Abstract
Switzerland’s legal relationship with the European Union (EU) represents a unique model. Attractive as it may seem to certain other states, it is also a model under political pressure, both from the inside and the outside. This concerns notably the debate in Switzerland around the issue of migration from the EU to Switzerland and the demand of the EU for a renewed institutional framework for certain market agreements with the EU that has led to negotiations on this matter. Whilst Switzerland is seeking special solutions in both respects, the EU’s rhetoric is increasingly emphasising the need for homogeneity in the internal market. The developments around Brexit have not made matters simpler and are themselves influenced by the situation in relation to Switzerland.
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Notes
- 1.
For brief introductions to the EU–Swiss bilateral law in the English language, see Pirker (2017) and Oesch (2018). A fact sheet of the Swiss Federal Government providing an overview on the Swiss foreign European policy is available in English, see https://www.eda.admin.ch/dam/dea/en/documents/fs/00-FS-Europapol-lang_en.pdf (accessed 9 March 2020), as well as another fact sheet on the development of the legal relationship with the Union, see https://www.eda.admin.ch/dam/dea/en/documents/fs/FS-Entwicklung-Beziehungen-CH-EU_en.pdf (accessed 9 March 2020). General information provided by the European Commission’ External Action Service (EEAS) is also available in English, see http://eeas.europa.eu/switzerland/index_en.htm (accessed 9 March 2020). Textbooks providing a more detailed overview on the EU–Swiss Agreements tend to be written in the German language; see e.g. Oesch (2019), with further references.
- 2.
Agreement of 21 June 1999 between the European Community and its Member States, of the one part, and the Swiss Confederation, of the other, on the free movement of persons, [2002] O.J. L 114/6 (for Switzerland: SR 0.142.112.681; note: different from the O.J., the SR provides for consolidated versions of the agreements in the country’s three official languages German, French and Italian). With the following enlargement protocols: extension to the Czech Republic, Estonia, Cyprus, Latvia, Lithuania, Hungary, Malta, Poland, Slovenia and the Slovak Republic (Enlargement Protocol 1): [2006] O.J. L 89/30, AS 2006 995; extension to Bulgaria and Romania (Enlargement Protocol 2): [2009] O.J. L 124/53, AS 2009 2491; extension to Croatia (Enlargement Protocol 3): [2017] O.J. L 31/3, AS 2016 5261.
- 3.
Agreement between the European Union, the European Community and the Swiss Confederation on the Swiss Confederation’s association with the implementation, application and development of the Schengen acquis; [2008] O.J. L 53/52 (for Switzerland: SR 0.362.31); as extended to Liechtenstein, [2011] O.J. L 160/3 (for Switzerland: SR 0.362.311).
- 4.
Agreement between the European Community and the Swiss Confederation concerning the criteria and mechanisms for establishing the State responsible for examining a request for asylum lodged in a Member State or in Switzerland, [2008] O.J. L 53/5 (for Switzerland: SR 0.142.392.68); as extended to Liechtenstein, [2011] O.J. L 160/139 (for Switzerland: SR 0.142.395.141).
- 5.
Agreement for scientific and technological cooperation between the European Union and European Atomic Energy Community and the Swiss Confederation associating the Swiss Confederation to Horizon 2020—the Framework Programme for Research and Innovation and the Research and Training Programme of the European Atomic Energy Community complementing Horizon 2020, and regulating the Swiss Confederation’s participation in the ITER activities carried out by Fusion for Energy, for the EU O.J. 2014 L 370/3, (for Switzerland SR 0.424.11).
- 6.
UK Government, Cabinet Office, Alternatives to Membership: possible models for the United Kingdom outside the European Union (March 2016), https://www.gov.uk/government/publications/alternatives-to-membership-possible-models-for-the-united-kingdom-outside-the-european-union (accessed 9 March 2020); before that e.g. Dhingra and Sampson (2016) and Piris (2016).
- 7.
Prime Minister Theresa May in her “Lancaster House speech” of 17 January 2017: “We are leaving the European Union, but we are not leaving Europe. And that is why we seek a new and equal partnership – between an independent, self-governing, Global Britain and our friends and allies in the EU. Not partial membership of the European Union, associate membership of the European Union, or anything that leaves us half-in, half-out. We do not seek to adopt a model already enjoyed by other countries.”; The government’s negotiating objectives for exiting the EU: PM speech, https://www.gov.uk/government/speeches/the-governments-negotiating-objectives-for-exiting-the-eu-pm-speech (accessed 9 March 2020).
- 8.
Documents on file with the author. The think tank’s website is www.groupe-suisse-europe.ch (accessed 9 March 2020). See now also Müller (2020), p. 36.
- 9.
For completeness, it should be added that the European Parliament has demanded a renegotiation of several EU-Swiss agreements in a wholly different context, namely that of money laundering, tax avoidance and tax evasion. Para. 150 of the Parliament’s Recommendation following the inquiry on money laundering, tax avoidance and tax evasion of 13 December 2017 reads: “Stresses that the EU should renegotiate its trade, economic and other relevant bilateral agreements with Switzerland to bring them into line with EU anti-tax fraud policy, anti-money laundering legislation and legislation on the financing of terrorism, so as to eliminate serious flaws in the Swiss supervisory system which enable a policy of internal banking secrecy to continue, the creation of offshore structures worldwide, tax fraud, tax evasion not constituting a criminal offence, weak supervision, the inadequate self-regulation of obliged entities, and aggressive prosecution and intimidation of whistle-blowers[.]”; http://www.europarl.europa.eu/sides/getDoc.do?pubRef=-%2f%2fEP%2f%2fTEXT%2bTA%2bP8-TA-2017-0491%2b0%2bDOC%2bXML%2bV0%2f%2fEN&language=EN (accessed 9 March 2020).
- 10.
See above, footnote 2.
- 11.
Agreement between the European Community and the Swiss Confederation on air transport, [2002] O.J. L 114/73 (for Switzerland: SR 0.748.127.192.68).
- 12.
Agreement between the European Community and the Swiss Confederation on the Carriage of Goods and Passengers by Rail and Road, [2002] O.J. L 114/91 (for Switzerland: SR 0.740.72).
- 13.
Agreement between the European Community and the Swiss Confederation on mutual recognition in relation to conformity assessment [2002] L 114/369 (for Switzerland: SR 0.946.526.81).
- 14.
Agreement between the European Community and the Swiss Confederation Agreement between the European Community and the Swiss Confederation on trade in agricultural products, [2002] O.J. L 114/132 (for Switzerland SR 0.916.026.81).
- 15.
Including notably the Agreement between the European Economic Community and the Swiss Confederation [1972] O.J. English Special Edition Series I Volume 1972 (31.12) L 300/191.
- 16.
Official French version of the draft text: https://www.eda.admin.ch/dam/dea/fr/documents/abkommen/Acccord-inst-Projet-de-texte_fr.pdf (accessed 9 March 2020).
- 17.
Official French version of the letter: https://www.eda.admin.ch/dam/dea/fr/documents/bericht_konsultationen_insta/20190607_Lettre-CF-President-Commission-europeenne_fr.pdf (accessed 9 March 2020).
- 18.
European Council conclusions on a homogeneous extended single market and EU relations with Non-EU Western European countries of 16 December 2014, https://www.consilium.europa.eu/uedocs/cms_data/docs/pressdata/en/er/146315.pdf (accessed 9 March 2020), para. 44: “A precondition for further developing a bilateral approach remains the establishment of a common institutional framework for existing and future agreements through which Switzerland participates in the EU’s internal market, in order to ensure homogeneity and legal certainty […].” This was confirmed in the Council conclusions on EU relations with the Swiss Confederation of 28 February 2017, http://www.consilium.europa.eu/en/press/press-releases/2017/02/28/conclusions-eu-swiss-confederation (accessed 9 March 2020), para. 5: “[T]he Council recalls that a precondition for further developing the sectoral approach remains the establishment of a common institutional framework for existing and future agreements through which Switzerland participates in the EU’s Single Market, in order to ensure homogeneity and legal certainty for citizens and businesses.”
- 19.
See the information by the Swiss Federal Government at https://www.eda.admin.ch/dea/en/home/verhandlungen-offene-themen/verhandlungen/strom-energie.html (accessed 9 March 2020).
- 20.
See European Council, Council conclusions on EU relations with the Swiss Confederation, 19 February 2019, point 9, https://www.consilium.europa.eu/en/press/press-releases/2019/02/19/council-conclusions-on-eu-relations-with-the-swiss-confederation/ (accessed 9 March 2020).
- 21.
See e.g. European Council conclusions on EU relations with EFTA countries of Brussels, 14 December 2010, https://eeas.europa.eu/sites/eeas/files/council_iceland.pdf (accessed 9 March 2020), para. 42 et seq., and notably para. 48.
- 22.
- 23.
For a, in the present writer’s view, timely warning against reviling the EEA see the former Swiss diplomat von Tscharner (2017).
- 24.
As expressed in many media reports and political debates. Quite often the debate is based on at least partially wrong assumptions, see e.g. Wengle (2017).
- 25.
This relates to the so-called Rütlischwur, an oath allegedly sworn in the thirteenth century on a meadow called Rütli in central Switzerland, by which three territories promised to support each other against the occupying forces (i.e. the Habsburgs, who—by the way—originally came from Switzerland).
- 26.
Agreement on the withdrawal of the United Kingdom of Great Britain and Northern Ireland from the European Union and the European Atomic Energy Community, O.J. 2020 L 29/7.
- 27.
Florence speech of Prime Minister May of 22 September 2017, https://www.gov.uk/government/speeches/pms-florence-speech-a-new-era-of-cooperation-and-partnership-between-the-uk-and-the-eu (accessed 9 March 2020).
- 28.
Enforcement and dispute resolution—a future partnership paper”, 23 August 2017, https://www.gov.uk/government/publications/enforcement-and-dispute-resolution-a-future-partnership-paper (accessed 9 March 2020), p. 2 (executive summary).
- 29.
Compare UK Government, The Future Relationship with the EU. The UK’s Approach to Negotiations, 27.2.2020, https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/868874/The_Future_Relationship_with_the_EU.pdf (accessed 9 March 2020), with European Council, Directives for the negotiation of a new partnership with the UK, 25.2.2020, https://www.consilium.europa.eu/media/42736/st05870-ad01re03-en20.pdf (accessed 9 March 2020).
- 30.
Regulation (EU) No 600/2014 of the European Parliament and of the Council of 15 May 2014 on markets in financial instruments and amending Regulation (EU) No 648/2012, [2014] O.J. L 173/84, and Directive 2014/65/EU of the European Parliament and of the Council of 15 May 2014 on markets in financial instruments and amending Directive 2002/92/EC and Directive 2011/61/EU, [2014] O.J. L 173/349.
- 31.
EU moves to recognise equivalence of US, Swiss stock exchanges before MIFID 2, https://www.reuters.com/article/eu-mifid-usa-swiss/eu-moves-to-recognise-equivalence-of-us-swiss-stock-exchanges-before-mifid-2-idUSL8N1NM2RV (accessed 9 March 2020).
- 32.
Commission Implementing Decision 2017/241 of 21 December 2017 on the equivalence of the legal and supervisory framework applicable to stock exchanges in Switzerland in accordance with Directive 2014/65/EU of the European Parliament and of the Council, [2017] O.J. L 344/52.
- 33.
Commission Implementing Decision (EU) 2018/2047 of 20 December 2018 on the equivalence of the legal and supervisory framework applicable to stock exchanges in Switzerland in accordance with Directive 2014/65/EU of the European Parliament and of the Council, [2018] O.J. L 327/77.
- 34.
See Thomas Cottier in the Swiss TV news show “10vor10” (21 December 2017). https://www.srf.ch/sendungen/10vor10/katalonien-knatsch-mit-der-eu-schoggi-goes-china (accessed 21 December 2017), who stated unequivocally that there is no breach, vs. Lorand Bartels and Christian Häberli, who think otherwise, as reported by the daily Tages-Anzeiger (28 December 2017) (accessed 9 March 2020).
- 35.
Regulation (EU) No 2016/679 of the European Parliament and of the Council of 27 April 2016 on the protection of natural persons with regard to the processing of personal data and on the free movement of such data, and repealing Directive 95/46/EC (General Data Protection Regulation) [2016] O.J. L 119/1.
- 36.
Regulation (EU) No 2017/745 the European Parliament and of the Council of 5 April 2014 on medical devices, amending Directive 2001/83/EC, Regulation (EC) No 178/2002 and Regulation (EC) No 1223/2009 and repealing Council Directives 90/385/EEC and 93/42/EEC [2017] O.J. L 117/1.
- 37.
Regulation (EU) 2020/561 of the European Parliament and of the Council of 23 April 2020 amending Regulation (EU) 2017/745 on medical devices, as regards the dates of application of certain of its provisions [2020] O.J. L 130/18.
- 38.
See the initiative’s website (in the German, French and Italian languages), under “Argumente”, including an illustrative picture; http://www.masseneinwanderung.ch/ (accessed 9 March 2020).
- 39.
“[C]ountries have got to be able to cope with all the pressures that can bring – on our schools, our hospitals and other public services. […] Net migration in the UK is running at well over 300,000 a year and that is not sustainable.”, BBC (9 December 2015).
- 40.
Although creative suggestions for an implementation in line with both the Federal Constitution and the PMPA were made by Epiney (2014).
- 41.
Übereinkommen zur Errichtung der Europäischen Freihandelsassoziation (EFTA), SR 0.632.31. Switzerland’s official languages are German, French and Italian (a fourth language, Romantsch, is a national language but not an official language). In this contribution, the German language version is used, in line with the present writer’s (Swiss) German native tongue, for official Swiss documents for which there is no English version.
- 42.
Vertrag zwischen der Schweiz und Liechtenstein über den Anschluss des Fürstentums Liechtenstein an das schweizerische Zollgebiet, SR 0.631.112.514.
- 43.
There are negotiations in the field of culture, see https://www.eda.admin.ch/dea/en/home/verhandlungen-offene-themen/verhandlungen/creative-europe.html (accessed 9 March 2020).
- 44.
Financial Times (9 February 2014) Swiss clash with EU foreshadows tensions if UK votes to leave.
- 45.
- 46.
Art. 14(2) FMPA provides: “In the event of serious economic or social difficulties, the Joint Committee shall meet, at the request of either Contracting Party, to examine appropriate measures to remedy the situation. The Joint Committee may decide what measures to take within 60 days of the date of the request. This period may be extended by the Joint Committee. The scope and duration of such measures shall not exceed that which is strictly necessary to remedy the situation. Preference shall be given to measures that least disrupt the working of this Agreement.”
- 47.
European Council conclusions on EU relations with the Swiss Confederation of 28 February 2017, http://www.consilium.europa.eu/en/press/press-releases/2017/02/28/conclusions-eu-swiss-confederation/?+conclusions+on+EU+relations+with+the+Swiss+Confederation (accessed 9 March 2020), para. 3.
- 48.
This is based on Cantonal guidelines relating to the cooperation of employers with the Cantonal Employment Office, see https://www.ge.ch/document/procedure-recrutement-au-sein-etat-geneve and https://www.ge.ch/document/procedure-recrutement-au-sein-institutions-droit-public-entites-subventionnees (both accessed 9 March 2020).
- 49.
The text of the new provision results from a popular initiative on the Cantonal level with the title “Prima i nostri” (“Ours First”). According to the new Art. 4(1) of the Cantonal Constitution: “Il Cantone provvede affinché […] sul mercato del lavoro venga privilegiato a pari qualifiche professionali chi vive sul suo territorio per rapporto a chi proviene dall’estero (attuazione del principio di preferenza agli Svizzeri).” Based on the political debate, it seems that what is meant is a preference system for residents, rather than Swiss nationals; see e.g. Botschaft über die Gewährleistung der geänderten Verfassungen der Kantone Thurgau, Tessin, Wallis und Genf, BBl 2017 5849, p. 5854. The Swiss Federal Parliament has found that it is possible to implement the new rules without infringing the FMPA (i.e. presumably, by refraining to give preference to Swiss citizens), see media report ‘Parlament sagt ja zu Inländervorrang in Tessiner Verfassung’, 4 December 2017, https://www.parlament.ch/de/services/news/Seiten/2017/20171204192527946194158159041_bsd200.aspx.
- 50.
Parliamentary question in the European Parliament by MEP Mara Bizotto, ‘Referendum in the Canton of Ticino to restrict cross-border worker numbers: urgent request for a Commission opinion’, 17 October 2017, see http://www.europarl.europa.eu/sides/getDoc.do?type=WQ&reference=E-2016-007792&language=EN (accessed 9 March 2020).
- 51.
RASA stands for “Raus aus der Sackgasse” or “Out of the dead end”.
- 52.
See for the text of the initiative https://www.svp.ch/news/artikel/medienmitteilungen/schluss-mit-der-personenfreizuegigkeit/ (accessed 9 March 2020).
- 53.
Directive 2004/38/EC of the European Parliament and of the Council of 29 April 2004 on the right of citizens of the Union and their family members to move and reside freely within the territory of the Member States amending Regulation (EEC) No 1612/68 and repealing Directives 64/221/EEC, 68/360/EEC, 72/194/EEC, 73/148/EEC, 75/34/EEC, 75/35/EEC, 90/364/EEC, 90/365/EEC and 93/96/EEC [2004] O.J. L 158/77.
- 54.
Annex to the Recommendation for a Council Decision supplementing the Council Decision of 22 May 2017 authorising the opening of negotiations with the United Kingdom of Great Britain and Northern Ireland for an agreement setting out the arrangements for its withdrawal from the European Union, COM(2017) 830 final, para. 9.
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Tobler, C. (2021). The EU-Swiss Sectoral Approach Under Pressure: Not Least Because of Brexit. In: Lorenzmeier, S., Petrov, R., Vedder, C. (eds) EU External Relations Law. Springer, Cham. https://doi.org/10.1007/978-3-030-62859-8_7
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