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EU Legislation on Driving Licences: Does It Accelerate or Slow Down the Free Movement of Persons?
Published online by Cambridge University Press: 06 March 2019
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Driving licences, understood as an official authorisation issued by a State permitting a person to drive power-driven vehicles, belongs to those kinds of legal documents that can potentially significantly facilitate and enhance the free movement of persons (EU citizens) between Member States. Provided that a driving licence is duly recognized by Member States other than the State issuing the licence, the holder of the licence can move to those other Member States using his/her individual means of transport, and is entitled to use power-driven vehicles there while pursuing a large number of occupations as an employed or self-employed person. Thus, a driving licence duly recognized by the host Member State enables its holder to move, work, or conduct an economic activity there more effectively and gives the holder some additional options in that regard. Moreover, the driving licence recognized by the host Member State may be used by its holder while there to prove his/her identity and nationality as a Union citizen, and, consequently, it may serve as an equivalent of a passport or identity card. This is important insofar as the requirement to hold those latter documents (or their equivalents) is a formal prerequisite under the relevant EU legislation for Union citizens exercising their rights to enter and to reside in other Member States. The practical importance of driving licences and of the legislation concerning those issues in the EU, especially in the context of free movement of persons, is additionally reinforced by the fact that a valid driving licence is held by an estimated 60% of the Union's population, which means 300 million citizens. The EU and national legislation on driving licences has an undisputed direct impact on their lives.
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References
1 As the Court of Justice has put it: “In view of the importance of individual means of transport, possession of a driving licence duly recognized by the host State may affect the actual pursuit by persons subject to Community law of a large number of occupations for employed or self-employed persons and, more generally, freedom of movement.” Case 16/78, Criminal Proceedings Against Michel Choquet, 1978 E.C.R. 2293, para. 4; Case C-193/94, Criminal Proceedings Against Sofia Skanavi and Konstantin Chryssanthakopoulos, 1996 E.C.R. I-929, para. 23; Case C-476/01, Criminal Proceedings Against Felix Kapper, 2004 E.C.R. I-5205, para. 71.Google Scholar
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70 Cases C-476/01, Criminal Proceedings Against Felix Kapper, 2004 E.C.R. I-5205, para. 76; C-227/05, Daniel Halbritter v. Freistaat Bayern, 2006 E.C.R. I-49, para. 27; Case Case C-340/05, Criminal Proceedings Against Stefan Kremer, 2006 E.C.R. I-98, para. 29; C-329/06 and C-343/06, Arthur Wiedemann (C-329/06) v. Land Baden-Württemberg and Peter Funk (C-343/06) v. Stadt Chemnitz, 2008 E.C.R. I-4635, supra note 27, para. 63; C-334/06 to C-336/06, Matthias Zerche (C-334/06), Manfred Seuke (C-336/06) v. Landkreis Mittweida and Steffen Schubert (C-335/06) v. Landkreis Mittlerer Erzgebirgskreis, 2008 E.C.R. I-4691, para. 60; C-321/07, Criminal Proceedings Against Karl Schwarz, 2009 E.C.R. I-1113, paras. 85–86.Google Scholar
71 Obviously, it has to be interpreted as meaning that this new licence cannot be issued by another Member State merely during the period of prohibition (if such a period has been ordered), or within the scope of restriction, which is determined, inter alia, by the category of the licence that has been restricted in the first Member State.Google Scholar
72 Cases C-476/01, Criminal Proceedings Against Felix Kapper, 2004 E.C.R. I-5205, paras. 70, 72; Case C-227/05, Daniel Halbritter v. Freistaat Bayern, 2006 E.C.R. I-49, paras. 26, 35; Case C-340/05, Criminal Proceedings Against Stefan Kremer, 2006 E.C.R. I-98, para. 28; Cases C-329/06 and C-343/06, Arthur Wiedemann (C-329/06) v. Land Baden-Württemberg and Peter Funk (C-343/06) v. Stadt Chemnitz, 2008 E.C.R. I-4635, para. 60; Cases C-334/06 to C-336/06, Matthias Zerche (C-334/06), Manfred Seuke (C-336/06) v. Landkreis Mittweida and Steffen Schubert (C-335/06) v. Landkreis Mittlerer Erzgebirgskreis, 2008 E.C.R. I-4691, para. 57; Case C-1/07, Criminal Proceedings Against Frank Weber, 2008 E.C.R. I-8571, para. 29; Case C-321/07, Criminal Proceedings Against Karl Schwarz, 2009 E.C.R. I-1113, para. 84.Google Scholar
73 It leads to a situation in which a person who has been the subject of a measure restricting, suspending, or withdrawing his/her previous driving licence in one Member State benefits from the non-compliance by another Member State with its express obligations arising from the EU law.Google Scholar
74 This is set out in Directive 91/439/EEC, supra note 6, at art. 7(1)(b); Directive 2006/126/EC, supra note 7, at art. 7(1)(e).Google Scholar
75 Cases C-329/06 and C-343/06, Arthur Wiedemann (C-329/06) v. Land Baden-Württemberg and Peter Funk (C-343/06) v. Stadt Chemnitz, 2008 E.C.R. I-4635, paras. 72–73; Cases C-334/06 to C-336/06, Matthias Zerche (C-334/06), Manfred Seuke (C-336/06) v. Landkreis Mittweida and Steffen Schubert (C-335/06) v. Landkreis Mittlerer Erzgebirgskreis, 2008 E.C.R. I-4691, paras. 69–70; Case C-445/08, Kurt Wierer v. Land Baden-Württemberg, 2009 E.C.R. I-119, paras. 51–63; C-184/10, Mathilde Grasser v. Freistaat Bayern, 48 C.M.L.R. 459, para. 23.Google Scholar
76 Directive 91/439/EEC, supra note 6, at art. 9; Directive 2006/126/EC, supra note 7, at art. 12.Google Scholar
77 Case C-297/89, Rigsadvokaten v. Nicolai Christian Ryborg, 1991 E.C.R. I-1943, para. 19; Case C-262/99, Paraskevas Louloudakis v. Elliniko Dimosio, 2001 E.C.R. I-5547, para. 51; Case C-156/04, Comm'n v. Hellenic Republic, 2007 E.C.R. I-4129, para. 44; Case C-392/05, Georgios Alevizos v. Ipourgos Ikonomikon, 2007 E.C.R. I-3505, paras. 54–55. All those judgments were concerned with notions of normal residence which are defined in Council Directive 83/182/EEC and 83/183/EEC in terms identical to those included in Directive 91/439/EEC Directive 2006/126/EC. See Directive 83/182/EEC, of 28 March 1983 on Tax Exemptions Within the Community for Certain Means of Transport Temporarily Imported into one Member State from Another, 1983 O.J. (L 105) 59, art. 7(1) (EC); Directive 83/183/EEC, of 28 March 1983 on Tax Exemptions Applicable to Permanent Imports from a Member State of the Personal Property of Individuals, 1983 O.J. (L 105) 64, art. 6(1).Google Scholar
78 Case C-297/89, Rigsadvokaten v. Nicolai Christian Ryborg, 1991 E.C.R. I-1943, para. 20; Case C-262/99, Paraskevas Louloudakis v. Elliniko Dimosio, 2001 E.C.R. I-5547, para. 55; Case C-156/04, Comm'n v. Hellenic Republic, 2007 E.C.R. I-4129, para. 45; Case C-392/05, Georgios Alevizos v. Ipourgos Ikonomikon, 2007 E.C.R. I-3505, para. 57.Google Scholar
79 Case C-262/99, Paraskevas Louloudakis v. Elliniko Dimosio, 2001 E.C.R. I-5547, paras. 52–53; Case C-156/04, Comm'n v. Hellenic Republic, 2007 E.C.R. I-4129, para. 45; Case C-392/05, Georgios Alevizos v. Ipourgos Ikonomikon, 2007 E.C.R. I-3505, paras. 60–61.Google Scholar
80 Directive 91/439/EEC, supra note 6, at art. 8(2); Directive 2006/126/EC, supra note 7, at art. 11(2).Google Scholar
81 Case C-227/05, Daniel Halbritter v. Freistaat Bayern, 2006 E.C.R. I-49, para. 38; Case C-340/05, Criminal Proceedings Against Stefan Kremer, 2006 E.C.R. I-98, para. 35; Cases C-329/06 and C-343/06, Arthur Wiedemann (C-329/06) v. Land Baden-Württemberg and Peter Funk (C-343/06) v. Stadt Chemnitz, 2008 E.C.R. I-4635, para. 59; Cases C-334/06 to C-336/06, Matthias Zerche (C-334/06), Manfred Seuke (C-336/06) v. Landkreis Mittweida and Steffen Schubert (C-335/06) v. Landkreis Mittlerer Erzgebirgskreis, 2008 E.C.R. I-4691, para. 56; Case C-1/07, Criminal Proceedings Against Frank Weber, 2008 E.C.R. I-8571, para. 32; Case C-321/07, Criminal Proceedings Against Karl Schwarz, 2009 E.C.R. I-1113, para. 80.Google Scholar
82 Case C-195/02, Comm'n v. Kingdom of Spain, 2004 E.C.R. I-7857, paras. 62–63.Google Scholar
83 Id. at para. 64.Google Scholar
84 Directive 91/439/EEC, supra note 6, at art. 1(3), annex I; Directive 2006/126/EC, supra note 7, at annex I.Google Scholar
85 Cases C-246-00, Comm'n v. Kingdom of the Netherlands, 2003 E.C.R. I-7458, paras. 66–67; Case C-253/01, S.A. Krüger v. Directie van de rechtspersoonlijkheid bezittende Dienst Wegverkeer, 2004 E.C.R. I-1191, para. 26.Google Scholar
86 Case C-195/02, Comm'n v. Kingdom of Spain, 2004 E.C.R. I-7857, paras. 69–71.Google Scholar
87 Directive 91/439/EEC, supra note 6, at art. 7(1)(a); Directive 2006/126/EC, supra note 7, at art. 7(1)(a). All of the latter standards are specified in more detail in Directive 91/439/EEC, supra note 6, at annexes II, III; Directive 2006/126/EC, supra note 7, at annexes II, III.Google Scholar
88 Directive 91/439/EEC, supra note 6, at art. 7(1)(b); Directive 2006/126/EC, supra note 7, at art. 7(1)(e).Google Scholar
89 Directive 91/439/EEC, supra note 6, at art. 6; Directive 2006/126/EC, supra note 7, at art. 4.Google Scholar
90 Directive 91/439/EEC, supra note 6, at art. 5(1); Directive 2006/126/EC, supra note 7, at art. 6(1).Google Scholar
91 Directive 91/439/EEC, supra note 6, at art. 7(5); Directive 2006/126/EC, supra note 7, at art. 7(5).Google Scholar
92 Directive 91/439/EEC, supra note 6, at art. 7(4); Directive 2006/126/EC, supra note 7, at art. 7(4).Google Scholar
93 Case C-57/96, H. Meints v. Minister van Landbouw, Natuurbeheer en Visserij, 1997 E.C.R. I-6689, paras. 44–46; Case C-350/96, Clean Car Autoservice GesmbH v. Landeshauptmann von Wien, 1998 E.C.R. I-2521, paras. 27–29; Case C-35/97, Comm'n v. French Republic, 1998 E.C.R. I-5325, paras. 37–39; Case C-224/97, Erich Ciola v. Land Vorarlberg, 1999 E.C.R. I-2517, para. 14; Case C-124/99, Carl Borawitz v. Landesversicherungsanstalt Westfalen, 2000 E.C.R. I-7293, paras. 24–28; Case C-388/01, Comm'n v. Italy, 2003 E.C.R. I-721, paras. 13–14; Case C-209/03, The Queen v. London Borough of Ealing, Sec'y of State for Educ. and Skills, 2005 E.C.R. I-2119, paras. 51–53; Case C-382/08, Michael Neukirchinger v. Bezirkshauptmannschaft Grieskirchen, 2 C.M.L.R. 33, paras. 32–34 (2011).Google Scholar
94 For more in that regard, see Mortelmans, Kamiel, The Relationship Between the Treaty Rules and Community Measures for the Establishment and Functioning of the Internal Market—Towards a Concordance Rule, 39 Common Mkt. L. Rev. 1303 (2002).Google Scholar
95 Cases C-476/01, Criminal Proceedings Against Felix Kapper, 2004 E.C.R. I-5205, para. 42; Cases C-329/06 and C-343/06, Arthur Wiedemann (C-329/06) v. Land Baden-Württemberg and Peter Funk (C-343/06) v. Stadt Chemnitz, 2008 E.C.R. I-4635, paras. 69–70; Cases C-334/06 to C-336/06, Matthias Zerche (C-334/06), Manfred Seuke (C-336/06) v. Landkreis Mittweida and Steffen Schubert (C-335/06) v. Landkreis Mittlerer Erzgebirgskreis, 2008 E.C.R. I-4691, paras. 66–67; Case C-184/10, Mathilde Grasser v. Freistaat Bayern, 48 C.M.L.R. 459, paras. 27–28 (2011).Google Scholar
96 See, e.g., Abdelhamid, Doha, International Regulatory Rivalry in Open Economies: The Impact of Deregulation on the US and UK Financial Markets 27–29 (2003).Google Scholar
97 See, e.g., Murphy, Dale, The Structure of Regulatory Competition: Corporations and Public Policies in a Global Economy (2007); Henri Tjiong, The Political Economy of Regulatory Competition: A Diachronic Institutional Theory of Legal Change in an Era of Globalization (2009); Regulatory Competition and Economic Integration: Comparative Perspectives (Daniel Esty & Damien Géradin eds., 2004); International Regulatory Competition and Coordination: Perspectives on Economic Regulation in Europe and the United States (Joseph McCahery et al. eds., 2001).Google Scholar
98 Directive 91/439/EEC, supra note 6, at art. 6(2), 7(3); Directive 2006/126/EC, supra note 7, at art. 4(6).Google Scholar
99 Directive 2006/126/EC, supra note 7, at art. 8.Google Scholar
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