{"id":7804,"date":"2021-03-04T13:01:22","date_gmt":"2021-03-04T13:01:22","guid":{"rendered":"https:\/\/eulawenforcement.com\/?p=7804"},"modified":"2021-11-16T17:23:49","modified_gmt":"2021-11-16T16:23:49","slug":"olaf-a-balancing-act-between-different-systems-of-control","status":"publish","type":"post","link":"https:\/\/eulawenforcement.com\/?p=7804","title":{"rendered":"OLAF \u2013 A balancing act between different systems of control"},"content":{"rendered":"\n<p><span style=\"font-size: 12pt;\"><i>By Tessa, Sophie, Martina &amp; Desislava<\/i><\/span><\/p>\n\n\n\n<p>Complex multi-level structures governed by different jurisdictions <a href=\"https:\/\/www.cambridge.org\/core\/journals\/european-journal-of-risk-regulation\/article\/shared-tasks-but-separated-controls-building-the-system-of-control-for-shared-administration-in-an-eu-multijurisdictional-setting\/D6061EA87A27D6FDEFA89110DF97510B\">require sophisticated systems of control<\/a>. The Office Europ\u00e9en de Lutte Antifraude (OLAF) is a prime example of such a structure, especially if we consider <a href=\"https:\/\/ec.europa.eu\/anti-fraud\/policy\/hercule-programmes\/hercule-ii-reports_en\">the plethora of regulations, decisions and national legislation that set its boundaries during its investigations of fraud related to EU expenditures, EU revenues and EU staff<\/a>. OLAF can carry out interviews, production orders and on-the spot checks, either at EU institutions or bodies\u2019 premises or at business premises. These are intrusive powers of investigations of OLAF, which interfere with individuals\u2019 fundamental rights (e.g. right to privacy, right to liberty), and demand the existence of <a href=\"https:\/\/ebookcentral.proquest.com\/lib\/uunl\/reader.action?docID=6213222&amp;ppg=13\">various mechanisms to ensure control<\/a>. Fundamental rights\u2019 standards need to be guaranteed to individuals, while also legal protection through judicial control is to be afforded. This becomes even more important when considering that conclusive reports of OLAF\u2019s inspections serve then as the basis for follow-up action either at the EU or Member States\u2019 level.<\/p>\n<p>Nevertheless, it is important to keep in mind that providing for control in any possible way may also hinder independence and effectiveness. We believe that in the end it all comes down to ensuring a balance of different control mechanisms which can remedy each other\u2019s shortcomings. The case of OLAF will show that, for example, <em>de facto<\/em> control may compensate for a lack of <em>de jure<\/em> control, while new safeguards on procedural and fundamental rights even have the potential to counterbalance for missing judicial accountability. However, finding the right balance of control mechanisms remains a walk on the tightrope.<\/p>\n\n\n\n<figure class=\"wp-block-embed is-type-video is-provider-youtube wp-block-embed-youtube wp-embed-aspect-16-9 wp-has-aspect-ratio\"><div class=\"wp-block-embed__wrapper\">\n<iframe loading=\"lazy\" title=\"OLAF - Role \/ Work\" width=\"840\" height=\"473\" src=\"https:\/\/www.youtube.com\/embed\/iMciKMbALmY?feature=oembed\" frameborder=\"0\" allow=\"accelerometer; autoplay; clipboard-write; encrypted-media; gyroscope; picture-in-picture\" allowfullscreen><\/iframe>\n<\/div><\/figure>\n\n\n\n<p><span style=\"font-size: 12pt;\"><i>OLAF\u2019s legal framework \u2013 An incomplete attempt to control the complexity of powers<\/i><\/span><\/p>\n\n\n\n<p>OLAF exercises its investigative powers with full independence from the Commission or any other EU institution, operating based on EU law. For external investigations, however, working in close collaboration with national authorities, OLAF still needs to rely greatly on powers granted to it by national laws.<\/p>\n<p>As OLAF\u2019s investigative powers interfere with individuals\u2019 fundamental rights, they necessitate the existence of <a href=\"http:\/\/ebookcentral.proquest.com\/auth\/lib\/uunl\/authorizeEBL.action?userid=CkVtci4PVa9pwEGS8kkrHw%3d%3d&amp;tstamp=1620026679&amp;ut=3282&amp;hash=E2152F3C342530AA4DDC71FF914F2201DE1042C6&amp;ebcid=8fcb776d01814fb0b87ad8c53bf62816\">various mechanisms to ensure control<\/a>, including political accountability, judicial protection and procedural guarantees to name a few. These systems of control are governed by <a href=\"https:\/\/eur-lex.europa.eu\/legal-content\/EN\/TXT\/PDF\/?uri=CELEX:32013R0883&amp;from=EN\">Regulation (EU, Euratom) 883\/2013<\/a>, amended in <a href=\"https:\/\/eur-lex.europa.eu\/legal-content\/EN\/TXT\/PDF\/?uri=CELEX:32016R2030&amp;from=EN\">2016<\/a>, and recently in <a href=\"https:\/\/eur-lex.europa.eu\/legal-content\/EN\/TXT\/PDF\/?uri=CELEX:32020R2223&amp;from=EN\">2020<\/a>, to address, inter alia, some <a href=\"https:\/\/ec.europa.eu\/anti-fraud\/sites\/default\/files\/sc_opinion_2_evaluation_report_883_en.pdf\">concerns and issues regarding OLAF\u2019s system of controls<\/a>, as well as to provide more <a href=\"https:\/\/eur-lex.europa.eu\/legal-content\/EN\/TXT\/PDF\/?uri=CELEX:52018PC0338&amp;from=EN\">clarity on applicable safeguards and rights of individuals concerned<\/a>.<\/p>\n\n\n\n<p><span style=\"font-size: 12pt;\">\n\nBelow an overview of the existing framework on OLAF\u2019s system of control is provided.\n\n<\/span><\/p>\n\n\n\n<figure class=\"wp-block-image size-large\"><img loading=\"lazy\" decoding=\"async\" width=\"776\" height=\"914\" src=\"https:\/\/eulawenforcement.com\/wp-content\/uploads\/2021\/03\/Table-OLAF-blog-post.jpg\" alt=\"\" class=\"wp-image-8007\" srcset=\"https:\/\/eulawenforcement.com\/wp-content\/uploads\/2021\/03\/Table-OLAF-blog-post.jpg 776w, https:\/\/eulawenforcement.com\/wp-content\/uploads\/2021\/03\/Table-OLAF-blog-post-255x300.jpg 255w, https:\/\/eulawenforcement.com\/wp-content\/uploads\/2021\/03\/Table-OLAF-blog-post-768x905.jpg 768w\" sizes=\"auto, (max-width: 709px) 85vw, (max-width: 909px) 67vw, (max-width: 984px) 61vw, (max-width: 1362px) 45vw, 600px\" \/><\/figure>\n\n\n\n<p><span style=\"font-size: 12pt;\"><i>Mastering a ridge walk of control mechanisms<\/i><\/span><\/p>\n\n\n\n<p>Ensuring a balance between control mechanisms is essential to prevent gaps in the control system and ensure they can compensate for each other\u2019s limits. Below we will explore OLAF\u2019s balance of controls, applying Scholten et al\u2019s identification of connections between different mechanisms namely: <em>ex ante\/ex post<\/em>, internal\/external, <em>de jure\/de facto<\/em>. This will be done both in consideration of each \u201ccategory\u201d of control mechanism and regards the relationship between them.<\/p>\n<p><strong>Judicial accountability.<\/strong> As <a href=\"https:\/\/eur-lex.europa.eu\/legal-content\/EN\/TXT\/PDF\/?uri=CELEX:62002CO0471&amp;from=EN\">OLAF investigative acts are more of a preparatory nature, they cannot be directly challenged in front of the CJEU<\/a>, there is therefore no direct <em>ex post de jure<\/em> control over them. However, there exists a form of non-judicial <em>de facto<\/em> control facing the fact that EU bodies and institutions, or the competent national authorities, are not obliged to act upon them, meaning that they can reject OLAF\u2019s findings when considering them mistaken. Furthermore, remedies can be claimed for final decisions taken by EU institutions and national authorities acting upon OLAF reports, arguably creating a form of indirect <em>de jure <\/em>control.<\/p>\n<p><strong>Political accountability<\/strong>. <a href=\"https:\/\/www.elgaronline.com\/view\/edcoll\/9781786434623\/9781786434623.00015.xml\">The framework is strongly grounded in transparency and the exchange of views<\/a>. The main concern in this case is that the mechanism depends on OLAF sharing information with external controllers (outlined in table above), and the latter\u2019s differing visions on appropriate safeguards.&nbsp; Moreover, another issue is the lack of ability on part of the EU institutions to impose sanctions. OLAF\u2019s supervisory committee could be said to, at least partly, provide an internal control mechanism. It is evident from <a href=\"http:\/\/eucary.cc.cec.eu.int:8082\/supervisory-committee-olaf\">the Committee\u2019s reports<\/a> that it observes the office\u2019s work and issues recommendations, which although not binding <em>de jure<\/em>, appear to be responded to and taken into account by OLAF, thus providing a form of <em>de facto <\/em>internal control. Furthermore, it could be argued that the lack of sanctioning power is compensated for by the institutions\u2019 role in shaping OLAF\u2019s legislative framework (hence powers) and budget, potentially amounting to a form of <em>ex ante de facto <\/em>control.<\/p>\n<p><strong>Procedural safeguards and protection of fundamental rights. <\/strong>Some of the most significant criticism of OLAF prior to <a href=\"https:\/\/eur-lex.europa.eu\/legal-content\/EN\/TXT\/PDF\/?uri=CELEX:32020R2223&amp;from=EN\">Regulation 2020\/2223<\/a> has been in this area. <a href=\"https:\/\/eur-lex.europa.eu\/legal-content\/EN\/TXT\/PDF\/?uri=CELEX:32020R2223&amp;from=EN\">Regulation 2020\/2223<\/a> actually provides for a new internal mechanism in order to address those, with both <em>ex ante <\/em>and <em>ex post <\/em>controls. While we will have to see how this new Controller works in practice, at least in theory a previous gap in the controls framework seems to have been filled. What remains an unaddressed concern, however, is how a sufficient level of protection is secured, considering various national legislation affecting OLAF\u2019s investigatory powers.<\/p>\n<p><strong>Connections Between Categories.<\/strong> &nbsp;We could argue that the improved framework related to procedural safeguards and fundamental rights protection, can provide a type of <em>ex ante <\/em>control, and compensate for gaps in relation to judicial accountability if it proves to guarantee effective protection in practice. Regarding the various standards brought about by national legislation impacting individuals\u2019 rights, the <em>de facto <\/em>control at the national and EU level (as outlined in relation to judicial accountability above) could help ensure that the system remains flexible despite the lack of harmonization.<\/p>\n<!-- AddThis Advanced Settings generic via filter on the_content --><!-- AddThis Share Buttons generic via filter on the_content -->","protected":false},"excerpt":{"rendered":"<p>By Tessa, Sophie, Martina &amp; Desislava Complex multi-level structures governed by different jurisdictions require sophisticated systems of control. The Office Europ\u00e9en de Lutte Antifraude (OLAF) is a prime example of such a structure, especially if we consider the plethora of regulations, decisions and national legislation that set its boundaries during its investigations of fraud related &hellip; <a href=\"https:\/\/eulawenforcement.com\/?p=7804\" class=\"more-link\">Continue reading<span class=\"screen-reader-text\"> &#8220;OLAF \u2013 A balancing act between different systems of control&#8221;<\/span><\/a><!-- AddThis Advanced Settings generic via filter on get_the_excerpt --><!-- AddThis Share Buttons generic via filter on get_the_excerpt --><\/p>\n","protected":false},"author":94,"featured_media":0,"comment_status":"open","ping_status":"open","sticky":false,"template":"","format":"standard","meta":{"footnotes":""},"categories":[1],"tags":[],"class_list":["post-7804","post","type-post","status-publish","format-standard","hentry","category-uncategorized"],"post_mailing_queue_ids":[],"_links":{"self":[{"href":"https:\/\/eulawenforcement.com\/index.php?rest_route=\/wp\/v2\/posts\/7804","targetHints":{"allow":["GET"]}}],"collection":[{"href":"https:\/\/eulawenforcement.com\/index.php?rest_route=\/wp\/v2\/posts"}],"about":[{"href":"https:\/\/eulawenforcement.com\/index.php?rest_route=\/wp\/v2\/types\/post"}],"author":[{"embeddable":true,"href":"https:\/\/eulawenforcement.com\/index.php?rest_route=\/wp\/v2\/users\/94"}],"replies":[{"embeddable":true,"href":"https:\/\/eulawenforcement.com\/index.php?rest_route=%2Fwp%2Fv2%2Fcomments&post=7804"}],"version-history":[{"count":10,"href":"https:\/\/eulawenforcement.com\/index.php?rest_route=\/wp\/v2\/posts\/7804\/revisions"}],"predecessor-version":[{"id":8114,"href":"https:\/\/eulawenforcement.com\/index.php?rest_route=\/wp\/v2\/posts\/7804\/revisions\/8114"}],"wp:attachment":[{"href":"https:\/\/eulawenforcement.com\/index.php?rest_route=%2Fwp%2Fv2%2Fmedia&parent=7804"}],"wp:term":[{"taxonomy":"category","embeddable":true,"href":"https:\/\/eulawenforcement.com\/index.php?rest_route=%2Fwp%2Fv2%2Fcategories&post=7804"},{"taxonomy":"post_tag","embeddable":true,"href":"https:\/\/eulawenforcement.com\/index.php?rest_route=%2Fwp%2Fv2%2Ftags&post=7804"}],"curies":[{"name":"wp","href":"https:\/\/api.w.org\/{rel}","templated":true}]}}