NoC287/18 OfficialJournaloftheEuropeanCommunities 4.11.92
Opinionon'Adoption'
(92/C287/08)
On23April1991theEconomicandSocialCommittee,actingunderthefourthparagraph
ofArticle20ofitsRulesofProcedure,decidedtodrawupanOpiniononAdoption.
TheSectionforSocial,Family,EducationalandCulturalAffairs,whichwasresponsiblefor
preparingtheCommittee'sworkonthesubject,adopteditsOpinionon18June1992.The
RapporteurwasMrBurnel.
Atits298thPlenarySession(meetingof1July1992)theEconomicandSocialCommittee
adoptedthefollowingOpinionunanimously .
DEFINITION OFSOMEOFTHETERMSUSED
Abandonment :Alegalactwherebythebiologicalparents(mostfrequentlyasinglemother)
giveupallbondsofconsanguinitywiththeirchildandrenouncealltherightsandobligations
flowingtherefrom.
Fosterfamily:Afamilyorpersonapprovedbythepublicauthoritiesforthepurposeof
lookingafterandbringingupachildplacedinthecareoftheauthorityinquestion,which
actsinlocoparentis.
Fulladoption:Alegalactwhich,aftertheabandonmentofachild,substitutes'adoptive'
affiliationsfor'biological'consanguinity ,conferringontheadoptiveparentsfullparental
rightsandobligations.Likewise,initsdealingswiththeadoptiveparents,theadoptedchild
hasthedutiesandrightsstemmingfromnaturalconsanguinity .Itlosesalllegaltieswithits
naturalparents.
Simpleadoption:Alegalprovisionessentiallyapplicabletointra-familysituations.For
exampleanuncleadoptshisnephewwithoutthelatterlosinghisbloodtieswithhisnatural
family.Theunclelooksafterandbringsuphisnephewwhomaytakeonhisuncle'sname
andbecomehisheir,withthesamerightsasanaturalchild.Thechildcontinuestomaintain
linkswithitsbiologicalfamily.
Periodofreflection:Periodduringwhichparents,andparticularlythemother,mayrevoke
thedecisiontoabandontheirchild.
Biologicalconsanguinityornaturalaffiliation:affiliationestablishedbyblood.
1.Preliminaryremarks b)theincreasinglyrapidexchangesofideasandexperi­
encesinthesocial,familyandeducationalspheres,
c)freercross-bordermovementofpeople,
d)thegrowthininternationaladoptions.
Researchandstudiesonadoptionhavealsoexpanded,
thePrivateLawConferenceheldinTheHaguein1990
beingofparticularimportance .
1.1.3.Somepeoplemightarguethatthenumberof
'full'adoptionordersmadeeachyearintheCommunity
(intheregionof30—35000)ismathematically not
verysignificantcomparedwiththenumberofbirths
registeredoverthesameperiod(3,4million),i.e.aratio
of1to100.Buttothosewhoconsiderthatthereis
littlevalueinexploringandexpressingviewsonthe
subjectofadoption,wewouldoffertwocounter-argu­
ments:1.1.TheEconomicandSocialCommitteeisfullycom­
petenttodealwithadoption.
1.1.1.TheESChasadutytoaddresssocialprob­
lems.Becauseofitsimpactonpublicopinionand
becauseitisconcernednotonlywithlegalmattersbut
alsoemotional,psychological ,moralandeducational
aspects,adoptionisonesuchsocialproblem.
1.1.2.TheESCusesitsrightofinitiativewhenever
aproblemorsituationistopicalandurgent.Thisis
truetodayofadoption,notablybecauseof:
a)theever-increasing attentionpaidtothewelfareand
protectionofthechild,andgreaterrespectforits
rightsandinterests,

4.11.92 OfficialJournaloftheEuropeanCommunities NoC287/19
assumedthatthisisthefaultoftheparentsand,in
particular,themother.Ifparentsareguiltyofinfringing
theLaw,itisuptothecourtsandthecourtsaloneto
passjudgmentandnotforpublicopiniontocondemn
outofhand.
Honestyrequiresthatweexamineobjectivelythecauses
whichforceamotherirrevocablytorelinquishthe
naturaltiesbindinghertoherchild,andhonesty
requirespoliticalwillpowertotacklesuchcauses.The
motherisoftenaloneandforcedtotakesuchadecision
incircumstances ofunbearablemoralandmaterial
distress.
Byplacingherchildincarewithaviewtoadoption,
isthemothernottryingtogiveitthesecurityand
opportunitiessheherselfcannot,unfortunately ,pro­
vide?Amotherwhoactsinthiswayputsthechild's
interestsbeforeherownpeaceofmindandsenseof
guilt,sogreatistheevidencethatthe'abandonment '
ofachildfrequentlyleavesverydeepscarsonmothers
forcedtotakesuchaction.
InitsOpiniononpovertyin1989(*)theEconomicand
SocialCommitteehighlightedtheprincipaloriginsof
profoundpsychological andmoraldistresswhich,
broughtaboutoraggravatedbysociallyunacceptable
andintolerableconditions(lackofhousing,work,train­
ingorsocialcontacts),culminateinlossofindepen­
dence,marginalization andexclusionfromsociety.A
personsufferingfromseverepovertywillveryfre­
quentlybeincapableofexercisingorenjoyingtherights
towhicheveryhumanbeinginoursocietiesandthe
MemberStatesisentitledundertheUniversalDeclar­
ationofHumanRights.Norwillhebeabletobenefit
fromsocialrightsorbasicsocialandhealthprotection.
Nevertheless ,adistinctionneedstobedrawnbetween
on-goingsituations,whichthreatenthepermanent
futureofachild,andcircumstanceswhichmightbe
putrightwithinareasonablyshortperiodoftime.
Actionwillnotbethesameinbothcases.Onlywhen
parentsshowaclearandpermanentinabilitytobring
uptheiroffspringnormallyisonelegallyentitledto
concludethatthechildhasbeenabandoned.Thispro­
vision,whichisnotalwayseasytoappraise,hasbeen
acceptedundermostlegalsystems.
1.2.5.Thedesiretohavechildren
Itisanaturalhumanurgeforacoupleorforasingle
persontowanttohaveachild.
a)Circumstances sometimesarise,however,wherefer­
tilecouplesgiveuptheideaofhavingafirst(or
subsequent)childbecausetheylackthematerialor
psychological resourcesneededtolookafterand
bringuptheiroffspring.Initsstudyofthedemo­
graphicsituation(2),theESChighlightedsomeof
thecausesandconsequencesofthissituation,point­
ingoutthatitwasdifficulttoclassifythembecause
therewereoftenmultiplefactorsatplay.TheESC
accordinglydrewattentiontotheimportanceofa)Someadoptionapplicationsfulfillegalrequirements
butthe'demand'cannotbesatisfiedbecauseofthe
inadequacyoftheimmediate'supply'ofadoptable
children(themismatchbeingatleast4to1).
b)Moreimportantly,hardmathematicalevidencecan
neverbeanexcuseforsilenceorforpoliticalor
socialinactivitywhenthehappinessofchildren,and
evenforthatmatterthehappinessofasinglechild,
isatstake—andallthemoresoifalargenumber
ofchildreninEuropeandelsewherearelikelytobe
affectedbyadoption.
1.1.4.Onthebasisoftheargumentssetoutinpoints
1.1.2and1.1.3,theEconomicandSocialCommittee
willmakeanumberofrecommendations inchapter2
ofthisOpinion.
Forthepresent,itwouldconfineitselftothethree
followingwishes:
—thatalltheorganizations representedwithinthe
ESC,andallCommitteemembers,takeallnecessary
stepstodrawtheattentionoftheirauthorities,
mediaandpublicopiniontothehumanandsocial
importanceofadoption,
—thattheCouncil(FamilyAffairs)putstheproblems
ofadoptiononitsagendasothattherecanbe
anexchangeofviewsonnationalsituationsand
experiences,aswellasaconcreteassessmentofthe
consequencesofthefreemovementofpersons,
—that,wherevernecessary,theCommissionbrings
thesubjectofadoptionintoitsdiscussionsand
decisions.
1.2.Adoptionstrikesadeepsub-consciouschord
1.2.1.Adoptionisavexedissue,elicitingawhole
rangeofresponsesfromreprovaltoadmiration.
1.2.2.Thisappliesto:
a)theideawhicheachindividualhasoftheinterests
ofthechild;
b)decisionstakentoabandonthechild,withthe
attendantrepercussionsonthechild,itsbiological
parentsandinparticularitsmother;
c)theanxietyfeltbyprospectiveadoptersduringthe
waitingperiod;
d)theadoptiveparents'ability—whichcannotbe
immediatelytakenforgranted—toreplacebonds
ofconsanguinity byacourtdecision.
1.2.3.Atallevents,eachcaseofabandonment and
adoptionishighlyindividual.Wemustthereforeavoid
generalizations andtheestablishmentofgeneralrules
derivedfromindividualcasesknowntoorexperienced
byourselves.
1.2.4.Thedecisiontoabandon achild
Inthiscontexttheterm'abandonment 'mustbeunder­
stoodinitslegalsense,withoutanyconnotationsof
moralguilt.
Howeverunderstandable thesenseofrevulsionatthe
abandonmentofachild,itshouldnotautomatically be1)educationtoinstillparentalresponsibilities ,
2)familypolicy(intermsofcare,housing,and
()Poverty(CatalogueNoCES-89-013).
(2)ThedemographicsituationinEurope.

4.11.92 NoC287/20 OfficialJournaloftheEuropeanCommunities
familybenefits),and3)theincubusofunemploy­
ment.Uncertaintyaboutthefutureactsasadeter­
rentformanycoupleswhoareawareoftheimmedi­
ateandlong-termresponsibilitiesofbringingachild
intotheworld.
b)Atthisjuncturewemustnaturallyconcernourselves
withthespecificsituationofsterilecouples:
—Itisimportanttopointoutthatthesterilityinci­
denceisstatisticallyidentical(about3%)forboth
menandwomenaswellasforcouples.
—Nevertheless ,nobodycanclaimtherighttohavea
childI1).establishingchildren'srights(whichhavenowbeen
recognized)(2).
1.3.4.Legislativesystemshavethereforeprogress­
ivelyhighlightedtheinterestofthechild:
a)onagenerallevel,viaappropriatelegislation(family
law,incorporatingchildren'srights;social,econ­
omicandculturallegislationcoveringfamilysitu­
ations,etc.);
b)viaspecificmeasures,proceduresandlegislationin
respectofthecustodyandadoptionofchildren.
1.3.5.Theconceptof'theChild'sInterest'(3)was
enshrinedinlawforthefirsttimeintheearly20th
Century.Itreflectednewthinkingonadoption(atti­
tudesandlegislation).
Thereisnodoubtthatadoptionnowadaysrepresents
thegenerousgiftofafamilytoachild,madepossible
throughadecisionofthecourts.Itisacommitment
differingfundamentally innatureandconsequences
fromanactofpitytowardsachildindistress.
1.4.Thechild'sinterest
1.4.1.Progressinbiologyandmedicinenowallows
couplesandwomentoexercisecontrolovertheirfer­
tility.Wearelivinginanagewhenmostchildrenare
'wanted'.Thedevelopmentofeducationandgreater
accesstoinformationforparentshasreshapedindivid­
ualandsocialattitudestofamilylifeandchildren.
Neverthelessthenewsituationdoesnotprecludediffi­
cultiesormistakes.
Theideaof'children'srights'basedontheirinterests
has,asexpected,gainedgroundandanInternational
ConventiononChildren'sRightshasbeenadopted.
Alargenumberofstateshavealreadyratifiedthe
Convention .
1.4.2.Withoutdealingexhaustivelywiththetopic,
wesummarizebelowsomeofthechild'sessentialrights
andinterests(basedmainlyontheInternationalCon­
ventiononChildren'sRights,whichisinturnderived
fromthehumanisticprinciplesunderlyingtheUniversal
DeclarationofHumanRights):
a)achildisapersonwhodeservesrespectperse;a
childhasarighttochildhood,whichisquintessen­
tiallyanageofdiscovery,learningandinitiation
intoindividualandsociallife;
b)achildhasarighttohavearealfamilywhich
recognizeshimasitschildandwhichherecognizes
ashisfamily;1.3.Togiveachildtoacoupleorafamilytoachild?
1.3.1.Whereitwaspractised,adoptionhistorically
fulfilledanumberofsocialfunctions,suchasthehand­
ingdownofpropertyintheabsenceofadirectheir,
passingonthecustomsofafamilygroup,strengthening
alliancesbetweensocialgroupsandboostingthepower
ofclansortribes.Againstthebackgroundofinfant
mortality,whichforalongtimefosteredatransient
perceptionofchildrenandchildhood,parenthoodwas
initiallyseenasasocialphenomenonseparatefrom
biologicalaffiliation.
1.3.2.InAncientRome,adoptionwasasacceptable
aformofsocialintegrationasbirth.The'paterfamilias'
determinedtheparentallink,eitherbyacceptingor
rejectinghiswife'schild,orbyadoption.Thepreroga­
tiveoftheelite,adoptionhadareligiousdimension :it
ensuredthecontinuityoftheancestralreligioninthe
eventofafatherbeingchildless;itprovidedforthe
handingdownofproperty,nameandheritage;andit
wasafactorforupwardsocialmobility,sinceadopted
childrenwereentitledtofullRomancitizenship,and
plebscouldbecomePatricians.(Thebestknownexam­
plewastheadoptionofOctavius,thefutureAugustus,
byJuliusCaesar.)
1.3.3.Weshallconfineourselvestothisverybrief
historicalreferencewithouttracingtheprogressof
adoptioninthehistory,customsandlawofeachMem­
berState,particularlysincetherearestrongsimilarities
betweenthem.Theimpactof(a)thechurches(notably
throughcharitableorganizationssetuptolookafter
abandonedchildren)and(b)otherhumanitarianphilo­
sophies,neverthelessneedstobeunderlined.Bothhave
contributedhistoricallytoenhancingtheroleoffamil­
ies,improvingthepositionofthechildinsocietyand
(')Manylawyerspointoutthatoneoftheintrinsicobjectives
oflawistohelpcontrolexcesseswhichmightbreachfunda­
mentalhumanisticprinciples.('Desiredoesnotconferrights',
CatherineLABRUSSE.)(2)InternationalConventionofChildren'sRights.
(3)Titleofastudy(publishedin1900)bytheFrenchlawyer
LEROY.

4.11.92 OfficialJournaloftheEuropeanCommunities NoC287/21
Itistheresponsibilityofstatestotakeaveryfirmline
ontherulesgoverninginternationaladoptiontoensure
thattheindividualrightsofbothparentsandchildren
areprotected.Thiswouldhelptoputastoptothereal
ordisguised'trade'inchildren,orkidnapping,andcurb
pressuredesignedtopersuadenaturalparentsindistress
toabandontheirchildren.
Adoptiveparentsmustbeproperlyinformedabouttheir
parentalrights,whichmustbeeffectivelysafeguarded .
Hereagaintheinterestsofthechildareatstake,since
theyarelinkedtotheadoptiveparents'senseofsecurity
withregardtotheserights.
1.4.6.Accesstooriginsisoftenconsideredtobein
theinterestsofyoungandadultadoptees.
1.4.6.1.Youngandadultadopteeswishtodelveinto
theircasehistoryasifknowledgeofthefactsmight
exorcisetheirinternalconfusionaboutthepast.Every­
oneneedstorelatetoatimeandaplace.However,^
learningaboutone'soriginsisnotnecessarilythesame
aslearningabouttheidentityofone'snaturalparents.
1.4.6.2.Bysimplewayofexample,aFrenchstudy
hasrevealedthat85%ofthosewhoexpressedadesire
tolearnabouttheiroriginsdecidedtheywouldnot
wanttoknowtheidentityoftheirnaturalparents.
Perhapsthesepersons,whowerebythenadopted,
wereafraidofhavingtojudgetheparentswhohad
abandonedthem.Knowledgedoesnotnecessarilylead
topeaceofmind.Itisdifficulttopredictthereactions
generatedbyafacetofaceconfrontation betweenan
abandonedchildanditsnaturalparents.Wemustalso
rememberthatalthoughthemothermaybeeasierto
identify,identificationofthefatherisgenerallylikely
tobemoreproblematic .Itwouldbemostunfairifthe
motherhadtotaketheblameforabandoningachild,
whenachildafterallhastwoparents.
1.4.6.3.Whereaccesstoachild'soriginsiscon­
cerned,weareawarethatitisnoteasytolaydown
ageneralrulebasedoncaseswhichareintrinsically
individualandsurroundedbyacomplexwebofcontra­
dictions,differences,hopesandfears.Ifsolutionshave
tobefound,greatcareshouldbetakentoensurethat
theyguaranteethelegitimateinterestsofalltheparties
concerned (theabandonedchild,thenaturalparents
andtheadoptiveparents).c)achildhasarighttotherespectandprotection
warrantedbyhisvulnerabilityandthehopeand
potentialheembodies.
Thesefirmprinciplesareexpectedtoaccompanyeach
phaseofadoption.
1.4.3.Attemptsareoccasionallymadetodrawup
prioritiesorrevealconflictsbetweentheinterestsofthe
childandthoseofitsadoptiveparents.Thisisfutile,
nottosaymorallyunjustifiable .Thehappychildisthe
childwhoiswantedandaccepted,beheabiological
oranadoptedchild.
Theprospectiveadoptiveparentshaveexpressedavery
strongdesiretohaveachild.Theywillbeexpectedto
openuptheirprivatelifeasacoupleandoffertheir
lovetoachildwhoserace,cultureandpersonalhistory
(ofwhichtheyareinmostcasesignorant)issometimes
verydifferentfromtheirs.Itwouldthereforebe
insultingtoprospectiveadoptiveparentstosuspectthat
theirgenerosityisself-centredandcalculating .Theact
ofadoptionillustratesclearlythatbloodtiesarenot
theonlyonescapableofcreatinglovingmaternal,
paternalandfilialrelations.
1.4.4.Theinterestsofthechildrequirethat:
a)Whenthetimecomestoabandonthechild,its
parents(andparticularlyitsmother)shouldreceive
psychologicalandsocialsupportinordertobeable
toappreciate,asfaraspossible,theimportanceof
thedecisionmade;theexistenceofa'periodof
reflection'givesthemotherthechancetoconfirm
orrevokeadecisionwhichmighthavebeentaken
inastateofemotionalshock,fearorpanic.
b)Beforeitisadopted,thechildshouldbecaredfor
inanappropriateenvironmentandunderconditions
whichfacilitateandpavethewayforadoption.
Duringthisperiod,theprotectionoftherightsand
interestsofthechildisinthehandsofthepublic
authority,whichassumesfullresponsibilities forthe
child'supkeepandeducation.Theearlyyearsof
childhoodhaveaverypowerfulandsometimes
decisiveinfluenceonthewholeofadolescenceand
adultlife.Hencetheimportanceofcloselymonitor­
ingthechild'sprogress.
c)Duringtheadministrative andlegalprocedures
involvedinadoption,prospectiveadoptersshould
bemadeawareoftheseriousnessoftheactionbeing
takenwhilstthepublicauthorities,asguardiansof
theinterestsofthechild,shouldmakesurethat
theseinterestsarefullyguaranteedbyadoption.
1.4.5.Theadoptionofchildrenfromabroadisnot
anewphenomenonbutitistendingtobecomemore
frequent.
Itshowstheabilityofmenandwomentotranscend
sometimesdeep-rootedracialandculturaldifferences.
Thisisapositiveaspect.2.16Recommendations
A)Concerningthegeneralphilosophyofadoption
2.1.Theinterestsofthechildmustalwaysremain
attheheartoflegislation,proceduresandmeasureson
adoption.ThisisthephilosophyofallMemberStates.

NoC287/22 OfficialJournaloftheEuropeanCommunities4.11.92
Withaviewtothefreemovementofpersons,consul­
tationsshouldbeheldbetweenMemberStatesonthe
standardsunderpinningnationaladoptionlegislation.
Significantdistortionsmightbeprejudicialtotheinter­
estsofthechildrenandtheiradoptiveandnatural
parents.Asfarasthepersonalstatusofindividualsis
concerned(affiliation),theauthorityandresponsibiliti­
esofMemberStatesmustbefullyprotected.
2.6.1.Prospectiveadoptersareoftenanxious.
Imposingunnecessarybureaucratichurdles,assome­
timeshappens,withoutexplainingtheiruseandraison
d'etre,mayunderminerespectforthepersonscon­
cernedandtheiradoptionproject.Prospectiveadopters
mustbeassistedincarryingouttheirproject,whereas
sometimestheyaregiventheimpressionofmerely
being'judged'.Familyorganizationsandassociationsof
adoptiveparentshaveanimportantroleinsupporting
prospectiveadoptersanddefendingtheirrights.
2.6.2.Itisthereforehighlydesirablethatthe'trial
period'requiredofprospectiveadoptersisconfinedto
essentialinvestigationsandappraisalsandthatthese
arerapidlyconcluded,withoutofcourseundermining
thestandardsofassessmenttobeobserved.Withthis
inmind,thevarioussocialservicesmustcoordinate
theiractionsandtheymustbeabletodrawona
sufficientlylargeteamofqualifiedstaff.Giventhe
relativelysmallnumberofadoptions,procedural
improvements couldbemadehereortherewithout
callingforeffortswhichwouldbedifficulttosustain.B)Concerningtheabandonmentofachild
2.2.Thecircumstanceswhichpromptparents(and
oftenthemotheraloneinherdistress)toconsider
abandoningachild,callforactionwhichisaspractical
aspossible:education,housing,trainingandemploy­
ment,socialsupport,accesstoinformationonmethods
ofcontraception ,etc.,theaimbeingtoforestallthe
causesofabandonmentwhichalwayshaveveryserious
consequences .
2.3.Whenthetimecomestoconsiderabandoning
theirchild,parents(andparticularlymothers)need
tobegiventhepsychologicalassistancenecessaryfor
preparingtheirdecision,aswellasmoral,socialand
financialaidinkeepingwiththesolutiontobefound.
Psychologicalsupportforthemothermustbeavailable
continuously .
2.3.1.Theperiodofreflection,duringwhichthe
decisiontoabandonthechildmayberevoked,mustbe
shortandusedwhollyintheinterestsofthechild.A
childshouldneverbeadoptedbeforeexpiryofthe
periodofreflection.Duringthisperiodparentsmust
behelpedtoappreciatetheirreversiblenatureoftheir
decision.
2.4.Theabandonedchildshouldbeplacedunder
thecareofthepublicauthorities,thelatterassuming
fullresponsibilities foritsupkeep,educationandpro­
tection.
2.4.1.Inpractice,theabandonedchildisplacedeith­
erwithafosterfamily(notnecessarilyitsfutureadop­
tivefamily)orinaspecializedinstitution.
2.4.2.Solutionsshouldtakeintoaccountthechild's
individualcharacteristics .Theinitialchoiceshouldbe
adjustableaccordingtothechild'sageandneeds.
Handicappedchildrenshouldreceivespecifictreatment.
Sinceachildneedssecurityforpersonalequilibrium
anddevelopment ,decisionstochangeinstitutionsor
fosterfamilymustbetakensolelyintheinterestsofthe
child.Thepublicauthorities,whichareresponsiblefor
theabandonedchild,havethetaskofauthorizingand
monitoringthedifferentformsofcareinthelightof
thechild'sinterest.
2.5.Thisperiodofcare,whichoughttobeasbrief
aspossible,mustbeusedtopavethewayforadoption
intheknowledgethat(a)achildmustbeabletolivein
afamilywhichitregardsasits'own',and(b)adoptive
parentswishinmostcasestotakeinachildwhenitis
veryyoungsoastofacilitateintegrationintothefamily.2.7.Prospectiveadoptersshouldhavetherightto
appealagainstadministrative andlegaldecisionswhich
concernthemandshouldbegiventhetypeofassistance
theyrequire.Childrenshouldalsobeheardunder
appropriateconditionsiftheyareoldenoughtoexpress
theirviews.
D)Concerningthepracticeofadoption
2.8.Itisnaturalthatthepublicauthoritieswishto
ensurethatallparentsfulfiltheirresponsibilities inthe
interestsoftheirchildren.Moreover,thisobservation
isvalidforallparentsandchildren,naturaloradopted.
2.9.Intheinterestsofboththeadoptedchildand
theadoptiveparents,itshouldnotbepossibleforfull'
adoptionorderstoberescinded.
2.10.Iflegalproceedingsareinstitutedsubsequent
toanadoptionorder,everypossibleprecautionmust
betakenintheinterestsofthechild,whoseprivacyand
vulnerabilitymustberespected,asmusttheinterestsof
itsadoptiveparents.
2.10.1.Thispointisalsointendedasanethicalrec­
ommendation tothemedia.C)Concerningadoptionprocedures
2.6.Suchproceduresmustberigorousbutnot
unnecessarilyprotracted.

4.11.92 OfficialJournaloftheEuropeanCommunities NoC287/23
2.15.1.Althoughaccesstoethnicorgeographical
originshardlypresentsanyproblems,revealingthe
identityofnaturalparentspresupposesthatathorough
casestudyhasalreadybeencarriedout.
G)Concerningfosteringasanalternativetoadoption
2.16.Therearemanychildrendeprivedofparents.
Someofthesechildrenhavebeenlegallyabandoned
butwillnotbeadopted.Others,thoughnotabandoned
dejure,havebeenvirtuallyabandoneddefactobecause
ofthelackofregularcontactwiththeiroriginalfamily.
Thesechildrenarefrequentlyplacedincare.Theyare
thereforelikelytoreachadulthoodwithouteverhaving
knownthewarmthofarealfamily.
2.16.1.Inthecaseofsuchchildren,differentforms
of'fostering'areneeded.Fosteringdoesnotcreate
bondsofaffiliation.Whatitdoesdoiscreateanatmos­
phereofaffectionandsolidaritybetweenthefostering
party(oftenafamilywithitsownchildren)andthe
fosterchild.AllStatesshouldthereforebeurgedto
encouragefosteringandtotackleanyproblemsarising
fromthepractice,e.g.inrespectofthecivilliabilityof
thefosterparent.2.11.Familyorganizationsandassociationsofadop­
tiveparentsmustbeencouragedandassistedintheir
actiontosupportadoptivefamilies.Associationsof
adoptiveparentshaveplayedamajorpartinmaking
itclearthattheinterestsofthechildareparamount.
E)Concerninginternationaladoptions
2.12.Drawingonjointstudiescarriedoutwiththe
MemberStates,theEuropeanInstitutionsshould
encourageeachindividualMemberStatetoconclude
intra-andextra-Community conventionswhichregu­
latetheconditionsgoverningtheorganizationofinter­
nationaladoptionsaffectingtheirownnationalseither
asparentsorchildren.Suchmeasuresbecomeeven
morenecessarywiththefreemovementofpersons.
2.13.EveryStateshouldbeencouragedtosetup
specialistagenciestoprovideinformationtoprospec­
tiveadoptersofforeignchildrenandtoofferassistance
whenapplicationsaremade.Thiswouldavoidsub­
sequentlegalproblemswhicharedifficulttoresolve
andmighthaveseriousmoral,psychologicalandper­
hapsevenpoliticalconsequences .
2.14.Associationsandintermediaries involvedinthe
adoptionofforeignchildrenmustreceivethebacking
oftheStateinwhichtheyarethemselvesestablished,
aswellasthebackingoftheStatewheretheyareactive,
andshouldbecontrolled .
F)Concerningaccesstoorigins
2.15.Howeverunderstandable itmaybe,thedesire
ofanadoptedpersontohaveaccesstohisoriginsmust
besubjecttoprecautionssoastoavoidimmediateor
long-termdamagetothepartiesinvolved(theparents,
andparticularlythemother,whohaveabandonedthe
child;thechild,whoishardlyabletoassessimmediately
thepsychologicalandotherconsequenceshewillsub­
sequentlyhavetobear;andtheadoptiveparents).We
wouldthereforesuggestthatanarbiter,ofacknowl­
edgedneutralityandcompetence,begiventhetaskof
informingtheapplicantofthedifficultiesandconse­
quencesofhisactionandofmakingsurethatthe
objectivehepursuesisreasonable.Ifanopinionis
given,thereshouldbescopeforrecoursetoanappeal
court.3.Conclusions
Theconceptofadoptionisinextricablylinkedtothe
conceptofFamily:'thefamilyimpliesconsanguinity
whichhasbeenassumed,acceptedand'cultivated'in
allsensesoftheword'.Consanguinity isanintegral
featureofcivicrightssinceitdeterminesthestatus,
dutiesandrightsofanindividual.Itispartandparcel
offamilylaw.
Achildisnotresponsibleforthestatusofitsparents,
norfortheirattitudesandfailures:heshouldtherefore
neverbeavictimofthissituation.
Theparamountinterest,andhencesovereignright,of
achildistobeabletoliveinafamilywhereheisloved
andcanhimselfloveandbehappyandsecure.Isthere
thenanyneedtoengageinaspeculativediscussionto
trytodiscovertowhatextentthislovecanbeascribed
tobloodtiesandtowhatextentbloodtiesalonetake
precedence.
APPENDIX
COMPARISON OFECLEGISLATION ONADOPTION
Inanattempttoobtainanoverviewofthedifferencesandsimilaritiesbetweentheadoptionlawsapplicable
intheMemberStates,aquestionnaireontheirimplementation wassenttothemembersoftheStudyGroup
onAdoptionoftheSectionforSocial,Family,EducationalandCulturalAffairs.
ThisdocumentsummarizestherepliesreceivedbytheRapporteur .

NoC287/24 OfficialJournaloftheEuropeanCommunities 4.11.92
QuestionNo1:Whatdifferentformsofadoptionexist?
Fulladoption(legitimationthroughadoptioninItaly)existsinallMemberStates.Onlyminorsareconcerned.
IntheUnitedKingdom,NetherlandsandIreland,nootherformofadoptionispossible.
QuestionNo2:Isthereanyagelimitforachildtobeeligibleforadoption?
AmaximumagelimitforfulladoptionappliesinallMemberStates:18inBelgium,IrelandandtheUnited
Kingdom,16inLuxembourg,15inFrance,14inItaly,SpainandPortugal(*).
Inaddition,fulladoptionisnotpossiblebeforeaminimumageofthreemonthsinLuxembourgandFrance,
eightweeksinGermanyandsixweeksinIreland.
QuestionNo3:Arethereanyconditionsregardingtheadopter'sage?Minimum/maximumage?Agegap
vis-a-vistheadoptedperson?
ExceptinPortugal,wheretheadoptermustbeundertheageof60,nomaximumageissetbylawthough
thisremainsafactorwhenconsideringtheinterestsoftheadoptedperson.
Ontheotherhand,allcountriesprovideforaminimumage.Anadoptermustbe25inBelgium,Germany
(21fortheotherspouse),PortugalandLuxembourg,30inFrance,SpainandIreland(25forcouplesmarried
forthreeyearsormore)and21intheUnitedKingdom.Thisagelimitmaybereducedinthecaseofadoption
ofaspouse'schild(21inIrelandandtheUnitedKingdom).
Further,aminimumagegapof15yearsbetweenadopterandadoptedpersonisrequiredinFrance,Belgium
andLuxembourg (16inSpain).NosuchrequirementexistsinIrelandortheUnitedKingdom.InItalythe
adoptermustnotbemorethan40yearsolderthantheadoptedperson.IntheNetherlandstheadoptermust
benolessthan18andnomorethan50yearsolderthantheadoptedperson.
QuestionNo4:Isitpossibleforunmarriedcouples/singlepersonstoadopt?
AdoptionbyunmarriedcouplesisnotauthorizedinanyMemberState.Singlepersonsmayadopt,exceptin
Italy.
QuestionNo5:Isitpossibletoadoptnon-nationals ?
AllMemberStatesprovideforthispossibility.IntheNetherlandsthechildmusthavebeenlivingforone
yearwiththeadoptivefamilypriortoadoption.
QuestionNo6:Whatconditionsapplytotheadoptionofachildfromanon-ECcountry?
Dependingonthecase,theconditionsrelatingtointernationaladoptionaregovernedbythenational
legislationoftheadoptedchildoradopterandareassimilatedinthisrespecttotheconditionsrelatingto
adoptionofnationals.
QuestionNo7:Istheadoptedchildentitledtolearntheidentityofitsnaturalparents?
Insomecasesanadoptedchildmayhaveaccesstodetailsofparenthoodindicatedinthebirthcertificatein
theUnitedKingdom,BelgiumandPortugal.Inothercountriesadoptedchildrenarenotsystematicallyentitled
tolearntheidentityoftheirbiologicalparents.IntheNetherlandsthismatteriscurrentlyunderconsideration .
QuestionNo8:Mustbiologicalbrothersandsistersbeadoptedbythesamefamily?
NosuchobligationexistsinanyMemberStateotherthanItaly.However,whereverpossibleanattemptis
madenortosplitupbrothersandsistersintheinterestsoftheadoptedchildren.
QuestionNo9:Doadoptedchildrenhavethesamerightsasbiologicalchildren?
TheyenjoythesamerightsasbiologicalchildreninallMemberStates.Anumberofrestrictionsapplyinthe
caseof'simple'adoptionoradoptionofthechildofaspouse(Luxembourg,France,BelgiumandGermany)
andfortheinheritanceoftitles(nobilityorhonourary)(UnitedKingdom).
QuestionNo10:Doesthebiologicalmother/fatherretainrightsoverhis/herchild?
Asarulebiologicalparentsdonotretainanyrightsoveranadoptedchildexceptinthecaseof'simple'
adoptionincountrieswherethisformofadoptionexists.Insuchcasestheserightsconcernrightofaccess
(Belgium),dutyofmaintenance (Belgium,LuxembourgandFrance)andundercertainconditionstheright
ofsuccession(Belgium,Luxembourg ,France).
QuestionNo11:Musttheadoptedchildagreetotheadoption?Ifso,fromwhatage?
Mostcountriesrequiretheconsentoftheadoptedchildafteracertainage(13inFrance,14inGermanyand
Portugal,15inBelgiumandLuxembourg,12intheNetherlands).IntheUnitedKingdomandIrelandno
legalrequirementexistsbutthechildmaybeconsulted.ThesameappliesinItalywhenthechildisbetween
12and14years'old.
(!)BywayofderogationfromthisgeneralprinciplePortuguese
lawpermits,undercertaincircumstances ,fulladoptionof
non-emancipated minorsundertheageof18(cf.No2of
Article1980oftheCivilCode):

4.11.92 OfficialJournaloftheEuropeanCommunities NoC287/25
QuestionNo12:Isthereanadoption'trialperiod'?
Allcountries,exceptforLuxembourg,havea'trialperiod'(oneyearintheNetherlands,sixmonthsinFrance
andthreemonthsin.Belgium;inGermanythedurationisfixedbythecourt).
QuestionNo13:Aretheadoptiveparentsentitledtospecialleaveonreceptionoftheadoptedchild?
Yes,inFrance,Italy,LuxembourgandPortugal.
QuestionNo14:Whichauthoritiesareresponsibleforadoptionprocedures(judicial/administrative ,
specialized/non-specialized )?
Thoughtheadoptionprocessinvolvesseveraltypesofauthorities (federalandLanderyouthboardsin
Germany),inallthecountriesunderreviewthisprocessisjudicialinnature(Germany,Belgium,Luxembourg,
Italy,France,UnitedKingdom,Netherlands,Portugal).Localauthoritiesarealsoinvolved(UnitedKingdom,
France,Italy)aswellasspecializedagencies(Ireland,UnitedKingdom).
QuestionNo15:Isadoptionbyamemberoftheextendedfamilypossible?
InallcountriesexceptItalyadoptionbyamemberoftheextendedfamilyispossiblethoughinBelgiumlegal
doctrineshowssomereservationsregardingadoptionbygrandparents (whichcontinuestobeprohibitedin
theNetherlands).InFrancethistypeofadoptionisprimarilyunderthe'simple'adoptionprocedure.
QuestionNo16:Isadoptionbythespouseofthenaturalmother/fatherofthechildpossible?Ifso,inwhat
form(simple/full)andunderwhatconditions?
ThispossibilityexistsinallMemberStates.However,certainderogationsfromthegeneralruleapplyin
somecountries:retentionofthenaturalrelationshipinFrance,moreflexibleageconditionsinBelgiumand
Luxembourg .
QuestionNo17:Mustthenaturalfatherandmotheragreetotheadoptionoftheirchild(problemsconnected
withunmarriednaturalfather;divorcedparentwithoutcustody)?
AllMemberStatesrequiretheparents'consenttoadoptionwheretheyarerecognizedbylawashaving
rightsoverthechild.1»Italyconsentisnotnecessaryifthechildhasdefactobeenabandoned.Inthe
Netherlandstheconsentoftheparentsisnotrequiredexceptinthecaseofadoptionbyastepfather/mother;
ontheotherhand,theymayopposeadoptiononce—thesecondtimethecourtmayoverrulethem.
QuestionNo18:Whatlegalmeasuresexistforsurveillanceofminorsplacedinaninstitutionwhomayin
effecthavebeenabandonedbytheirparents?
InBelgium,Luxembourg,ItalyandFrance,theadministrative authoritiesresponsibleforchildwelfare
monitorindividualsituationsand,wherenecessary,takestepstoregisterabandon,thusmakingadoption
possible.
QuestionNo19:Doesthelawrequirethatapplicantsforadoptionmustbeapproved?Ifso,inwhat
circumstancesandunderwhatconditions?Whatauthorityissuessuchapproval?
AnauthorizationprocedureassessingthesuitabilityoftheputativeadoptersexistsinFrance(localauthority
level),IrelandandtheUnitedKingdom(adoptionagencies),theNetherlands (childwelfareboard)and
Portugal.NosuchrequirementexistsinBelgiumorLuxembourg .
QuestionNo20:Whatadoptionintermediaries arelegallyempoweredtoactinyourcountry?What
obligationsdotheyhavevis-a-visthechild'snaturalparents?applicantsforadoption?
InallMemberStatesonlythecompetentpublicauthoritiesorrecognizedprivatebodies(adoptionsocieties
inFrance,adoptionagenciesintheUnitedKingdomandIreland,Caritasandworkers'welfareassociation
inGermany)canactasintermediaries intheadoptionprocess.Theirroleconsistsprimarilyofinforming
andsafeguardingtherightsofboththeadoptedandadopters.
QuestionNo21:Isamandatoryperiodofreflectiondatingfromthechild'sbirthrequiredofthenatural
fatherandmotherbeforetheirconsenttotheadoptioncanbeconsideredvalid?
AllMemberStates,exceptforItalyandtheNetherlands,provideforaperiodofreflection,whichvariesin
length:threemonthsinFranceandLuxembourg ,twomonthsinBelgiumandsixweeksinIrelandandthe
UnitedKingdom.IntheNetherlandsadefactoreflectionperiodofthreemonthsapplies.

NoC287/26 OfficialJournaloftheEuropeanCommunities 4.11.92
QuestionNo22:Istheconsentofthenaturalfatherandmothertotheadoptionirrevocable?Ifso,what
timelimitappliesforwithdrawalofconsentandwhatisthelegaleffect?
InalltheMemberStatesconsenttoadoptionmaybewithdrawn,subjecttocertaintime-limits :uptothe
courtadoptionorderinBelgiumandtheUnitedKingdom,foratleastthreemonthsandthereafterupto
placementwithaviewtoadoptioninFrance,forthreemonthsinLuxembourgandsixmonthsinIreland.
QuestionNo23:Canthenaturalfatherandmothergiveconsentwithoutknowingtheidentityofthe
applicantsforadoption(consentrelatingtopersonsunknown)orwithouttheadopters
alreadyhavingbeendesignated(unconditionalconsent)?
ExceptinItaly,wherenoprovisionismadeforsuchconsent,parentsusuallygivetheirconsenttoadoption
withouttheadoptershavingbeendesignated.Inparticularthisappliesto'anonymous'births(Luxembourg,
France).
QuestionNo24:Underwhatconditionsisitpossibletodispensewiththeconsentofthenaturalfatherand
mother?Inwhatform?
ExceptinItaly,wheresuchconsentisnotrequired,inallotherMemberStatesitmaybewaivedifthe
parentsareunable,onpractical,moralorlegalgrounds,togivetheirconsent.Persistentrefusal,obvious
disinterestandrisksforthechild'shealthareothervalidgroundsforwaivingconsent.Acourtordermay
thensometimesbenecessary:France,Luxembourg ,Belgium,Ireland(SupremeCourt).InPortugaltheCourt
candispensewiththeconsentoftheparents,iftheyareunabletogiveitonmentalormoralgrounds.
QuestionNo25:Canthenaturalfamilybegranted,albeitonlyasanexceptionalmeasure,therighttovisit
theadoptedchildafteradoption?
InBelgiumandLuxembourgthisrightexistsinthecaseof'simple'adoption;alsointheUnitedKingdom
forfulladoptionandtheNetherlandsforadoptionbyastepfather.ItdoesnotexistinItaly,France,Ireland
orLuxembourginthecaseoffulladoptionandinBelgiumthisrightonlyexistsinlegaldoctrine.InSpaina
naturalfatherormotherisprohibitedbylawfromcontactwithminorchildrenadoptedunderthefull
adoptionprocedure.
QuestionNo26:Whatsolutionsareavailableinlawintheeventoffailureofanadoption?
Incountrieswhere'simple'adoptionexists,itmaybeannulledintheeventoffailureandpossiblyfollowed
byre-adoption (Germany,Belgium,FranceandLuxembourg).
Incontrast,fulladoptionisnormallyirrevocableandnolegalsolutionexistsintheeventoffailureinFrance,
Belgium,IrelandorItaly,exceptforplacingthechildwithawelfareservice.However,intheUnitedKingdom
insuchcasesachildmaybeadoptedbyanotherfamily.InGermanyfulladoptionmaybeannulledon
seriousgroundsandinthechild'sinterestsandmustthenbefollowedbyanewadoption.InSpainacourt
ordermaycanceltheadoptionwithinaperiodoftwoyearssubjecttocertainconditions,attherequestof
theadoptedpersonorhis/herparentsbutneverontheadopter'sinitiative.IntheNetherlandsadoptionmay
beannulledattherequestoftheadoptedchild,noearlierthantwoyearsandnolaterthanthreeyearsafter
reachingtheageofmajority.
Aswillbeapparentfromthisoverview,therearemanysimilaritiesbetweenthelawsoftheMemberStates.
Thekeydifferenceliesintheexistenceornotofa'simple'adoptionprocedure.
Thisshortreviewoftherelevantlegislationshowsthananumberofpointscouldbeexploredingreater
depth.Withoutseekingtobeexhaustive,attentioncouldbefocused,fromtheangleofsafeguardingthe
rightsofthechild,ontheguaranteestobeprovidedtochildreneligibleforadoption,viz.:
—monitoringoftheirsituation,
—accesstotheidentityofthenaturalparents,
—conditionsgoverninginternationaladoption.
DoneatBrussels,1July1992.
TheChairman
oftheEconomicandSocialCommittee
MichaelGEUENICH