德国药房案判决.docx
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德国药房案判决
Case:
BVerfG7,377Apotheken-decision
Date:
11June1958
Judges:
ProfessorB.S.Markesinis
Copyright:
RaymondYoungs
1.Art12para1oftheGGnotonlydeclaresfreedomoftradeasanobjective
principleofthesocialandeconomicorder;itguaranteesthebasicrightofthe
individualtotakeupanypermittedactivityasavocation,evenifitdoesnot
correspondtoavocationalprofilefixedbytraditionorlaw.
...
5.TheauthorityunderArt12para1sentence2oftheGGtolaydownrules
coversexerciseandchoiceofavocation,butnotwiththesameintensity.Itis
givenfortheexerciseofavocationandcanonlyaffectfreedomofchoiceof
vocationfromthisangle.Themoreitpurelyregulatesexercise,thefreerthe
contentcanbe,butthemoreitalsoconcernschoiceofvocation,themore
limiteditscontent.
6.Thebasicrightistoprotectthefreedomoftheindividual,andthe
reservationofthepowerofregulationistosecuresufficientprotectionfor
communityinterests.Theneedtotakebothrequirementsintoaccountmeans
thatwhenthelegislatorinterveneshemustdifferentiateinaccordancewiththe
followingprinciples:
a)Freedomofexerciseofavocationcanberestrictedinsofarthisseems
appropriateaccordingtorationalconsiderationsofthecommongood.Basic
rightprotectionisrestrictedtopreventingconditionswhichareinthemselves
contrarytotheConstitutionbecausetheymaybeexcessivelyburdensomeand
arenotreasonable.
b)Freedomofchoiceofvocationcanonlyberestrictedtotheextentthat
protectionofparticularlyimportantinterestsofthecommunitypositively
requiresit.Ifsuchaninterferenceisunavoidable,thelegislatormustalways
choosetheformofinterferencewhichrestrictsthebasicrightleast.
c)Iftheinterferencewiththefreedomofchoiceofvocationtakestheformof
alistofcertainconditionsfortakingupthevocation,adistinctionmustbe
madebetweensubjectiveandobjectiveprerequisites.Theprincipleof
proportionalityappliestothesubjectiveprerequisites(inparticulareducation
andtraining)inthesensethattheymustnotbeoutofproportiontothedesired
goalofproperperformanceofvocationalactivity.Particularlystrict
requirementsmustbeappliedtoprovingtheneedforobjectiveprerequisites
foradmission.
Ingeneralsuchameasurecanonlybejustifiedtoavertprovableorhighly
probableseriousriskstoanextremelyimportantcommunityinterest.
d)RulesunderArt12para1sentence2oftheGGmustalwaysbemadeatthe
levelwhichcausesthesmallestinterferencewithfreedomofchoiceof
vocation.Thelegislatorcanonlyembarkonthenextlevelifitcanbeshown
thatitishighlyprobablethattherisksfearedcannotbeeffectivelyovercome
bymeansatthepreviouslevelwhichaccordwiththeConstitution.
...
Judgmentofthefirstsenateofthe11thJune1958
1BvR596/56
Art3para1ofthePharmaciesActstates:
(1)Permissiontocarryonbusinesscanonlybegivenforanewpharmacyif:
a)itisinthepublicinterestthatthepharmacyshouldbeestablishedinorderto
securetheprovisionofthepublicwithmedicines,and
b)itistobeassumedthattheeconomicbasisofthepharmacyisensuredand
theeconomicbasisofneighbouringpharmaciesisnotimpairedbyittosuch
anextentthattheprerequisitesforaproperpharmacybusinessarenolonger
ensured.
Thepermissioncanbecombinedwithaconditionthatthepharmacyistobe
establishedinacertainlocationintheinterestsofuniformprovisionof
medicine.
...
IV
ThequestionofwhetherArt3para1ofthePharmaciesActisreconcilable
withArt12para1oftheGGrequiressomeconsiderationsofprincipleabout
themeaningofthisconstitutionalprovision.
1.Art12para1protectsthefreedomofthecitizeninanareawhichis
especiallyimportantformodernsocietywithitsdivisionoflabour.It
guaranteestheindividual'srighttotakeupanyactivityasavocationfor
whichhebelieveshimselftobesuited(ietomakeitthebasisofhowhe
conductshislife)..
...theconceptofvocationmustbeinterpretedwidely.Itdoesnotonly
includeallvocationswhichfitcertaintraditionalvocationalprofiles-oreven
thosefixedbylaw.Italsoincludesatypical(butpermissible)activitiesfreely
chosenbyindividualsfromwhichnewfirmvocationalprofilescanthenarise
(referencesomitted)...
b)Ifthepossibilitiesforthelegislatortointerfereintheareaprotectedbythe
basicrightareassessedbytheconstitutionalprovisionitself,thewordingof
Art12para1couldsuggestthatinterferencesareonlytobepermittedin
relationtotheexerciseofavocation;andthechoiceofavocationwouldbe
simplyexcludedfromstatutoryregulation.Butthatcannotbethemeaningof
theprovision.Thisisbecausetheconceptsofchoiceandexerciseofa
vocationcannotsimplybeseparatedinsuchawaythattheyeachonly
describeacertainperiodofvocationallifewhichdoesnotoverlapwiththe
other.Inparticular,thetakingupofvocationalactivityrepresentsthe
commencementofexerciseofavocationaswellastheimplementationofa
choiceofvocationwhichexpressesitselfpreciselyinthisact-andfrequently
onlyinit.Inthesameway,theintentiontocontinueavocationwhichshows
itselfinthecurrentexerciseofit,andfinallyvoluntaryterminationofthe
exerciseofavocationarereallyatthesametimechoicesofvocation.Both
conceptsincludetheunifiedcomplexvocationalactivityseenfromvarious
angles(referencesomitted).
Aninterpretationthereforewhichwouldsimplyrestrainthelegislatorfrom
anyinterferencewithfreedomofchoiceofvocationcannotbecorrect.It
wouldnotcorrespondwiththerealitiesoflife,anditwouldthereforenotlead
inlawtoclearresults.Astatutoryprovisionwhichappearsprimarilyto
regulateexerciseofavocationisinprinciplealsopermissibleifitindirectly
affectsfreedomofchoiceofvocation.Thatoccursprincipallywhen
prerequisitesfortakingupavocation,iestartingtoexerciseit,arelaiddown
or,inotherwords,whenstartingtoexerciseavocationismadedependentona
permission.Art74no19,whichprovidesabasisforlegislativecompetence
foradmissionforcertainvocations,showsthattheBasicLawdidnotnot
intendsimplytoexcluderulesaboutadmission.Thelegislativehistoryofthe
provisionalsoshowsthatalthoughadmittedlytherewasinprinciplean
intentiontoavoidgivingpowertoimposerestrictionsonadmissions,onthe
otherhandtherewasnointentiontodeclarethenumerousrestrictionson
existingadmissionstobegenerallyimpermissible(referenceomitted).Itis
truethattheauthoroftheBasicLawhasnotattainedcompleteobjectiveand
conceptualclarityoftheproblemshere.Hehasintheendchosena
formulationwhichfollowedthedivisionbetweenchoiceandexerciseofa
tradewhichiscommonintradinglaw,andinotherrespectsdeliberatelyleft
furtherregulationlargelytostatute(referenceomitted)...
Art12para1isthusaunifiedbasicright(vocationalfreedom),atanyratein
thesensethatthereservationofregulatorypowerinsentence2extendsin
principletoexerciseandtochoiceofavocation.Thisdoesnothowevermean
thatthelegislator'spowersinrelationtoeachofthesephasesofvocational
activityareequallyaswideintheircontent.Thisisbecausetheintentionin
theConstitution,whichisclearlyexpressedinthewordingofArt12para1,
mustalwaysbeborneinmind,iethatthechoiceofvocationshouldbe
ree
buttheexerciseofavocationmayberegulated.Theonlyinterpretationwhich
fitsthisisonewhichassumesthatthepowertoregulatedoesnotcoverboth
phaseswiththesameobjectiveintensity;andthatthemorethelegislator
interfereswiththefreedomofchoiceofvocation,themoreheissubjectto
stricterlimits.Thisinterpretationalsocorrespondswiththebasicconceptions
oftheConstitutionandthehumanpicturewhichitassumes(references
omitted).Thechoiceofvocationissupposedtobeanactofselfdetermination,
afreedecisionoftheindividualwill.Itmustasfaraspossibleremain
unaffectedbyinterferencesfromstatepower.Byexercisinghisvocationthe
individualtakesadirectpartinsociallife.Limitationscanbeimposedonhim
hereintheinterestsofothersandofthegeneralpublic.
Tosummarise:
Thepowertoregulateextendstoexerciseandchoiceofa
vocation.Butitisgivenforthesakeofexerciseofavocationandcanatthe
mostonlyinterferewithfreedomofchoiceofvocationfromthisangle.
Themoreitpurelyregulatesexercise,thefreerthecontentcanbe,butthe
moreitalsoconcernschoiceofvocation,themorelimiteditscontent.
c)Thesearethegeneralfactorsdeterminingthescopeofthepowertoregulate.
Astoitsdetailedcontent,themeaningoftheconceptof
egulatingmustfirst
beclarified,inparticularinrelationtofreedomofchoiceofvocation.Itcannot
meanthatthelegislatorhasonthewholeawiderareaofdiscretionthanwith
othergeneralreservationsofstatutorypower,andthathecanregulatethe
wholeareaofvocationallawmorecomprehensivelyanddeterminethecontent
ofthebasicrightconstitutively(referencesomitted).Suchaviewwould
debasethebasicright,becauseitscontentwouldbeentirelysurrenderedtothe
discretionofthelegislator,whoishimselfboundbythebasicright(Art1para
3of