU: najbolj temeljna določila ustanovnih pogodb, določila o temeljnih pravicah in
prepovedi diskriminacije in t.i. štiri svoboščine (prosti pretok blaga, storitev, kapitala in oseb).
1. Primarno pravo EU: Viri primarnega prava EU: -
Veljavne pogodbe (ustanovne pogodbe, pogodbe o spremembah in dopolnitvah ustanovnih pogodb, pristopne pogodbe); Temeljni sta PEU in PDEU!
-
Splošna pravna načela (ki so skupna pravnim redom držav članic);
-
Temeljne pravice (Listina EU o temeljnih pravicah).
Viri primarnega prava EU so vrhovni (konstitucionalni), določajo podlago (okvir) za delovanje in odločanje
institucij ter drugih teles in so načeloma sprejeti neposredno s strani DČ .
1.1. Temeljne pravice kot primarni vir prava EU:
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Pravni akti institucij EU
2.2. Avtonomni pravni viri institucij EU: 2.2. Avtonomni Če PEU in PDEU ne določata vrste akta, ki naj se sprejme, se institucije o tem odločijo v vsakem primeru posebej. Pravni akti morajo biti dosledno obrazloženi (jasno morajo biti opredeljeni pravni in dejanski razlogi za sprejem akta in ki so potrebni za njegovo razumevanje.
Večina pravnih aktov se objavlja v Uradnem listu EU: Zakonodajni akti, se objavijo v Uradnem listu EU in začnejo veljati dvajseti dan po objavi (oziroma z dnem, ki je v njih naveden). -
Nezakonodani akti: o
Akti, ki so naslovljeni na vse države članice, se objavijo v Uradnem listu EU in začnejo veljati dvajseti dan po objavi (oziroma z dnem, ki je v njih naveden).
o
O aktih, v katerih je določeno na koga so naslovljen i, se obvesti naslovnike, učinkovati pa
začnejo s tem obvestilom. Lizbonska pogodba je uvedla delitev aktov EU na zakonodajne in nezakonodajne. -
Zakonodajni akti so tisti, ki so sprejeti v rednem ali posebnem zakonodajnem postopku.
-
Nezakonodajni akti se uporabljajo v naslednjih primerih: o
PEU in PDEU se izrecno sklicujeta nanje,
o
Delegirani akti (Komisija ima pooblastilo za sprejem aktov, ki spreminjajo in dopolnjujejo nebistvene dele zakonodajnih aktov),
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©Dorian Gjerkeš -
Pravni akti institucij EU
Implementacija: včasih se izvede s sprejemom novega zakona, pogosto pa tudi s spremembo veljavne zakonodaje. Možna je tudi implementacija s podzakonskim aktom (npr. pravilnik) ali celo predpisi socialnih partnerjev (npr. kolektivne pogodbe).
Države morajo izpeljati implementacijo v predpisanem roku – implementacijski rok , ki je navadno dve leti. Če države roka ne spoštujejo lahko Komisija pred Sodiščem EU, sproži postopek zaradi kršenja prava EU. Posledice implementacije so, da države po načelu primarnosti izgubijo pristojnost sprejemanja zakonodaje na področju, ki ga ureja direktiva. o
-
Pred nacionalnimi sodišči neposredno sklicevanje na direktive načeloma ni mogoče , ampak je potrebno v primeru neskladnosti nacionalne zakonodaje z direktivo, nacionalno zakonodajo uskladiti z direktivo . Šele če nacionalni predpisi niso pravočasno ali pravilno usklajeni z direktivo , se lahko posameznik sklicuje neposredno
na direktivo.
2.2.3. Sklep: Sklep je posamični pravni akt institucije EU, ki se nanaša na posamezni primer. Je v celoti zavezujoč, zavezujoč , če določa
naslovljence, pa je zavezujoč samo zanje. Sklep lahko priznava neko ugodnost ali pa nalaga neko obveznost. Na sklep se lahko sklicuje tisti, na katerega je naslovljen . Če je naslovljen na državo članico, se lahko posamezniki nanj sklicujejo, če to izhaja iz vsebine in namena sklepa. 2.2.4. Soft law ali akti sui generis:
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Narava prava EU
VI. Narava prava EU Pravo EU izvira iz »klasičnega« mednarodnega prava , vendar se od njega pomembno razlikuje. Pravo EU je mednarodno pravo sui generis, ki ima nadnacionalno (supranacionalno) naravo.
Razmerje med pravom EU in nacionalnim pravom določajo naslednja načela, ki so kreacija Sodišča EU.
1. Načelo avtonomnosti: Pravo EU nastaja, velja, se razlaga in uporablja izključno v skladu s pravili samega prava EU, neodvisno od mednarodnega prava ali nacionalnega prava držav članic. Neodvisnost od prava držav članic: Pravo EU samo določi način , kako naj pravo EU preide, se uporablja in
učinkuje v nacionalnem pravnem sistemu in v kakšnem razmerju je z nacionalnim pravom. Država, ki želi postati članica EU, mora sprejeti ta »pravila igre« (glej 3.a člen URS – URS – t.i. evropski člen). Neodvisnost od mednarodnega prava: V primeru sporov med državami članicami glede vprašanj urejenih s pravom EU, se ne smejo uporabljati mehanizmi mednarodnega prava, ampak mehanizmi prava EU.
2. Načelo primarnosti: Pravo EU ima v primeru neskladja oziroma kolizije prednost pred nacionalnimi predpisi , tudi pred nacionalnimi ustavami. Zato mora v primeru neskladja katerikoli nacionalni organ uporabiti pravilo prava EU in prezreti pravilo iz nacionalnega prava (tudi ustavo).
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Narava prava EU
3.2.3. Direktive: -
-
Vertikalni neposredni učinek: samo tiste direktive, ki državam jasno in nepogojno nalagajo obveznosti in šele po poteku implementacijskega roka. Vertikalni neposredni učinek poteka le v razmerju posameznika do države, ne pa tudi o obratno. Država se ne more sklicevati na direktivo, ki je ni pravočasno implementirala. Horizontalni neposredni učinek: direktive ga nimajo, saj ne morejo nalagati o bveznosti posameznikom. Vendar Sodišče EU dopušča določene izjeme : Široka razlaga države: države: npr. država kot delodajalec ali pogodbena stranka; o Delno javna podjetja: možno je sklicevanje na direktive v sporih z pravnimi osebami, ki so o deloma v javni lasti in pod nadzorom države opravljajo javne službe. Neposredni horizontalni učinek imajo tudi direktive, ki konkretizirajo splošna pravna načela o (npr. prepoved diskriminacije na podlagi starosti).
4. Lojalna razlaga: Dopustno je tudi sklicevanje na direktive po lojalni razlagi (interpretatio (interpretatio Europea). Pri tem gre za posredni
učinek (ne pride do neuporabe nacionalnih pr edpisov). Nacionalna sodišča (in drugi oblastni organi) morajo nacionalne predpise , ki so bili sprejeti na podlagi direktiv (in tudi drugo nacionalno pravo) razlagati v »duhu direktive«. Z lojalno razlago pa ne sme priti do vzpostavitve kazenske odgovornosti, niti se od sodnikov ne zahteva razlaga
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Pravno varstvo
VII. Pravno varstvo Sodišče EU zagotavlja spoštovanje prava pri razlagi in uporabi PEU in PDEU ter na splošno prava EU. PDEU predvideva več vrst postopkov, postopkov , od katerih so najpomembnejši: -
Tožba zaradi kršitve prava EU, Ničnostna tožba, Neposredni postopki pred Sodiščem EU. Tožba zaradi nedelovanja, Odškodninska tožba, Posredni postopek, pri katerem sodelujejo Postopek v zvezi s predhodnimi vprašanji. nacionalna sodišča in Sodišče EU.
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©Dorian Gjerkeš Na prvi stopnji
tožbo vložijo pri Splošnem sodišču.
Pravno varstvo
Neprivilegirani tožniki: Posamezniki (fizične in pravne osebe). Tožbo lahko vložijo samo če gre za: o
Akt, ki je naslovljen na njih same;
Akt, ki jih neposredno (spreminjajo njihov pravni položaj) in posamično (jih
individualizirajo in karakterizirajo; kot bi bili posamično določeni) zadeva jo;
Predpis, ki jih neposredno zadeva in ne potrebuje izvedbenih predpisov (LP).
1.2.2. Tožbeni razlogi:
Ničnostna tožba se lahko vloži zaradi: -
Nepristojnosti,
-
Bistvene kršitve postopka,
Najpomembnejši tožbeni razlog, ki zajema tudi preostale tri. Pod pojmom uporaba PEU in PDEU, je treba razumeti sekundarno
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Pravno varstvo
1.5.1. Postopek: Razlaga in veljavnost prava EU : Sodišče se ne spušča v na cionalno pravo držav članic. -
Sodelovanje med Sodiščem in nacionalnimi sodišči : Razmerje ni hierarhično, ampak gre za delitev pristojnosti, pri katerem da Sodišče zgolj splošen in abstrakten odgovor, nacionalno sodišče pa odloči o sporu.
-
Dejansko stanje: čeprav Sodišče ne odloča v konkretnih primerih, pa mora poznati dejansko stanje
posameznega primera, da lahko odgovori na predhodno vprašanje. Nepravilna in nejasna vprašanja: vprašanja : Predhodno vprašanje mora biti pravilno in dovolj jasno postavljeno, drugače ga lahko Sodišče zavrne. Sodišče v državi članici : predhodno vprašanje lahko postavi katerokoli sodišče v državi članici.
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Pravno varstvo
2. Novosti na področju sodnega varstva po Lizbonski pogodbi:
-
EP soodloča o ustanovitvi specializiranih sodišč. Strožji sistem sankcij zaradi kršitev prava EU. Širši krog aktov, ki se lahko napadajo z ničnostno tožbo. Aktivna legitimacija odbora regij za vložitev ničnostne tožbe. Milejši pogoji za aktivno legitimacijo posameznikov pri ničnostni tožbi. Tožba zaradi kršitve načela subsidiarnosti.
-
Odbor (sedmih) modrih kot posvetovalno telo (255 PDEU).
-
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Štiri temeljne ekonomske svoboščine
VIII. Štiri temeljne ekonomske svoboščine 1. Notranji trg: Notranji trg, je območje brez notranjih meja, na katerem je v skladu z določbami PDEU zagotovljen prost pretok blaga, oseb, storitev in kapitala.
2. Cilji in vrste ekonomskih integracij: Temeljni cilj ekonomskih integracij je čim bolj svobodna me njava blaga in storitev med državami članicami . Ta cilj se dosega s postopnim zniževanjem carin in drugih omejitev v trgovini med državami članicami.
2.1. Območje proste trgovine:
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3.2. Neposredna izvršljivost:
Štiri temeljne ekonomske svoboščine
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Štiri temeljne ekonomske svoboščine
4.2. Prepoved diskriminatornih diskriminatornih notranjih davščin (110 PDEU):
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Uporaba domačega standarda pri javnih naročilih:
Štiri temeljne ekonomske svoboščine
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Varstvo potrošnikov,
Štiri temeljne ekonomske svoboščine o
Varstvo socialno-kulturnih
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5.1. Gibanje ekonomsko aktivnih oseb:
Štiri temeljne ekonomske svoboščine
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