23 Deliberations at the Court allow the judges in a given formation to express their opinions about a case, to vote on the issues at stake, and to discuss the text of the decision or judgment under preparation. The deliberations take place in one of the two working languages of the Court, thus either English or French (Working language). Judgments and decisions are also issued in one or both of these languages (Translation of judgments: European Court of Human Rights (ECtHR)).
24 The type of formation concerned informs the procedure of deliberation and drafting. Thus, the single judge procedure involves no deliberation, as the decision issued in such cases is drafted by the non-judicial rapporteur and approved by the single judge. In general, the non-judicial rapporteur makes a suggestion as to how a single-judge case should be decided, and the single judge approves this recommendation. Dinah Shelton has observed that some judges have reported the impression that they are simply expected to ‘rubber-stamp’ the Registry’s decisions (see Shelton, 2016). Nevertheless, it must be reiterated that a single judge decision is based on the collaboration between the single judge and the non-judicial rapporteur assigned to the case in question. If the single judge is not sure about a case, he or she can contact the non-judicial rapporteur in order to receive an explanation of the submissions made in the national language. As noted above, the element of trust in the non-judicial rapporteur is therefore particularly important (cf para 15 above). If the single judge is still not sure about how to decide a case—not due to a lack of trust in the non-judicial rapporteur, but because the outcome is not clear—he or she will send the case to the three-judge Committee or even directly to the Chamber formation.
25 Committee cases are usually not submitted to a vote. Instead, they are decided by circular: the judges receive the draft judgment or decision prepared by the relevant case lawyer within the Registry—an experienced lawyer who knows the legal system and speaks the language of the country concerned—and are notified of a deadline by which they can voice their agreement or disagreement with this text. Thus, the Committee usually holds no meetings or deliberations unless one of the three judges requests this, for example because he or she does not agree with the outcome proposed in the draft or wishes to change the reasoning employed, or because he or she wants to make an amendment to the findings under Article 41 ECHR. If the Committee judges reach an agreement, they will issue their judgment or decision. If they are unable to do so, the case will proceed to the Chamber formation.
26 The Court’s two larger formations—the Chamber and the Grand Chamber—which involve more judges and address more complex legal issues than the single judge or the Committee, require more complex deliberation and drafting procedures. The following will focus on the working methods of these two formations.
27 These two formations must be considered separately, because there are some extensive differences regarding the deliberation and drafting practices between them. Thus, before deliberations in the Chamber formation commence, the judges receive a thick file from the Registry that already contains a draft judgment or decision. When the Chamber meets—always on a Tuesday—the judges therefore commence their deliberations with a concrete proposal for resolving the case before them, which is then deliberated upon. In the Grand Chamber, by contrast, a draft judgment or decision is never available when the judges begin deliberating. Instead, the judges commence their work on the basis of the note by the judge rapporteur and the various reports prepared by the Registry (cf para 36 below).
28 The proceedings in the Chamber also follow a less rigid process than in the Grand Chamber. Thus, in the Grand Chamber, there is an unwritten rule that a ‘regular’ judge—ie not the president, the national judge, or the judge rapporteur—can take the floor only once. In the Chamber, by contrast, the proceedings are less ordered, and judges can choose to take the floor two or three times. The following must be read with these differences, and those additional ones outlined below, in mind.
1. Background on the Rules of the Court
29 The Rules of the Court, which are adopted by the plenary Court (Art 25 (d) ECHR; International Courts and Tribunals, Rules and Practice Directions (ECJ, CFI, ECtHR, IACtHR, ICSID, ITLOS, WTO Panels and Appellate Body)), provide the framework for the Court’s deliberations both in its Chamber and Grand Chamber formations. The Rules stipulate that the deliberations of the Court will be private and secret (Rules 3 and 22 (1) RC). Deliberations take place with only the judges in a given formation present, along with the Registrar and other Registry officials or interpreters whose assistance is considered necessary, along with other individuals—for example researchers—who may occasionally be admitted by special decision of the Court (Rule 22 (2) RC).
30 Before a vote is taken on any matter, judges may state their opinions on it; the president has the power to request them to do so (Rule 22 (3) RC). Voting takes place by show of hands and votes are decided by a majority of judges present; ties are broken by the president of the Court or of the Section in question (Rule 23 (1) RC). Judges may not abstain from a vote concerning the admissibility or merits of a case (Rule 23 (2) RC). It is also possible for the president to opt for a roll-call vote, with judges voting one by one in reverse order of precedence (Rule 23 (3) RC).
31 There are some notable differences in the voting practices of the Chamber and the Grand Chamber, as explored below. These stem from the fact that the judges of the Chamber, at the first deliberation, already have a draft judgment or decision in hand, and those of the Grand Chamber do not. Thus, Grand Chamber judges must, at their first deliberation, signal how they propose to resolve the case before them. By contrast, in the Chamber, if judges do not voice disagreement with the draft judgment or decision provided to them, they are presumed to be in agreement with this draft, if not entirely then at least in a general sense. Indeed, there is an informal rule requiring Chamber judges who are fundamentally in disagreement with a draft judgment or decision to notify their colleagues of this a few days before the deliberations take place. Such notification, which takes place by e-mail, allows the other judges—and especially the judge rapporteur—to adequately prepare themselves for the deliberations.
32 Interim measures under Rule 39 RC may be indicated at the request of a party to a case, any other person concerned, or of the Court’s own motion. In practice, the Court has only indicated interim protection ex officio in a handful of cases (cf Öcalan v Turkey, 2005, para 5), and there has been no practice concerning requests by third parties (Keller and Marti, 2013, 331). Because the indication of interim protection can sometimes be exceedingly urgent, the Court has a dedicated fax number for receiving such requests, and requests sent before 4:00pm local time on weekdays are attended to on the same day (Provisional measures: European Court of Human Rights (ECtHR)). This means that such requests cannot be deliberated upon by whole Chambers. Therefore, while the decision to indicate such measures can be taken by a Chamber as a whole, it is usually taken by a Section vice-president (Rule 39 (1) and (4) RC). At the Court, a duty judge—usually a Chamber vice-president—is constantly available to receive Rule 39 requests. Upon receiving a request for interim measures, the duty judge consults with the national judge, and then decides whether to grant the Rule 39 protection. Generally speaking, the duty judge must be available around the clock, and must be prepared to quickly make often rather difficult decisions.
2. Scope of the Case
33 The judges deliberate on the issues communicated to the State—which form the scope of the case (paras 20 and 21)—on the basis of the submissions of the parties. The parties’ submissions can be very important at this stage, and so they are always distributed to the judges before the deliberation, both in the Chamber and Grand Chamber formations. The only exception applies in Chamber proceedings where an applicant has made submissions in his or her native language, where this language is not an official language of the Court.
34 In preparation for the Grand Chamber deliberations, judges are also provided with a note from the judge rapporteur—the so-called rapporteur’s note—which is prepared with the assistance of the Registry. This usually serves as a source of background information and provides an overview of the existing case law as well as an indication of where modifications of the jurisprudence may be necessary.
35 The national judge may prepare a similar note, but this is done without the Registry’s support. The content of such a note should generally be limited to the relevant aspects of the national law and practice. However, in the Chamber, a national judge’s note may also provide other arguments, for example urging the Chamber to refer a case to the Grand Chamber. In the Grand Chamber, the national judge’s note should be limited to the domestic law and practice. As the national judge can never serve as the judge rapporteur in the Grand Chamber formation, his or her note can serve as an opportunity to determine whether the judge rapporteur has correctly understood the domestic law and practice.
36 The file provided to the judges may also include a comparative law research report prepared by the Registry’s research division and compiled with input from all of the judges whose home legal systems are under discussion. Such a report is usually provided in the Grand Chamber formation and is possible—although not necessary—in the Chamber formation as well. These reports are compiled after a concrete question—for example about the domestic approach to a given question, or the national implementation of a given rule—is asked to the Research Division. The request for such a report is made by the judge rapporteur. The research division then collects the relevant information, often with the assistance of the Swiss Institute of Comparative Law, an independent body based in Lausanne. Once the report is finished, it is circulated among those judges whose home legal systems have been examined, who verify the information compiled. If questions of international law are involved, the Registry usually also prepares an international law report, and there may be reports on the Court’s own case law where this is considered necessary. These latter reports provide summaries and analyses of the Court’s past jurisprudence on the matter at hand.
37 In addition, the Court may—both in the Chamber and the Grand Chamber proceedings—receive third party interventions (Art 36 ECHR; Rule 44 RC). A third party intervention (Intervention: European Court of Human Rights (ECtHR)) may be submitted by any State whose national is an applicant before the Court (Art 36 (1) ECHR) or by the Council of Europe Commissioner for Human Rights (Art 36 (3) ECHR). The president of the Court may also grant leave to intervene to any other State or person—or, in practice, institution—who wishes to submit a third party intervention (Art 36 (2) ECHR). The briefs submitted by the third party interveners are distributed to the parties and to the judges in the relevant formation. If an oral hearing takes place, the third party interveners may be granted leave to present their arguments orally (Rule 44 (1) (a), (2), and (3) RC).
3. The Practice of Drafting and Deliberations in the Chamber
38 Cases allocated to a Section of the Court are assigned to one particular judge, who takes the role of judge rapporteur, and to an administrative unit of the Registry. Judge rapporteurs are designated by the president of the relevant Section (Rule 49 (2) RC), and their identity is strictly confidential. Together, the judge rapporteur and the registry prepare a draft judgment in the case, which is then circulated to the remaining judges in that particular Chamber formation.
39 This drafting process is informed by the observations of the Jurisconsult, who draws up a document concerning the Court’s case law to support the preparation of the draft. Such a document is compiled only regarding cases before a Chamber formation. The Jurisconsult’s observations, which are prepared and distributed a few days before the deliberations take place, serve to ensure the consistency of the Court’s case law.
40 After having received the draft, the judges meet to deliberate. Deliberations in the Chamber are led by the Section president, who first gives the word to the judge rapporteur and then to the national judge. The Section president has some discretion concerning the length and depth of the presentation of the draft (cf Arold, 2007, 63, n 205). After this, all of the remaining judges in attendance are allowed to express their opinions on the draft. The order in which these judges speak is not fixed, and judges may take the floor more than once. Their comments are followed by a vote, on the basis of which the Registry amends the draft. Substitute judges—thus, the remaining judges of a Section who are not selected to make up a given Chamber formation (Rule 26 RC)—generally cannot vote in the Chamber proceedings. This is due to the fact that they may be part of a later Grand Chamber formation tasked with examining the same case, wherefore they should not influence the decision-making at the Chamber stage.
41 At this point, it is possible for the Chamber to opt to hold a hearing. Although the general rule is that there is no hearing in Chamber proceedings, it is possible to hold one where the facts of the case are unclear and there is a need to obtain more information. Chamber hearings are public unless exceptional circumstances justify a closed hearing (Rule 63 RC). Thus, for example, in two Polish rendition cases decided in 2014, the Chamber formation held both a public and, at the request of the Government, an in camera hearing (Husayn (Abu Zubaydah) v Poland, 2014, paras 8–13; Al Nashiri v Poland, 2014, paras 10–15).
42 The Chamber may also, at this point, decide to refer a case to the Grand Chamber without issuing a judgment (Art 30 ECHR). This applies where a case raises a ‘serious question’ of interpretation, or a question that may, in its resolution, bring about a result inconsistent with the Court’s case law.
43 The Chamber, like the Grand Chamber, reaches a decision or judgment by a simple majority vote. There is usually no second deliberation in the Chamber proceedings, as there is often no need for one: generally, the Chamber judges approve the draft judgments or decisions before them.
44 In the event that the judges in the majority are unable to reach an agreement on the text of a draft judgment or decision in the first deliberation, there are two main ways for the Court to proceed. If the disagreement concerns the formulation of certain crucial paragraphs of the draft, the Court may apply the so-called pigeonhole procedure. This procedure, which is outlined below (see below paras 60–62), is designed to involve the Registry and facilitate the search for formulations that are mutually agreeable to the majority. In the unusual event that the majority of the judges in a Chamber formation does not agree with the finding made in a draft judgment, cases may also be adjourned to allow for the preparation of a new draft. Under these circumstances, it is mandatory to hold a second round of Chamber deliberations.
4. The Practice of Drafting and Deliberations in the Grand Chamber
45 Wednesdays at the Court are reserved for Grand Chamber work. Cases come before the Grand Chamber either because one of the parties requested a referral after a Chamber judgment (Art 43 ECHR) or because a Chamber formation relinquished the case (Art 30 ECHR). In case of a request for referral under Article 43 ECHR, a five-judge Grand Chamber Panel examines the request and determines whether it raises a serious question of the Convention’s interpretation or application, or ‘a serious issue of general importance’; if so, the request is accepted and the case is referred to the Grand Chamber (Art 43 (2) and (3) ECHR). A relinquishment, by contrast, is decided by the Chamber tasked with deciding a case and takes place where the Chamber determines that the case in question raises a serious question of the Convention’s interpretation or application, or where there is a potential that the Chamber’s findings will conflict with the Court’s existing case law (Art 30 ECHR). Either of the parties to a case can, according to Article 30 ECHR, veto the referral, although this will no longer be possible once Protocol No 15 amending the Convention for the Protection of Human Rights and Fundamental Freedoms (‘Protocol No 15’) enters into force (Art 3 Protocol No 15).
46 The process of deliberation and drafting in the Grand Chamber is similar to that before the Chamber, but with some important differences. For one, the Grand Chamber formation is made up of 17 judges, plus at least three substitutes in case a judge should be unable to carry on in the formation (Rule 24 (1) RC), instead of the seven judges who form a Chamber, and the president of the Court is in charge of this formation. Grand Chamber cases also regularly—though not necessarily—involve a public hearing, which allows the applicant as well as the respondent State and eventual third-party interveners to present oral arguments in addition to their written submissions and to engage with the arguments of the other parties directly. Judges can interact with any of the persons appearing before them in these proceedings by asking questions (Rules 62 (2) and 71 (1) RC); the parties then receive some time to prepare their answers before responding. Furthermore, again, while the Chamber deliberations commence on the basis of a draft judgment or decision, the Grand Chamber does not begin to prepare its draft until after its first deliberation.
47 Like in the Chamber proceedings, each case before the Grand Chamber is assigned to a judge rapporteur. However, before the Grand Chamber, the national judge is never the rapporteur. The same is not necessarily true for the Chamber, as noted above, although the Court may sometimes choose not to make the national judge the rapporteur in politically sensitive cases. The members of the Grand Chamber are usually selected by the drawing of lots mere days after the Grand Chamber is seized in a case, and work on the case begins almost right away, with a first orientation meeting between the case lawyer, the Registrar, and the judge rapporteur.
48 The judge rapporteur is appointed after the president has determined the composition of the Grand Chamber formation (see above para 7). The president selects one judge from the formation to act as the judge rapporteur. The president does so by considering the backgrounds of the judges and their language skills—thus, if a case file is predominantly in French, the judge in question should have an excellent command of that language. In addition, the president may consider the expertise of the judges: if a case involves questions related to specific legal disciplines, the president may select a rapporteur who has a particular background in the field concerned.
49 The Grand Chamber proceedings before the whole 17-member formation begin, in most cases, with a public hearing. This is another difference between the Chamber and Grand Chamber: while hearings are exceptional before the Chamber, they are the rule before the Grand Chamber. However, there are exceptions to this rule, and the judge rapporteur can request that no hearing be held where this is not considered necessary. In practice, there have been instances in which the Grand Chamber has opted not to hold a hearing. It did this, for example, in the Sabri Güneş v Turkey case, where the only real issue before the Court, the calculation of the six-month rule, did not require an oral hearing (Sabri Güneş v Turkey, 2012, para 7).
50 The Grand Chamber judges retire immediately after a hearing to begin their first round of deliberations. As Grand Chamber cases are often legally challenging, it can be necessary to hold several deliberation sessions, although two rounds prove sufficient in most cases. Like in the Chamber, the deliberations begin with the judge rapporteur and the national judge taking the floor to express their arguments and opinions. Then, all the remaining judges voice their opinions. The process here differs from the Chamber proceedings, however, in that judges who do not have a special function in the Grand Chamber formation—thus, who do not hold the office of the president, have not been assigned to serve as the judge rapporteur and are not the national judge—can take the floor only once in this deliberation. This means that judges cannot rebut the arguments advanced by colleagues whose turn to speak comes after their own. Thus, judges may strategically choose when to take the floor. This rule does not apply to the national judge and the judge rapporteur, who may speak again at the end of the deliberation, and the president of the Court, who leads the deliberation.
51 In the first deliberation, judges are not allowed to abstain from taking the floor but may abstain from voting if they provide reasons for doing so. In the first Grand Chamber deliberation, judges can therefore reserve their vote for the second deliberation, at which point the draft text of the judgment will be available. They are however required to provide justifications for this. Generally, this means that they must state the points in which they are undecided, and then reserve their decision until they are provided with the concrete wording of the draft judgment. In the indicative vote at the beginning of the second deliberation, all judges are then obligated to vote.
52 If a first vote is close, for example if the judges are tied due to an abstention, then two draft judgments will be prepared. Usually, but not always, the decision to prepare two drafts is made where there are quite fundamental differences in the judges’ opinions on a case, and thus for example one draft will find a Convention violation and the other will find a non-violation. In controversial cases, the president will commence the second deliberation by noting that two drafts have been prepared, and determining which draft is preferred by the majority by taking an indicative vote. As noted above, judges cannot abstain from this vote (cf para 49 above). If, on an indicative basis, a clear majority of judges prefers one alternative, then the judges proceed to go through that draft and deliberate on its content paragraph by paragraph. Once an agreement has been reached on the text—or a near-agreement, as there may still be a need to apply the pigeonhole procedure (see below para 60) to some issues—a definitive vote takes place.
53 At the end of the first session of deliberation, after all of the judges have voiced their opinions, the national judge and the judge rapporteur are permitted to take the floor again. At this point, the rapporteur provides a summary of the deliberations and then poses the questions on which the judges will vote. The president, based on the rapporteur’s proposal, determines the issues on which the judges vote, and in which order they do so.
54 At the end of the session, the president selects a number of those judges who voted with the majority to form the drafting committee (Drafting committee). The drafting committee is usually made up of about five judges, and always includes the judge rapporteur. The drafting committee makes the drafting process more efficient than it would be if all 17 Grand Chamber judges were tasked with preparing the text. The national judge assists the drafting committee but cannot vote within that formation. If the majority was divided, then the president selects representatives of the various opinions to participate in drafting. A divided majority often also means that the president suggests the preparation of more than one draft.
55 After the first deliberations, a second orientation meeting takes place between the judge rapporteur, the Registrar, and the case lawyer. This provides guidance to the case lawyer on how to prepare the draft judgment or decision. The case lawyer then prepares the draft; this takes an average of about six weeks. During this process, the case lawyer, with certain input from the judge rapporteur, takes up the most important arguments made orally by the judges during the first deliberation and processes these into a draft text.
56 Once this drafting process is complete, the result is transmitted to the drafting committee; about six or seven weeks later, the drafting committee holds its first meeting, which may or may not be its only meeting depending on the ease with which it is able to agree on the text of the draft. The drafting committee thus prepares the draft—or drafts, where necessary—on the basis of the first version prepared by the case lawyer. The drafting committee is free to amend the first draft as it deems necessary.
57 While the composition of the drafting committee is the privilege of the president of the Court, the idea behind it is to allow those judges who put forth the best arguments during the deliberation, assisted by the national judge, to draft the text of the judgment or decision. This also removes some of the responsibility for the draft from the judge rapporteur.
58 The drafting committee may make use of the pigeonhole procedure where it is unable to agree on an issue (see below para 60). Once the draft judgment or decision is complete, it is translated by the Court’s language division and circulated among the judges involved in both French and English. This is a further difference to the Chamber proceedings, where the drafts are available in only one of the Court’s two official languages: in the Grand Chamber, a version in each language is prepared and deliberated upon by the judges.
59 A second deliberation is then held in order to present and discuss the draft. A second—and definitive—vote is held at this meeting. Judges are not obligated to vote in the same way in the first and second votes: they can—and indeed sometimes do—change their minds. However, the matters at issue and the way the judges vote usually does not change significantly from the first to the second deliberation. Nevertheless, if the Grand Chamber judges do not agree with the draft text that has been prepared, extensive discussions are possible at this point. If no agreement can be reached on the wording of individual controversial paragraphs, the pigeonhole procedure can be applied again.
5. The Pigeonhole Procedure
60 In both the Chamber and Grand Chamber formations, an inability of the judges to agree on the wording of certain paragraphs of the draft judgment or decision may lead to the application of the pigeonhole procedure. This is a procedure designed for situations in which the judges in the majority of a formation, while in general agreement about the outcome of a case, are unable to agree on the text of individual paragraph(s). In these cases, the Registry prepares a recommendation concerning the issue at stake, the so-called pigeonhole. This recommendation is then circulated among the judges via e-mail.
61 The pigeonhole procedure is, in essence, a method of deliberation that is applied when a draft judgment or decision has already been prepared. In practice, the use of this procedure is common, as it often facilitates the finding of a mutually agreeable solution and can unburden the deliberations by removing the need to perfect the wording of crucial paragraphs on the spot. By applying this procedure, judges are not under pressure to, in the context of just one or two deliberation sessions, prepare a publication-ready text in a language that is often not their native one.
62 The success of the pigeonhole procedure is largely due to the Registry’s skill at crafting formulations that are acceptable to all involved, and to the time that elapses between the judges’ deliberation(s) and the circulation of the pigeonhole proposal. Applying this procedure thus often allows for the harmonization of conflicting demands on a given formulation. This procedure also provides the case lawyer and the judge rapporteur with more time to re-examine the text. It may therefore also improve the draft text by allowing, for example, for the identification and removal of contradictions between different paragraphs.