Dor TOT eu7259 WILEY ORIGINAL MANUSCRIPT From transconstitutionalism to transdemocracy Marcelo Neves* Abstract, ‘This article relates to the author’ project “transdemocracy" It starts witha discussion of *transconsttuionalism” and its ints. Transconsttutionalism concerns the fact that multiple legal orders ofthe same or diferent kind are simultaneously involved with the same constitutional sue or cas, le. issue or case conceming basi rights or legallimitation and contro of politcal power. Constitutional problems, thus go beyond the sate and entangle sev- feral legal orders, although no new constitution arises in this context. The article points aut the limits of transconsttutlonalsm in an asymmetric world society so as to seek new alternatives beyond it. Two alternatives are considered: post-consttutonalsm, which demands transcendence of today's world society and thus negate constitutionalism in general, and transdemocracy, which is rather immanent to our socal fermation and claims to be complementary to transconsttutonalsm. Because the author prefers the second alternative, the article begins to autine an approach to transdemocracy that goes across state boundaries and beyond "We the People’ that's popular sovereignty in order to emphasize the sustainable responsiveness for other peoples in the same World society tis a question of sustainability of democracy. In this context, the author intends to develop an eco- logical approach to democracy with the background of Niklas Luhmann’s systems theory, but from a heterodox, critial perspective, 1 | INTRODUCTION Social, economic and cultural changes have resulted ina clear increase in the instances in which legal orders overlap ‘and Interplay. In most instances, suc Interactions occur outside an obvious constitutional framework, and, conse quently, none ofthe legal ors can raise an obvious claim to primacy nother words, we find ourselves inan emerg- ing transconstitutional setting albeit deprived of a constitution in any meaningful sense of the word. At best, the pragmatic and normative questions that result from transconsituonalism are tackled by more or less formal, more (oF less power-based or power-hiding transnational networks. In this article, 1 start in Section 2 by clarifying what transconsttutioalsm is. | emphasise that {ransconsttutionalsm fs far from being an exclusively European phenomenon (Section 2.4), By the same token, dis tinguishtransconsttutionalsm from global consitutionalism and ‘radical constitutional pluralism (which entails reduc Ing the constitution toa set of constitutional fragments) (Section 2.2). Then I consider the normative ambivalence and limits of transconstitutionalism, paying very special attention tothe implications that the asyremettic character of the Professor of Pull Law and Lega Theory a he Univesity of Bras Law School! tank Thomas Duve or sting meat dhe Max anc nse for European Legal istry in January and February 2027, whe prepared the fist version ofthis atl For enigh= ning cussion on he txt a very eratefl o my callagues tthe Steenbosch site for Advanced Studes(STIAS) at wich | ptitipat in the prokect Bours ard Legl Authority ine la Cntr. Last ut not east thank Agustin José Menendez fo the ‘380 [© 2017 tha Wiley & Sons Let ‘wileyontnelvarycon joule a Law 1 BOTT RB 380-374‘WILEY- developing ‘world society has in this regard (Section 23). In Section 3, | consider two alternatives to {ransconsttutionalsn: post-consttutionalism (which implies the transcendence of constitutionalism altogether) and transdemocracy (which rather focuses on complementing transconstitutionalsm). | conclude with a brief crtcal remark on the subject of democratic politics, considering indeed ‘who the people’ is and what role it plays in demo cratic theory and politics (Section 4), This lst section is intended to open, rather than close, the agenda of future 2 | CONSTITUTIONALISM WITHOUT THE CONSTITUTION BEYOND THE STATE AND PLURALISM: LIMITS AND POSSIBILITIES OF TRANSCONSTITUTIONALISM IN AN ASYMMETRIC WORLD SOCIETY 241. | Constitutionalism beyond the state Inthe late twentieth century a relatively wide consensus emerged regarding the'transnatlonal breadth and scope of 2 considerable numberof constitutional problems, What once were regarded as national issues were now revealed to involve different legal orders and socal contexts, orders and contexts which escapee control from states acting single-handedly (and thus could not be effectively dealt with through purely national decisions, not even national constitutional decisions). The ‘insufficiency’ of national constitutions tended to be said to result in one way or the other, from the intensive development of eiferent forms of transnational communicational processes, which were sid to point tothe strengthening of systemic integration atthe level ofthe world society.* This did not mean that state constitutions became suddenly irrelevant, but rather thatthe limits of national constitutions could no longer be jgnored. Issues such as the protection of fundamental rights (of human rights more widely) could not be solved, It was claimed, under a ‘parochial? or ‘autarchc’consttutionalism. twas usually conchied that wile the state might rot be withering away it was no longer either an averlord on all constitutional matters (having lost the capacity to confine constitutional issues within ts borders, and thus, the capacity to act efficient and promplly to solve therm) (oF a local heto, drawing strength from its relatively smal size and proximity. EU law scholars may be inclined to think thatthe transformation of the state was very peculry fein Europe as the bite of EU law became increasingly felt. The fact ofthe matter i, however, that the liits of national constitutional power was always wider and lager than Europe. The most acute ‘national constitutional nwyers, even those writing within traditions with a strong self-sufficient f not chauvnistic constitutional tradition, felt these tensions early on. Pacadigmatic in that regard is the case of the United States of America. Several scholars, including Mark Tushnet pointed tothe ‘inevitable globatzation of constitutional law.? Others, including Bruce Ackerman referred to the rise (of worl! constitutional" admitting that ‘American practice and theory have moved in the direction of emphatic provincials and stressing that we should resist the temptations of a provincial particularim!> ase ‘wort society to characterise the meder sees fom ening the sense uhnan’s sytem ther: Nias Luhmann, Sule ura 2 Ausdae zur There der Geselicat (Westdeutscher Vera, 1975) 5: i. Oi Gselicht der Geslichel ‘volt (Suwkamp, 1997) 145-171 Engl trans. Theory of Society, vol 1 (Stanford Univesity Pres, 2012 83-99) Accorg to this pe spective, Brunkhorst emohasises on one hand tat is pessble to define modem society fom the bepnning as 2 worl scien stressing onthe other hare Oty tthe end of our century na globalisation Become ro evident that society can eco lt 2s weld society nits descriptor (H.Brunkhorsl, Heterarcie und Demokrai nH. Brrkhorst and P. Nien (es, Das Rect er Republic Suvkamp, £999), 74, See alo M. Neves, Tansconsttionais (Kevin Mundy fst publishes 2009, Hart, 2013) 204 ®AMSlushtr, ‘uel Globalization {200040 Vigna Jounal of hteratonal Low, 1108, 1117-1118 2M. Tul, The Inevitable laalzation of Constitutions Law (200949 Vigna Jounal of International Low, 85, "8, Ackannan, The Rise of Wold Costus [1997 83 Vigna Low Review, 771.#21 witey. 2.2 | What constitutional theory for a ‘post-national’ constitutionalism? The recagrition of new global framework for constituionalsm did nat lead in any way to elther uniform or harmonic responses in cognitive or normative terms, Two main theoretical responses’ can be discerned ‘The firsts aretum to form of internationalism that affirms the unity af the law of nations, and, consequently, the primacy ofthe international aw over national aw, including nat'onal constitutional law. The direct and immediate prece- dent canbe foundin the interwar period. Alfred Verdross was but one ofthe scholars who chimed thataConsttution of the intemationa legal community’ cau be flashed out of the Covenant and practice ofthe League of Nations,” Such ‘marist’ theorsation of the relationships between international and rational law was decades later to play a key role in the configuration ofthe theoretical basis of EU lav even f the actual theory ended up being extremely convolited More generally, reference toa unitary interational constitution has become frequent inthe last decades. ts advacates either atibute sucha function tothe UN Charter itself? or drawit from international institutional practice an poltics:° or deta, se Neves above, 71,55 7. Vero, ie Vresung der Vikerectsgemeinscha Springer, 1926). Ile ter Ye 1950s, the excess international eon stttional aw’ makes 2 fw scattered appearances (ee Celso de Asuquerque Melo, Diao cnstudee!itmacenal-Invoduzto (Renovat, 2nd ed, 2000) 3, noting the ambigty of the phase (201) 10 Ewapean Constitution! Law Reve, 197 " Fassbender, The Unted Nations Charter 3s Constitution ofthe International Community (1998 36 Cotabio Jura of Tans tional Law, 52: i. "We the Peoples ofthe United Nats”: Consttuent Power and Constutional Form in Internationa Lawn Martin Lough na Nel Wer ees, The Prod of Conta: Constituent Power and Contato Far Oxford University ess, 2007) 269,281 P-M. Dupuy, The Consttusonal Dimension ofthe Charter ofthe Urited Nations Revisited (2997) 1 Max Parc Yearbook of United Nations Law 1. On this ope, Glegerich ays ‘te UN. Charteris curently the only wold costo capa ble of consensus’. Giegerch, Europe Verossung und deusche Vefosung im tansnatonlen Korstiutonatsieungprzes: WeehseeitgeRezption, onsttionele Evoition und foderte Verechturg (Springer, 2008) 11). Much eater, Ross akeady refered to the ‘Constitution ofthe United Nations” (A. Ross, Conttutin of United Nations: Aras of Structire and Faction (ine Muskagsid, 1950). Verdoss a Sina als we this expen (A. Verdoss a. Sina, Universes Vakerect Tearie und Pros (Dancer & Humbe, Sd edn, 1984) 491, Se, eg C. Tomcat, Die interationle Gemeinschat 1995) 23 Archi des Vlanschs 1,7. He alo refers itematioal iw 2: the Constuton of mankin!i,Ineratonl Law the Consttion of Mankntin United Nations), Internation! aw on th ve ofthe TwenyfstCentry Views fam the lntenatinal Law Camison(Urited Nations, 1997) 37) With certain resttions Xsdelbach an Klein propose a model based constitutional grins rom interatina law. 5. Kadlbach ard T. Klik, Teteratinal Law-—A Constiuton for Mankind? An Attempt a a Reappraisal with an Aalsis of Consttnal Principles (2008) 50.GemonYearbok of Intemational aw, 203. Verdes na Sina, above, m9, 59, refer othe Consion ofthe non-rganized community of tates’ and enstional pings ofthe community of tats! Others prefer to spesk of inteatonal constttors law Se R Uerpman, Iterationales Vertssurastert (200) 56 Jriterztang ~ 1, 565: Malo above, m7, although the we of {hs xpreson hy aniguous Some est the contiualanasaton of ntratonl pul law, noe autos ea process. Wah, KonstiutionalserngLetbep oder Alerwolsbearf n CE Ebel, M. bler an D. Loren eds}, Oer Wand! des Staats, ‘or den Herausfordoungen dr Gegenwart Fetch fr ined Br um 70. Gebunstas (eck 2002191, 192, 199: . Been, ‘De Hee der Verfassng-Nevausichtin. im Zeller der Glbalserng? (2000) 141 (119 in the new series) Zetschet fir Schweinarshes Recht, 45,4701 1A. Froweln Konstitinaserng des VSkerechs (2000) 39 Bere der Deutschen Geslica for Vakaech, 427; Giegerich, above 9, 2-3. Von Bogdandy acknowledges the raglty of iteration consttusorals ba stresses is potential compared wit ather options. Armin von Bogdandy, "Constitution in Intemtioal Law: Comment o 2 Prozosal from Germany’ (2008) 47 Hard Inerratina Law Jove, 222, 242. Petes rejects 4 model Based on atfimnation of = corstutinatsaton of international iw. preferng“ntemationl constinaten’ te compensate for deconaiuonasaon in the domestic sphere, but sity speaking her thesis points othe development of iuleve global consttutionabon, Ane Peters, ‘Compensatory Constiutonas: The Functon and Potetl of Fundamental ntrnational Noms and Structures! (2008) 19 Leiden Joural of ntemationa Law, 579,610. Whe refering to ndcators of che constutinalzation of interatnal ow, a last within Europe’ Stone Sweet sketches a perspective that considers he nternational system's alt and contol eatres Sr neous. AS. Sweet, Consttionaisn Legal Phrafim, nd Interatonal Relations (2007 16 non ural of lb Leal tas, ‘uonazaton of intamallona iw culd not ree the fomation of a cnstutlon nthe domes pace not ony folk of 3 consttuent power inthe international sphere but ao because ‘the constiution it would enact woul not be one ofan international butan imperil raim: M. Kostoniem, International Law and Hegameny A Reconfiguration’ (2008) 17 Cambs Review of intro‘WILEY- Mocerocmatively rounded are the reflections ontheplobal constitution of authors such as Habermas. The German phir losopher favoured frst a world domestic poles without a world govemment;* which would be grounded on a world Citizenship cominghandinhand with ‘consciousness of an oblgatory/compulsory cosmopotitan solidarity anda'glbal welfare regime ae wel as onthe establishment of institutional structures and decision-making processes that would legitimise interventions in what used to be regarded as intemal affas' of the Member States with a view to uphold human rights (the so-called ‘humanitarian interventions) The implicit constitutional character and dimension of the project was then turned exit witha dict reference to te ‘constitutionalisation of international publica." which, along with the normative madel of ‘poltical constitution forthe pluralist word society'** wasintended to secure cos ‘mepoltan constitution without a word republic” ar 2'emocratic constitution of world sacely.1* The obvious Achilles! hheelof Habermas’ theory is that such a word constitution snot related to an ethical community, but remains grounded ‘onan abstract rational moralty whose authority depends exclusively on the underying claim to universality. Leaving that aside, and whatever the assessment ofthe theory Habermas’ reflections on the matter constitute good evidence ofthe seach fora comprehensive constitutional grounding for ‘global society ‘The alternative to the monistc theorising of new international and transnational reales is constituted by ctfer- cent vatiants of 2 world pluralistic, when not fragmented, constitutional, which ae sald to find supportin the emer- fence of constttional practices in transnational, supranational and international organizations, and global and regional institutions and regimes. Perhaps the most extreme pluralistic variant is that put forword by Gunther Teubner, according to whom we can distinguish cifferent international and supranational public constity egies, but also transnational constitutional private or hal- public halfprivate) egimes ° Teubner places emphasis J. Habermas, Die psintonle Kanselton:Poltiche Essays (Stvkamp, 1998) 156, 165 (En. trans Post-NatonlCanstelation: Poli! Esa (Ply, 2001) 106, 120} dat de Konstiutonaisiorag des Vakereehts noch eine Chance”. Habermas, Der sspotene Weston Klee Poltiche Schiten X (Sukama, 2004) 113, 122-124; 4, Kommunikative Rationale und trorberscritende Plt eine Rel n P.Nesen and 8. Herborth feds), Anarhi der Konmunkotiven Fret Jigen Hobermas lind ee Teor der iteraorten Pt Sunramp, 2007) 406, 452, Foran anslog formulton 00, Ferra Le soni mondo moderna, Nast ets dello Sot axonal Editor Later, 1997) 83-52, Habeas, Die postrationale Korsteletion, above, n. 11, 88-9, 168 (En. vans. 55-56, 112) ld. Jenseits des Nasonalstaats? Bomerkungen 2u Felgeproblamen der wirschatichen Globaliserung In Ubieh Beck (ec, Plt der Gosling (Suhr, 1998) 67, 77-78. "Habermas, ests des Natonsbitass above, 12, 75,0: Oe pestnainae Kersteltion, above 11, 86 Eng. Was. 54 Habermas, Die Enbeehung des Anderen: Stn aur potichen Theorie (Sukamp, 1996) 225-226; Id, ‘Bestaltst und urrarit: Ein Kreg an der Grenze zwischen Rect und Moral in Risnard Merkel (ed), Der Kosovo Krieg und dos Voerecht (Sshekamp, 2000) 51 Habermas. "Hat de Konsttutonalsirung des Viherrchs nach ene Chance, sve, a 11: Zur Veresuny Epa in soy (Suhetamp, 2011) Hobermas, ‘fine poltische Verfssung fr de plristische Weligeslichal in J. Habermss,ZschenNotursmus und elo: Phicsophsche Aus Subkamp, 2005) 824 (En trans,’ PaialConstitton for the Plarast World Sit n J. Habermas Between Naturals aed Region: Piesozial sys Polity, 2008) rbemas. Kommuritative Rational 2bove, 1,447 # See Habermas nets des Nationals? above, n. 12,162 *°see G. Teubner. Vresurestogent:geslicaticherKorstitutonasmus in der Gobtsierung (Sutrkamp, 2012), especialy 159 ff (Gre. trans. Cnstatonl Fragments: acetal Comtttionalim and Globarain (Oxtors Universty Press. 2012) 102 fi Prvatregimes: Neo-Spontanes Recht und dite Sovaterfassingen Inder Wellesellschat nD. Simon and Me, Weis (es), Zor ‘Autonome des indians ier Ancona Spo Sits (Noma, 2000] 437, 448 (Engl. ans. Gla Private Regimes: Neo-Spont neous Law ard Dal Constution of Autonomous Sectrsin Wer Society? in KH, Lauro, Pule Goverance athe Ageof lob zation Ashgate, 2004) 71, 82 Hi, ‘Global Zvivertassongn: Aerativn zur staatszenrirtenVerassungsthere (2008) 63 Zest fr esnasches fetches Rect und Vkerec, 1, especialy 17-26 Enh wan. Societal Cansitittnals: erties te Sate-centred Cansittianal Theory? nC oerges. Sand nd G. Teer ets), TrannaionalGoversene and Constitontsm (art, 2004) 3, 18-28, xogenous Se Binding: How Soil Systems Extemalse the Foundational Paradowes inte Proces of CConstonalestion’ iA. Febbaja and G, Cora eds), Sola of Cnstutons: A Poadocal Perspective Routed, 2016) 30; A. cher-Lascano ad G. Teubner, Regine Kolisonen: Zur Fregmentrag des sobalen Rechts (Sarkar, 200) 53 tC. Teubner an 1. Beckers, xpancing Constutionalisn (2013) 20 sora Jounl of lool ese Stes, 523,*1witey. fn the autonamy of each fragmented system, while stressing the dangers implicit in any overreach atthe expense of ‘others (which would be tantamount toa form of imperial overstretch].?* So he introduces the conceot of chil or soci tal constitutions of the world society. By that, Teubner means the structural couplings between law and other social systems at the global level, such as between lex mercataria and trade and economic activity in genera, lex sportiva and sport, and lex agitais and the internet, Such couplings are the ones that actually build transnational regimes, According to Teuioner, such couplings ply a key role in tackling the problems and dangers that have been mentioned. ‘While both alternatives seem to capture some essential elements ofthe constellation of fw, power and society, ‘wo interim conclusions seem de. Firstly, the structural conditions that made possible the affirmation of modem con- stitutions on fat the same time) political ad legal bases simply do not accrue at the international level. In that regaré, Luhmann was right when claiming tha ‘the structural coupling of the political system and the legal system through constitutions does not have an equivalent at the level of global society: True, the number of claims made on the basis of individual and collective ‘ights' acknowledged in international legal documents has risen inthe last decades. However, such a practice i insufficient in itself to ground the conclusion that aw and politics have been coupled at the international level. As 2 result, strategie, manipulative and rhetorical uses of international law are not infrequent, ‘The ‘arbitrary, ‘patemalitc! and ‘selective’ character of interventions for the protection of human rights has been hightghted not only by socal theorists but als by international legal scholars with extensive experience in interna tional legal practice, such 2s, markedly, Koskenniem.® The tack record of the European Union and of its Member States, that once was regarded as providing solid bases for an aterative understanding ofthe polities of International law, has become hardly cstinguishable from that of other ‘power’ actors in the last decade” The extremely see G. Teubner, Sebstssuersve Gerectgksit: Kontera oder Tanseencenaformel des Recht’ (2008) 29 Zetachet for ects, 9 (Eng ars. 'Sel-subverive Justice: Contingency of Transendence Formula af Law?” (2009) 72 Modem Law ave Dest another theoretical starting point ad other implications, Teubner esr to Sci theory of societal consttionain developing his own concept of chil or seta cnstititon, See Teubner, Veressrastagmente, above 20,14, 67; ‘Global Zivetassunge, above, n 20, 8-9 (Eng. tans 10-11; 0 Sl, Theory of octal Constitutional: Foundation of 2 Now Marist Cite! Theory Cambridge Unversy Press, 1992) 29sec Fischer Lescno and Tevone, above, x20, 25-20; Teubner, Verfssugsragmente boven, 20, 129-192 Enel trans 61-2, kts Luann, Des Ret der Geselicha(Suarp, 1993) 582 (Engl ans. Lawa Sail Sytem (Oxford University Pres, 2008) 487-288), Teun iokes this passage ta gv it an opposite sense that 35 thoup Luba fering to te possi a en sutton without the structural coupng of law and pels onthe global lane Indeed, Luhmann was speaking of absence of on ‘ution onthe glebal lve. CF. G. Teubner, lbale Bukowina: Zur Emergers eines tansnatralen Rechspluralsmus' (1996) 15, Rechsistrsches Juma, 255, 260 (Eng. tan, ‘lbal Bukowira: Legal Pras in the Weld Society n G. Teubrer fe}, Gib! {aw witout o State (Darerouth 1997) 3, 6H, ‘Des KEnigs vile Leer Die Sebsteekonstultion der Werarchie des Rechts (2996) 2 Sox Syste Zest fr scblogiche Theo 229,248 *unktorst.sboven 1.373, 382: L Maus, 'Statssouveriit als Volssouveranitt. Obrlegurgon zum Fredensoroekt Iran Xs in W. Lth (ed, ohruch 1984 des Kuturwissenscafiche situs im Wsenschaftszetram NRW (les Rathaus, 1997167 1. rurkhorst, Leiatonsrser:Verfsurgsrobleme der Welsch (Noes, 2012) 137 , 29,307 Cia! Theory of Lege! Revolutons: Eveutonary Perspectives (Bloomsbury, 2014 see ago P. Holmes, Veasungseolton In der Wetgeslichat: Difeensieaazpobieme des Rechts und der Poi mn Zale der Gabo) Govionce (Nerios, 2012), Maus erties stonaly any es ‘or conception of ld constitionattm or democracy, Mavs, Menecherrece Demolrtie und Fren Perspektven solr Orso ritaton (utvkamp, 2015) 122-171, Der Vaksowerntt: lemente ener Denoiatetere Strap, 2013) 375-406, *costennieml, The Pole Inthe Temple—Order,hstice and the UN: A Dialectical View (1998) 6 European Jounal of latenatina Law, 225, especialy 325-326 rhe atte ofthe European states rl the European Union ote intervention in iby ant the present win Syria as wel 310 ‘he elugee ess ate emblematic expressions ofan aati and inpevil as. See before the recent ess, 5. Bucke, Wielome 0 uropeDle Green des euopichen Migrotnsecte: Jutduche Auelnandesetaungen um dee ‘Statproett Europa’ Transkei 2013} A. ischer-LescanoT. Loh nd T.Tehidpur, "Border Controls at Sea: Reeuements under International Human Rights and Rt ‘ges Law (2009) 21 Itertonl Jamal of Rete Law, 256. Fora comprehensive crital poroach othe migration prob sce S essen A Massive Los of abit: New Drivers fr Migration (2014) 2 Socaoy of Development, 204