Proposal for a COUNCIL DECISION authorising Austria and Romania to accept, in the interest of the European Union, the accession of Honduras to the 1980 Hague Convention on the Civil Aspects of International Child Abduction
Date: 2018-07-06
Institutions: Directorate-General for Justice and Consumers, European Commission
Subjects: Austria, Honduras, Romania, accession to an agreement, child protection, custody, illegal restraint, international convention, parental responsibility, rights of access

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 6.7.2018 COM(2018) 528 final 2018/0278 (NLE)  Proposal for a COUNCIL DECISION authorising Austria and Romania to accept, in the interest of the European Union, the accession of Honduras to the 1980 Hague Convention on the Civil Aspects of International Child Abduction   
 
 
EXPLANATORY MEMORANDUM 

1. 

• 

CONTEXT OF THE PROPOSAL 

Reasons for and objectives of the proposal 

The aim of the Hague Convention of 25 October 1980 on the Civil Aspects of International 
Child  Abduction  (hereafter:  "the  1980  Convention"),  to  date  ratified  by  98  countries, 
including all EU Member States, is to restore the status quo by mean of the prompt return of 
wrongfully  removed  or  retained  children  through  a  system  of  cooperation  among  central 
authorities appointed by its Contracting Parties. 

As the prevention of child abduction is an essential part of the EU policy to promote the rights 
of the child, the European Union is active at international level to improve the application of 
the 1980 Convention and encourages third States to accede it. 

Honduras deposited the accession instrument to the 1980 Convention on 20 December 1993. 
The Convention entered into force in Honduras on 1 March 1994. 

The  1980  Convention  is  already  into  force  between  Honduras  and  25  EU  Member  States. 
Only Austria, Denmark and Romania have not yet accepted the accession of Honduras to the 
Convention. 

Article  38(4)  of  the  1980  Convention  stipulates  that  the  Convention  applies  between  the 
acceding  country  and  such  Contracting  States  as  will  have  declared  their  acceptance  of  the 
accession.  

The  existence  of  the  EU  exclusive  competence  in  the  matter  of  the  acceptance  of  the 
accession of a third State to the 1980 Convention was confirmed by the Court of Justice of the 
European Union, which was consulted at the Commission's initiative.  

On 14 October 2014, Opinion 1/13 of the Court of Justice of the European Union stated that 
the  exclusive  competence  of  the  European  Union  encompasses  the  acceptance  of  the 
accession of a third state to the 1980 Hague Convention on the Civil Aspects of International 
Child Abduction.  

The Court insisted on the need for uniformity on the matter at EU level, avoiding a géométrie 
variable among Member States.  

As the matter of international child abduction falls within the exclusive external competence 
of the European  Union, the decision whether to accept  the accession of Honduras  has  to  be 
taken at EU level by means of a Council Decision. Austria and Romania should thus make the 
declaration  of  acceptance  concerning  the  accession  of  Honduras  in  the  interest  of  the 
European Union. 

The  acceptance  of  Austria  and  Romania  would  render  the  1980  Convention  applicable 
between Honduras and all EU Member States except Denmark. 

• 

Consistency with existing policy provisions in the policy area 

As  far  as  parental  child  abduction  is  concerned,  the  1980  Hague  Convention  is  the 
international  counterpart  of  Council  Regulation  No  2201/2003  (known  as  the  Brussels  IIa 

EN 

1 

  EN 

 
Regulation) which is the cornerstone of EU judicial cooperation in matrimonial  matters and 
matters of parental responsibility.  

One  of  the  main  objectives  of  the  Regulation  is  to  deter  child  abduction  between  Member 
States by establishing procedures to ensure the child's prompt return to the Member State of 
his/her habitual residence. To this end, the Brussels IIa Regulation incorporates in its Article 
11 the procedure laid down in the 1980 Hague Convention and complements it by clarifying 
some of its aspects, in particular the hearing of the child, the time period to render a decision 
after an application for return has been lodged and the grounds for not returning the child. It 
also  introduces  provisions  governing  conflicting  return  and  non-return  orders  issued  in 
different Member States. 

At  the  international  level,  the  European  Union  supports  the  accession  of  third  States  to  the 
1980 Convention in order for its Member States to rely upon a common legal framework to 
deal with international child abductions.  

14 Council Decisions have been already adopted between June 2015 and December 2017 in 
order to accept the accession to the 1980 Hague Convention on International Child Abduction 
of  20  third  countries  (Morocco,  Singapore,  the  Russian  Federation,  Albania,  Andorra,  the 
Seychelles, Armenia, the Republic of Korea, Kazakhstan, Peru, Georgia, South Africa, Chile, 
Iceland, the Bahamas, Panama, Uruguay, Colombia, El Salvador and San Marino)1 . 

• 

Consistency with other Union policies 

The present proposal is evidently linked to the general objective enshrined in Article 3 of the 
Treaty on the European Union to protect the rights of the child. The 1980 Hague Convention 
system is designed to protect the child from the harmful effects of a parental abduction and 
ensure that the child is able to maintain contact with both parents, for instance by securing the 
effective exercise of access rights. 

It is worth mentioning also the link to the promotion of the use of mediation in the settlement 
of  cross-border  family  disputes.  The  Directive  on  certain  aspects  of  mediation  in  civil  and 
commercial  matters2  also  applies  to  family  law  within  the  common  European  judicial  area. 
The 1980 Hague Convention also encourages the amicable resolution of family disputes. One 
of  the  Guides  to  Good  Practise  under  the  1980  Hague  Convention  published  by  the  Hague 
Conference on Private International Law is devoted to the use of mediation for the resolution 
of  international  family  disputes  concerning  children  which  fall  within  the  scope  of  the 
Convention. At the initiative of the European Commission, this Guide has been translated in 

1 

2 

14 Council Decisions have been already adopted, authorizing Member States to accept the accession to 
the  1980  Convention  of  Andorra  (Council  Decision  (EU)  2015/1023  adopted  on  15  June  2015); 
Seychelles  (Council  Decision  (EU)  2015/2354  adopted  on  10  December  2015);  Russia  (Council 
Decision (EU) 2015/2355 adopted on 10 December 2015); Albania (Council Decision (EU) 2015/2356 
adopted on 10 December 2015); Singapore (Council Decision 2015/1024  adopted on 15 June 2015); 
Morocco  (Council  Decision  (EU)  2015/2357  adopted  on  10  December  2015);  Armenia  (Council 
Decision (EU) 2015/2358 adopted on 10 December 2015); Republic of Korea (EU) (Council Decision 
2016/2313 adopted on 8 December 2016) , Kazakhstan (Council Decision (EU) 2016/2311 adopted on 
8.12.2016),  Peru  (Council  Decision  (EU)  2016/2312  adopted  on  8.12.2016);  Georgia  and  South 
Africa  (Council  Decision  (EU)  2017/2462  of  18  December  2017);  Chile,  Iceland  and  the  Bahamas 
(Council  Decision  (EU)  2017/2424  of  18  December  2017);  Panama,  Uruguay,  Colombia  and  El 
Salvador (Council Decision (EU) 2017/2464 of 18 December 2017); San Marino (Council Decision 
(EU) 2017/2463 of 18 December 2017). 
Directive 2008/52/EC of the European Parliament and of the Council of 21 May 2008 on certain aspects 
of mediation in civil and commercial matters (OJ L 136 of 24 May 2008, p. 3); 

EN 

2 

  EN 

 
                                                 
all  EU  languages  other  than  English  and  French  and  also  in  Arabic  to  support  the  dialogue 
with  States  which  have  not  yet  ratified  the  Convention  and  help  finding  concrete  ways  to 
tackle the problems posed by international child abduction with non-ratification countries3. 

2. 

• 

LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY 

Legal basis 

Given the fact that the decision regards an international agreement, the applicable legal basis 
is Article 218 of the Treaty on the Functioning of the European Union together with Article 
81 (3). The Council shall act unanimously after consulting the European Parliament. 

The  United  Kingdom  and  Ireland  are  bound  by  Regulation  (EC)  No  2201/2003  and  are 
therefore taking part in the adoption and application of this Decision. 

In accordance with Articles 1 and 2 of Protocol No 22 on the position of Denmark, annexed to 
the Treaty on European Union and to the Treaty on the Functioning of the European Union, 
Denmark is not taking part in the adoption of this Decision and is not bound by it or subject to 
its application. 

• 

Proportionality 

The present proposal is drafted along the lines of the already adopted Council Decisions on 
the same subject matter and does not go beyond what is necessary to achieve the objective of 
a coherent EU action in the matter of international child abduction by ensuring that Austria 
and Romania accept the accession of Honduras to the 1980 Hague Convention within a given 
time frame. 

3. 

• 

RESULTS 
CONSULTATIONS AND IMPACT ASSESSMENTS 

EX-POST 

EVALUATIONS, 

OF 

STAKEHOLDER 

Stakeholder consultations 

Austria  and  Romania,  consulted  by  the  Commission  on  their  willingness  to  accept  the 
accession of Honduras to the 1980 Convention, gave a favourable opinion.  

The discussions held at the expert meeting of 18 April 2018 showed that -at this stage- there 
are no objections from the Member States to the acceptance by Austria and Romania of the 
accession of Honduras to the 1980 Convention. 

• 

Collection and use of expertise 

Given that the Convention is already into force between Honduras and 25 Member States, it 
was  the  opinion  of  the  Commission  and  of  the  Member  States'  experts  that,  in  such  cases, 
there is no need of a specific assessment of the situation of the third country concerned.  

• 

Impact assessment 

As  for  the  14  Council  Decisions  already  adopted  between  2015  and  2017  concerning  the 
acceptance of the accession of several third States to the 1980 Hague Convention, no specific 
impact assessment has been carried out given the nature of this legislative act. In any case, a 
specific assessment of the situation of Honduras was deemed superfluous taking into account 

3 

https://www.hcch.net/en/publications-and-studies/details4/?pid=5568&dtid=3 

EN 

3 

  EN 

 
                                                 
both  the  fact  that  the  Convention  is  already  into  force  with  25  EU  Member  States  and  the 
willingness of Austria and Romania to accept Honduras. 

4. 

BUDGETARY IMPLICATIONS 

The proposed decision has no budgetary implications. 

5. 

• 

OTHER ELEMENTS 

Implementation plans and monitoring, evaluation and reporting arrangements 

As  the  proposal  concerns  only  the  authorization  to  Austria  and  Romania  to  accept  the 
accession  of  Honduras  to  the  1980  Convention,  the  monitoring  of  its  implementation  is 
limited  to  the  respect  by  Austria  and  Romania  of  the  wording  of  the  declaration  and  the 
timeframe to deposit it and communicate its deposit to the Commission as established in the 
Council Decision. 

EN 

4 

  EN 

 
2018/0278 (NLE) 

Proposal for a 

COUNCIL DECISION 

authorising Austria and Romania to accept, in the interest of the European Union, the 
accession of Honduras to the 1980 Hague Convention on the Civil Aspects of 
International Child Abduction 

THE COUNCIL OF THE EUROPEAN UNION, 

Having  regard  to  the  Treaty  on  the  Functioning  of  the  European  Union,  and  in  particular 
Article 81(3) in conjunction with Article 218(6)(b) thereof, 

Having regard to the proposal from the European Commission, 
Having regard to the opinion of the European Parliament4,  

Whereas: 

(1) 

(2) 

(3) 

(4) 

(5) 

The European Union has set as one of its aims the promotion of the protection of the 
rights of the child, as stated in Article 3 of the Treaty on European Union. Measures 
for  the  protection  of  children  against  wrongful  removal  or  retention  are  an  essential 
part of that policy. 
The  Council  adopted  Regulation  (EC)  No 2201/20035  (‘Brussels  IIa  Regulation’), 
which  aims  to  protect  children  from  the  harmful  effects  of  wrongful  removal  or 
retention and to establish procedures to ensure their prompt return to the state of their 
habitual residence, as well as to secure the protection of rights of access and rights of 
custody. 

The  Brussels  IIa  Regulation  complements  and  reinforces  the  Hague  Convention 
of 25 October 1980 on the Civil Aspects of International Child Abduction (‘the 1980 
Hague Convention’) which establishes, at international level, a system of obligations 
and cooperation among contracting states and between central authorities and aims to 
ensure the prompt return of wrongfully removed or retained children. 

All Member States of the Union are party to the 1980 Hague Convention. 

The  Union  encourages  third  states  to  accede  to  the  1980  Hague  Convention  and 
supports  the  correct  implementation  of  the  1980  Hague  Convention  by participating, 
along  with  the  Member States,  inter  alia,  in  the  special  commissions  organised  on  a 
regular basis by the Hague Conference on private international law. 

(6) 

A common legal framework applicable between Member States of the Union and third 
states could be the best solution to sensitive cases of international child abduction. 

4 
5 

OJ C , , p. . 
Council  Regulation  (EC)  No  2201/2003  of  27  November  2003  concerning  jurisdiction  and  the 
recognition  and  enforcement  of  judgments  in  matrimonial  matters  and  the  matters  of  parental 
responsibility, repealing Regulation (EC) No 1347/2000 (OJ L 338, 23.12.2003, p. 1). 

EN 

5 

  EN 

 
 
                                                 
(7) 

(8) 

(9) 

The 1980 Hague Convention stipulates that it applies between the acceding state and 
contracting states that have declared their acceptance of the accession. 

The  1980  Hague  Convention  does  not  allow  regional  economic  integration 
organisations,  such as the Union, to become party to it. Therefore, the Union cannot 
accede  to  that  Convention,  nor  can  it  deposit  a  declaration  of  acceptance  of  an 
acceding state. 

Pursuant to Opinion 1/13 of the Court of Justice of the European Union, declarations 
of  acceptance  under  the 1980  Hague  Convention  fall  within  the  exclusive  external 
competence of the Union. 

(10)  Honduras  deposited  its  instrument  of  accession  to  the  1980  Convention  on  20 

December 1993. The Convention entered into force for Honduras on 1 March 1994.  

(11)  All concerned Member States, with the exception of Austria, Denmark and Romania 
have  already  accepted  the  accession  of  Honduras  to  the  1980  Hague  Convention. 
Honduras has accepted the accession of Bulgaria, Cyprus, Estonia, Latvia, Lithuania, 
Malta and Slovenia to the 1980 Hague Convention. An assessment of the situation in 
Honduras  has  led  to  the  conclusion  that  Austria  and  Romania  are  in  a  position  to 
accept, in the interest of the Union, the accession of Honduras under the terms of the 
1980 Hague Convention. 

(12)  Austria  and  Romania  should  therefore  be  authorised  to  deposit  their  declaration  of 
acceptance of the accession of Honduras to the 1980 Hague Convention in the interest 
of the Union in accordance with the terms set out in this Decision. The other Member 
States  of  the  Union  which  have  already  accepted  the  accession  of  Honduras  to  the 
1980  Hague  Convention  should  not  deposit  new  declarations  of  acceptance  as  the 
existing declarations remain valid under public international law. 

(13)  The  United  Kingdom  and  Ireland  are  bound  by  the  Brussels  IIa  Regulation  and  are 

therefore taking part in the adoption and application of this Decision. 

(14) 

In  accordance  with  Articles  1  and  2  of  Protocol  No  22  on  the  position  of  Denmark, 
annexed to the Treaty on European Union and to the Treaty on the Functioning of the 
European Union, Denmark is not taking part in the adoption of this Decision and is not 
bound by it or subject to its application, 

HAS ADOPTED THIS DECISION:  

Article 1 

Austria and Romania are hereby authorised to accept the accession of Honduras to the 
1. 
Hague Convention of 25 October 1980 on the Civil Aspects of International Child Abduction 
(‘the 1980 Hague Convention’) in the interest of the Union. 

Austria and Romania shall, no later than … [twelve months after the date of adoption 
2. 
of this Decision], deposit a declaration of acceptance of the accession of Honduras to the 1980 
Hague Convention in the interest of the Union worded as follows: 

‘[Full name of MEMBER STATE] declares that it accepts the accession of  Honduras to the 
Hague Convention of 25 October 1980 on the Civil Aspects of International Child Abduction, 
in accordance with Council Decision (EU) 2018/…’. 

3. 
Austria and Romania shall inform the Council and the Commission of the deposit of 
their declarations of acceptance of the accession of Honduras to the 1980 Hague Convention 

EN 

6 

  EN 

 
and shall communicate the text of those declarations to the Commission within two months of 
their deposit. 

This Decision shall take effect on the date of its notification. 

Article 2 

This Decision is addressed to Austria and Romania. 

Done at Brussels, 

Article 3 

For the Council 
The President 

EN 

7 

  EN