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Guide On Article 15 of The European Convention On Human Rights
Guide On Article 15 of The European Convention On Human Rights
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© Council of Europe/European Court of Human Rights, 2020
Table of contents
Note to readers.............................................................................................. 4
Note to readers
This Guide is part of the series of Case-Law Guides published by the European Court of Human Rights
(hereafter “the Court”, “the European Court” or “the Strasbourg Court”) to inform legal practitioners
about the fundamental judgments and decisions delivered by the Strasbourg Court. This particular
Guide analyses and sums up the case-law on Article 15 of the European Convention on Human Rights
(hereafter “the Convention” or “the European Convention”). Readers will find herein the key
principles in this area and the relevant precedents.
The case-law cited has been selected among the leading, major, and/or recent judgments and
decisions.*
The Court’s judgments and decisions serve not only to decide those cases brought before it but,
more generally, to elucidate, safeguard and develop the rules instituted by the Convention, thereby
contributing to the observance by the States of the engagements undertaken by them as Contracting
Parties (Ireland v. the United Kingdom, § 154, 18 January 1978, Series A no. 25, and, more recently,
Jeronovičs v. Latvia [GC], no. 44898/10, § 109, ECHR 2016).
The mission of the system set up by the Convention is thus to determine issues of public policy in the
general interest, thereby raising the standards of protection of human rights and extending human
rights jurisprudence throughout the community of the Convention States (Konstantin Markin
v. Russia [GC], § 89, no. 30078/06, ECHR 2012). Indeed, the Court has emphasised the Convention’s
role as a “constitutional instrument of European public order” in the field of human rights
(Bosphorus Hava Yolları Turizm ve Ticaret Anonim Şirketi v. Ireland [GC], no. 45036/98, § 156, ECHR
2005-VI).
This Guide contains references to keywords for each cited Article of the Convention and its
Additional Protocols. The legal issues dealt with in each case are summarised in a List of keywords,
chosen from a thesaurus of terms taken (in most cases) directly from the text of the Convention and
its Protocols.
The HUDOC database of the Court’s case-law enables searches to be made by keyword. Searching
with these keywords enables a group of documents with similar legal content to be found (the
Court’s reasoning and conclusions in each case are summarised through the keywords). Keywords
for individual cases can be found by clicking on the Case Details tag in HUDOC. For further
information about the HUDOC database and the keywords, please see the HUDOC user manual.
* The case-law cited may be in either or both of the official languages (English and French) of the Court and
the European Commission of Human Rights. Unless otherwise indicated, all references are to a judgment on
the merits delivered by a Chamber of the Court. The abbreviation “(dec.)” indicates that the citation is of a
decision of the Court and “[GC]” that the case was heard by the Grand Chamber. Chamber judgments that
were not final when this update was published are marked with an asterisk (*).
I. General principles
HUDOC keywords
War (15-1) – Public emergency (15-1) – Threat to the life of the nation (15-1) – Derogation (15-1) –
Extent strictly required by situation (15-1) – International obligations (15-1) – Notification of a
derogation (15-3)
1. See p. 10 of, and Appendix I to, the Travaux préparatoires on Article 15 (document DH (56) 4 available on
the Court’s Library website at www.echr.coe.int/Library). The American Convention on Human Rights also
contains a derogation clause (Article 27). There is no such clause in the African Charter on Human and Peoples’
Rights.
HUDOC keywords
War (15-1) – Public emergency (15-1) – Threat to the life of the nation (15-1) – Derogation (15-1) –
Extent strictly required by situation (15-1) – International obligations (15-1)
(§ 207): “it falls in the first place to each Contracting State, with its responsibility for ‘the life of [its]
nation’, to determine whether that life is threatened by a ‘public emergency’”. By reason of their
direct and continuous contact with the pressing needs of the moment, the national authorities are in
principle better placed than the international judge to decide both on the presence of such an
emergency and on the nature and scope of the derogations necessary to avert it. Accordingly, in this
matter a wide margin of appreciation should be left to the national authorities. Nevertheless, the
Court had emphasised that States do not enjoy an unlimited discretion in this respect. The domestic
margin of appreciation is accompanied by European supervision (Hasan Altan v. Turkey, § 91; Şahin
Alpay v. Turkey, § 75; Brannigan and McBride v. the United Kingdom, § 43).
12. Terrorism in Northern Ireland met the standard of a public emergency, since for a number of
years it represented a “particularly far-reaching and acute danger for the territorial integrity of the
United Kingdom, the institutions of the six counties [of Northern Ireland] and the lives of the
province’s inhabitants” (ibid., §§ 205 and 212; Brannigan and McBride v. the United Kingdom, § 48;
Marshall v. the United Kingdom (dec.)). So, too, did PKK terrorist activity in South-East Turkey (Aksoy
v. Turkey, § 70) and the imminent threat of serious terrorist attacks in the United Kingdom after
11 September 2001 (A. and Others v. the United Kingdom [GC], § 181), and the attempted military
coup in Turkey in 2016 (Alparslan Altan v. Turkey, §§ 73-74; Mehmet Hasan Altan v. Turkey, §§ 91-
93; Şahin Alpay v. Turkey, §§ 75-77). The requirement of imminence is not, however, to be
interpreted so narrowly as to require a State to wait for disaster to strike before taking measures to
deal with it (A. and Others v. the United Kingdom [GC], § 177).
13. Notwithstanding this general approach of deference towards the national authorities’
assessment, it is not unlimited: for instance, in the “Greek case” (Commission report, §§ 159-165 and
207), the case brought against Greece in response to the “colonels” coup in 1967, the Commission
found that, on the evidence before it, there was no public emergency which justified the derogation
made. It should be noted that the existence of a “public emergency” was not disputed in the above-
noted cases concerning the situation in Northern Ireland and south-east Turkey, whereas this was
clearly disputed in some detail in the “Greek case” as regards the attempted derogation by the
military government in Greece.
14. Since the purpose of Article 15 is to permit States to take derogating measures to protect their
populations from future risks, the existence of the threat to the life of the nation must be assessed
primarily with reference to those facts which were known at the time of the derogation. The Court is
not precluded, however, from having regard to information which comes to light subsequently
(A. and Others v. the United Kingdom [GC], § 177).
15. However, if measures are taken outside the territory to which the derogation applies, the
derogation will not apply and the Government concerned will not be able to rely on it to justify the
measures (Sakık and Others v. Turkey, § 39; Sadak v. Turkey, §§ 56; Yurttas v. Turkey, § 58;
Abdülsamet Yaman v. Turkey, § 69).
16. Although there have been a number of cases of Contracting States acting militarily outside their
own territory since their ratification of the Convention, until today no State has ever made a
derogation pursuant to Article 15 of the Convention in respect of these activities (Hassan v. the
United Kingdom [GC], § 101).
go in attempting to overcome the emergency. By reason of their direct and continuous contact with the
pressing needs of the moment, the national authorities are in principle in a better position than the
international judge to decide both on the presence of such an emergency and on the nature and scope
of derogations necessary to avert it. In this matter Article 15 § 1 (...) leaves those authorities a wide
margin of appreciation.”
18. Nevertheless, the States do not enjoy an unlimited power in this respect: the Court is
empowered to rule on whether the States have gone beyond the “extent strictly required by the
exigencies” of the crisis (ibid.). To assess whether the measures taken were “strictly required by the
exigencies of the situation and consistent with the other obligations under international law”, the
Court examines the complaints on the merits (Mehmet Hasan Altan v. Turkey, § 94; Şahin Alpay
v. Turkey, § 78).
19. As the Court has clarified, the existence of a “public emergency threatening the life of the
nation” must not serve as a pretext for limiting freedom of political debate. Even in a state of
emergency the States must bear in mind that any measures taken should seek to protect the
democratic order from the threats to it, and every effort should be made to safeguard the values of
a democratic society, such as pluralism, tolerance and broadmindedness (Mehmet Hasan Altan
v. Turkey, § 210; Şahin Alpay v. Turkey, § 180).
20. In determining whether a State has gone beyond what is strictly required, the Court will give
appropriate weight to factors such as the nature of the rights affected by the derogation, the
circumstances leading to, and the duration of, the emergency situation (Brannigan and McBride
v. the United Kingdom, § 43; A. and Others v. the United Kingdom [GC],§ 173).
21. This involves the Court considering matters such as:
whether ordinary laws would have been sufficient to meet the danger caused by the public
emergency (Lawless v. Ireland (no. 3), § 36; Ireland v. the United Kingdom, § 212);
whether the measures are a genuine response to an emergency situation (Alparslan Altan
v. Turkey, § 118; Brannigan and McBride v. the United Kingdom, § 51);
whether the measures were used for the purpose for which they were granted (Lawless
v. Ireland (no. 3), § 38);
whether the derogation is limited in scope and the reasons advanced in support of it
(Brannigan and McBride v. the United Kingdom, § 66);
whether the need for the derogation was kept under review (ibid., § 54);
any attenuation in the measures imposed (Ireland v. the United Kingdom, § 220);
whether the measures were subject to safeguards (ibid., §§ 216-219; Lawless v. Ireland
(no. 3), § 37; Brannigan and McBride v. the United Kingdom, §§ 61-65; Aksoy v. Turkey,
§§ 79-84);
the importance of the right at stake, and the broader purpose of judicial control over
interferences with that right (ibid., § 76);
whether judicial control of the measures was practicable (ibid., § 78;2 Brannigan and
McBride v. the United Kingdom, § 59);
the proportionality of the measures and whether they involved any unjustifiable
discrimination (A. and Others v. the United Kingdom [GC], § 190);
whether the measure was “lawful” and had been effected “in accordance with a procedure
prescribed by law” (Alparslan Altan v. Turkey, §§ 117-119; Mehmet Hasan Altan v. Turkey,
§§ 140 and 213; Şahin Alpay v. Turkey, §§ 119 and 183);
2. See also the post-Aksoy cases: Demir and Others v. Turkey, §§ 49-58; Nuray Şen v. Turkey, §§ 25-29; Elçi and
Others v. Turkey, § 684; Bilen v. Turkey, §§ 44-50.
whether the minimum requirements of Article 5 § 1 (c) of the Convention regarding the
“reasonableness” of a suspicion justifying an individual’s detention are satisfied (Alparslan
Altan v. Turkey, §§ 147-149); and
the views of any national courts which have considered the question (Alparslan Altan
v. Turkey, § 146; Mehmet Hasan Altan v. Turkey, §§ 93 and 140; Şahin Alpay v. Turkey, §§
77 and 119). If the highest domestic court in a Contracting State has reached the
conclusion that the measures were not strictly required, the Court will be justified in
reaching a contrary conclusion only if satisfied that the national court had misinterpreted
or misapplied Article 15 or the Court’s jurisprudence under that Article, or reached a
conclusion which was manifestly unreasonable (A. and Others v. the United Kingdom [GC],
§ 174).
22. These factors will normally be assessed, not retrospectively, but on the basis of the “conditions
and circumstances reigning when [the measures] were originally taken and subsequently applied”
(Ireland v. the United Kingdom, § 214). However, it may be that, as with the assessment of whether
there is a public emergency, the Court is not precluded from having regard to information which
comes to light subsequently (A. and Others v. the United Kingdom [GC], § 177, where the Court took
note of the bombings and attempted bombings in London in July 2005, which took place therefore
years after the notification of the derogation in 2001).
3. Article 4 § 1 of the ICCPR providing, in relevant part: “In time of public emergency which threatens the life
of the nation and the existence of which is officially proclaimed…”.
4. Cf. the Commission’s conclusion in the case of Cyprus v. Turkey (Commission report of 10 July 1976, § 527):
“Article 15 requires some formal and public act of derogation, such as a declaration of martial law or state of
emergency, and that, where no such act has been proclaimed by the High Contracting Party concerned,
although it was not in the circumstances prevented from doing so, Article 15 cannot apply.”
26. In Hassan v. the United Kingdom [GC], the Court had to decide whether, in the absence of a
derogation in an international conflict context, the Court could nevertheless re-interpret a
Convention provision in accordance with the principles of international (humanitarian) law. The
Court replied in the affirmative, accepting that, although internment was not a permitted ground for
the deprivation of liberty under the text of Article 5, the Contracting Party was not required to
derogate from its obligations under Article 5 in order to allow for the internment of prisoners of war
and civilians posing a threat to security in a conflict context because that Article could be interpreted
and applied in accordance with the principles of international humanitarian law (namely the Third
and Fourth Geneva Conventions).
27. Article 15 § 2 protects certain rights from derogation. According to the text of Article 15 § 2,
these are: Article 2 (the right to life), except in respect of deaths resulting from lawful acts of war;
Article 3 (the prohibition of torture and other forms of ill-treatment); Article 4 § 1 (the prohibition of
slavery or servitude); and Article 7 (no punishment without law).
28. Three of the additional protocols to the Convention also contain clauses which prohibit
derogation from certain of the rights contained in them. These are Protocol No. 6 (the abolition of
the death penalty in time of peace and limiting the death penalty in time of war), Protocol No. 7 (the
ne bis in idem principle only, as contained in Article 4 of that protocol) and Protocol No. 13 (the
complete abolition of the death penalty).5
29. The effect of Article 15 § 2 (and the corresponding non-derogation clauses in Protocol Nos. 6, 7
and 13) is that the rights to which they refer continue to apply during any time of war or public
emergency, irrespective of any derogation made by a Contracting State.
30. In respect of Articles 2 and 7 of the Convention, the exceptions already contained in those rights
will also continue to apply.
31. Thus as regards Article 2, any deprivation of life will not be in contravention of the article if it
results from the use of force which is no more than absolutely necessary in the circumstances set
out in Article 2 § 2 (a)-(c) (the defence of any person from unlawful violence, to effect a lawful arrest
or prevent escape of a person lawfully detained, action lawfully taken for the purpose of quelling a
riot or insurrection). Article 15 § 2 adds the additional exception that the right to life will not be
violated if the death results from a lawful act of war.
32. Equally, as regards Article 7, the prohibition on no punishment without law is subject to the
provisions of Article 7 § 2, namely that the article shall not prejudice the trial and punishment of any
person for any act or omission which, at the time when it was committed, was criminal according to
the general principles of law recognised by civilized nations.
5. Article 3 of Protocol No. 6, Article 4 § 3 of Protocol No. 7, and Article 2 of Protocol No. 13.
HUDOC keywords
Notification of a derogation (15-3)
33. The primary purpose of informing the Secretary General is that the derogation becomes public.
A further purpose is that the Convention is a system of collective enforcement and it is through the
Secretary General that the other Contracting States are informed of the derogation: by Resolution
56 (16) of the Committee of Ministers, any information transmitted to the Secretary General in
pursuance of Article 15 § 3 must be communicated by him as soon as possible to the other
Contracting States (Greece v. the United Kingdom, Commission report, § 158).
34. In the absence of an official and public notice of derogation, Article 15 does not apply to the
measures taken by the respondent State (Cyprus v. Turkey, Commission report of 4 October 1983,
§§ 66-68).
35. The requirement to notify the Secretary General of the measures taken and the reasons
therefore is usually met by writing a letter and attaching copies of the legal texts under which the
emergency measures will be taken, with an explanation of their purpose (Lawless v. Ireland (no. 3),
§ 47). If copies of all relevant measures are not provided, the requirement will not be met (the
“Greek case”, Commission report, § 81(1) and (2)).
36. In the case of Greece v. the United Kingdom, the Commission found that it was clear from the
wording of Article 15 § 3 that the notification did not need to be made before the measure in
question had been introduced but also that the wording of this provision did not give guidance
either as to the time within which the notification must be made or as to the extent of the
information to be furnished to the Secretary General. The Commission considered that it was for the
State concerned to notify the measures in question without any unavoidable delay together with
sufficient information concerning them to enable the other High Contracting Parties to appreciate
the nature and extent of the derogation which the measures involved. In that case, the three-month
period between the taking of the derogating measure and its notification had been too long and
could not be justified by administrative delays resulting from the alleged emergency. The same was
true for the notification of certain measures four months after they were taken in the “Greek case”
(Commission report, § 81(3)). In contrast, the Court has found that notification twelve days after the
measures entered into force was sufficient (Lawless v. Ireland (no. 3), § 47).
37. The question of whether a notification by a State complies with the formal requirements
provided by Article 15 § 3 will be examined by the Court motu proprio even if it has not been
contested by any of the other parties (Aksoy v. Turkey, §§ 85-86).
38. The formal requirement laid down in Article 15 § 3 obliges Contracting States to keep the
Secretary General of the Council of Europe fully informed of the measures taken by way of
derogation from the Convention and the reasons for them (Mehmet Hasan Altan v. Turkey, § 89;
Şahin Alpay v. Turkey, § 73).
39. The Court has also found that Article 15 § 3 implies a requirement of permanent review of the
need for emergency measures (Brannigan and McBride v. the United Kingdom, § 54).
40. Finally, when the derogation is withdrawn (in compliance with the last sentence of Article 15
§ 3), in any case concerning measures taken after the withdrawal of the derogation, the Court will
examine the case on the basis that the relevant articles of the Convention in respect of which
complaints have been made are fully applicable. This does not, however, preclude proper account
being taken of the background circumstances of the case. It is for the Court to determine the
significance to be attached to those circumstances and to ascertain whether the balance struck
complied with the applicable provisions of the relevant article, in the light of their particular wording
and the article’s overall object and purpose (Brogan and Others v. the United Kingdom, § 48, in
respect of Article 5).
—A—
A. and Others v. the United Kingdom [GC], no. 3455/05, ECHR 2009
Abdülsamet Yaman v. Turkey, no. 32446/96, 2 November 2004
Aksoy v. Turkey, 18 December 1996, Reports of Judgments and Decisions 1996-VI
Alparslan Altan v. Turkey, no. 12778/17, 16 April 2019
—B—
Bilen v. Turkey, no. 34482/97, 21 February 2006
Brannigan and McBride v. the United Kingdom, 26 May 1993, Series A no. 258-B
Brogan and Others v. the United Kingdom, 29 November 1988, Series A no. 145-B
—C—
Cyprus v. Turkey, nos. 6780/74 and 6950/75, Commission report of 10 July 1976
Cyprus v. Turkey, no. 8007/77, Commission report of 6 October 1983
—D—
Demir and Others v. Turkey, 23 September 1998, Reports of Judgments and Decisions 1998-VI
Denmark, Norway, Sweden and the Netherlands v. Greece (the “Greek case”), nos. 3321/67 and
3 others, Commission report of 5 November 1969, Yearbook 12
—E—
Elçi and Others v. Turkey, nos. 23145/93 and 25091/94, 13 November 2003
—G—
Greece v. the United Kingdom, no. 176/56, Commission report of 26 September 1958
—H—
Hassan v. the United Kingdom [GC], no. 29750/09, ECHR 2014
—I—
Ireland v. the United Kingdom, 18 January 1978, Series A no. 25
—K—
Khlebik v. Ukraine, no. 2945/16, 25 July 2017
—L—
Lawless v. Ireland (no. 3), 1 July 1961, Series A no. 3
—M—
Marshall v. the United Kingdom (dec.), no. 41571/98, 10 July 2001
Mehmet Hasan Altan v. Turkey, no. 13237/17, 20 March 2018
—N—
Nuray Şen v. Turkey, no. 41478/98, 17 June 2003
—S—
Sadak v. Turkey, nos. 25142/94 and 27099/95, 8 April 2004
Şahin Alpay v. Turkey, no. 16538/17, 20 March 2018
Sakık and Others v. Turkey, 26 November 1997, Reports of Judgments and Decisions 1997-VII
—Y—
Yurttas v. Turkey, nos. 25143/94 and 27098/95, 27 May 2004