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第三節、歐盟保護區域與少數語言之法理基礎
二次大戰後，西歐國家呈現滿目瘡痍狀態，體認出「歐洲統合」將有助於歐 洲和平，便自 1950 年開始一連串漫長的統合計畫，然而歐洲統合之初，僅在於 維護和平與促進經濟發展目標上著手，基於這 2 項目標，1951 年由法國、德國、
義大利、荷蘭、比利時和盧森堡 6 國成立「歐洲煤鋼共同體」，之後由制定第一 個《歐洲共同體條約》到最新的《里斯本條約》（Treaty of Lisbon）當中，出現 諸多著墨於尊重語言多樣性的法律，並期望促使少數語言能夠受到公平的對待與 發展。
一、《歐洲共同體條約》
鑑於「歐洲煤鋼共同體」的成功，法國、德國、義大利、荷蘭、比利時和盧 森堡6國於1957年3月25日在義大利首都羅馬簽署《歐洲共同體條約》，條約中第 217條規定有關共同體的語言使用制度，應在不損害條款規定原則下，由理事會 採取全體一致決；及條約第248條進一步制定了以德、法、義、荷四種語言的文 本具有同等效力。33 由這些規範可以看出歐體已經開始重視會員國彼此間語言 相關的問題，並依據這些規範，1958年歐體部長理事會頒布歐體第1號語言條例，
這也是迄今為止針對語言問題最早頒發的法規，其中明文規定，歐體內的德、法、
義、荷四種語言都是相互平等的官方語言與工作語言。34
33 參閱http://eur-lex.europa.eu/en/treaties/index.htm#founding
Article 217: The rules concerning the languages of the institutions of the Community shall, without prejudice to the provisions laid down in the rules of the Court of Justice, be determined by the Council acting by means of a unanimous vote.
Article 248: The present Treaty, drawn up in a single original in the German, French, Italian and Netherlands languages, all four texts being equally authentic, shall be deposited in the archives of the Government of the Italian Republic which shall transmit a certified copy to each of the Governments of the other signatory States.
34 張台麟，〈歐盟推動多元語言制度的發展與挑戰〉，張台麟主編，《全球化下的歐洲語言與文化
政策─台灣觀點》，台北：政大歐研中心，2007 年，頁 163。
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35 Article 126: 1. The Community shall contribute to the development of quality education by encouraging cooperation between Member States and, if necessary, by supporting and supplementing their action, while fully respecting the responsibility of the Member States for the content of teaching and the organization of education systems and their cultural and linguistic diversity.
Article 128: 1. The Community shall contribute to the flowering of the cultures of the Member States, while respecting their national and regional diversity and at the same time bringing the common cultural heritage to the fore.
Article 217: The rules governing the languages of the institutions of the Community shall, without prejudice to the provisions contained in the Rules of Procedure of the Court of Justice, be determined by the Council, acting unanimously.
Article 248: This Treaty, drawn up in a single original in the Dutch, French, German and Italian languages, all four texts being equally authentic, shall be deposited in the archives of the Government of the Italian Republic, which shall transmit a certified copy to each of the Governments of the other signatory States.
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斯條約》（Treaty of Nice），條約中第 290 條說明共同體語言使用規則，應在不 妨礙國際法院規約下，採取全體一致行動；另外，第二部份過渡和最後條款第與《歐盟基本權利憲章》（Charter of Fundamental Rights of the European Union）
2 個關於語言規範的重要方針。隨著歐盟逐漸擴大，1993 年於哥本哈根歐洲高峰 會議上，針對中東歐國家制定了《哥本哈根標準》，要求擴大後新加入國家需符 合三項標準：一、穩定的體制保障民主、法治、尊重人權和保護少數民族；二、
36 參閱http://eur-lex.europa.eu/en/treaties/dat/11997M/htm/11997M.html#0145010077
Article 21(ex Article 8d): Every citizen of the Union may write to any of the institutions or bodies referred to in this Article or in Article 7 in one of the languages mentioned in Article 314 and have an answer in the same language.
Article 314 (ex Article 248): This Treaty, drawn up in a single original in the Dutch, French, German, and Italian languages, all four texts being equally authentic, shall be deposited in the archives of the Government of the Italian Republic, which shall transmit a certified copy to each of the Governments of the other signatory States. Pursuant to the Accession Treaties, the Danish, English, Finnish, Greek, Irish, Portuguese, Spanish and Swedish versions of this Treaty shall also be authentic.
37 參閱 Official Journal of the European Communities (2001) Treaty of Nice, 01.08.2001.
Article 290: The rules governing the languages of the institutions of the Community shall, without prejudice to the provisions contained in the Statute of the Court of Justice, be determined by the Council, acting unanimously.
Article 13: This Treaty, drawn up in a single original in the Danish, Dutch, English, Finnish, French, German, Greek, Irish, Italian, Portuguese, Spanish and Swedish languages, the texts in each of these languages being equally authentic, shall be deposited in the archives of the Government of the Italian Republic, which will transmit a certified copy to each of the governments of the other signatory States.
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洲共同體條約》則更名為《歐洲聯盟運作條約》（Treaty on the Functioning of the European Union）並從此取代原有《歐洲共同體條約》的名稱，而《歐洲聯盟條38 http://ec.europa.eu/enlargement/enlargement_process/accession_process/criteria/index_en.htm
39 參閱Official Journal of the European Communities, Charter of Fundamental Rights of the European Union, C 364/1, 18.12.2000.
Article 21 Non-discrimination: 1.Any discrimination based on any ground such as sex, race, colour, ethnic or social origin, genetic features, language, religion or belief, political or any other opinion, membership of a national minority, property, birth, disability, age or sexual orientation shall be prohibited.
Article 22 Cultural, religious and linguistic diversity: The Union shall respect cultural, religious and linguistic diversity.
40 參閱 張台麟，〈歐盟高峰會通過「里斯本條約」之背景與意涵〉，張台麟主編《歐盟統合與里
斯本條約》，2008，頁 6。
與 Official Journal of the European Union, Consolidated Versions of the Treaty on European Union and the Treaty on the Functioning of the European Union, C 83 Volume 53, 30.03.2010
Article 3 (ex Article 2 TEU): 3. It shall respect its rich cultural and linguistic diversity, and shall ensure that Europe’s cultural heritage is safeguarded and enhanced.
41 Article 55(ex Article 53 TEU): 1. This Treaty, drawn up in a single original in the Bulgarian, Czech, Danish, Dutch, English, Estonian, Finnish, French, German, Greek, Hungarian, Irish, Italian, Latvian, Lithuanian, Maltese, Polish, Portuguese, Romanian, Slovak, Slovenian, Spanish and Swedish
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上訴，且不是依照各國的國內法，而是可上訴至盧森堡歐洲法院（European Court of Justice）。換言之，《里斯本條約》擴大了個別權利在歐盟的影響力，且更積languages, the texts in each of these languages being equally authentic, shall be deposited in the archives of the Government of the Italian Republic, which will transmit a certified copy to each of the governments of the other signatory States.
42 Article 20(ex Article 17 TEC): 2. Citizens of the Union shall enjoy the rights and be subject to the duties provided for in the Treaties. They shall have, inter alia:
(d) the right to petition the European Parliament, to apply to the European Ombudsman, and to address the institutions and advisory bodies of the Union in any of the Treaty languages and to obtain a reply in the same language.
43 Article 342(ex Article 290 TEC): The rules governing the languages of the institutions of the Union shall, without prejudice to the provisions contained in the Statute of the Court of Justice of the European Union, be determined by the Council, acting unanimously by means of regulations.
44 Article 2: The Union is founded on the values of respect for human dignity, freedom, democracy, equality, the rule of law and respect for human rights, including the rights of persons belonging to minorities. These values are common to the Member States in a society in which pluralism, non-discrimination, tolerance, justice, solidarity and equality between women and men prevail.
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仍有批評者持不同意見，說明該條約雖然具有很強的“親少數＂訊息，但令人失 望的是政策相關性較弱，保護少數民族的發展只能證明是一個不斷成長的法律事 實，但《里斯本條約》卻沒有添加任何獨立政策工具或促使“親少數＂的法律原 則於日常生活中付諸實踐。由此可見，雖然《里斯本條約》及其章程有可能減少 歐盟內種族主義仇外心理所衍生出的動亂。然而，以消極面看來，在缺乏全面性 政策保護下，仍欠周全。45 因此，歐盟仍有空間從事更多少數語言權利的相關 政策。另一方面，《里斯本條約》生效增加了歐洲議會的作用，並對歐洲一體化 進程具有歷史性的意義，在實踐中引入《里斯本條約》則意味著，非政府組織和 歐洲議會有機會達到保護少數語言權利的目標。46 總體來說，雖然從《歐洲共 同體條約》至《里斯本條約》並無特別針對區域或少數語言做出強制性法律限制，
但條約明白闡釋尊重語言的多樣性，對保護區域與少數語言皆採取輔助性原則之 立場加以規範。
45 參閱http://galkinga.hu/en/minority_intergroup/
46 歐洲議會自 1980 年開始便通過一系列促進少數語言的決議，本文第肆章中有詳細列舉。
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第肆章、歐盟推動保護區域與少數語言之策略與實踐
歐盟主要機構如歐洲理事會、歐洲議會、歐盟理事會與歐盟執委會皆對推動 區域與少數語言之相關策略不遺餘力。最早由 1980 年歐洲議會開始通過決議促 進區域與少數語言；歐盟執委會對少數語言相關實踐範圍包含教育、法律與媒體 等領域；另外，歐洲理事會更是針對少數語言制定了《歐洲區域或少數語言憲章》
以保障會員國內的區域與少數語言，而唯獨歐盟理事會對少數語言所規範事項著 墨較少。於 2003 年歐盟理事會第 2490 次會議的內部市場研究競爭力報告中，對 語言制度指出：必需符合法律的確定性和不歧視原則；並於 2005 年第 2689 次會 議之教育、青年和文化計畫中，在文化領域內建議成立 i2010 數位圖書館計畫，
對此，理事會提出需要促進所有的歐洲語言，包括少數語言；更於 2008 年第 2914 次會議，理事會對世界人權宣言 60 週年發表結論，重申“人人有資格享受一切 權利和自由，沒有如出生、種族、性別、語言、宗教信仰、政治、其它見解、出 身、屬於少數人或其它身份的區別＂。1 由上述歐盟理事會所發表的報告中不難 發現，歐盟理事會對於區域與少數語言並無特定政策或計畫規範，更無相關實踐 機構，與歐盟執委會、歐洲議會相較之下，對於少數語言之保障與規範，僅能以 輔助性質加以補充。因此，以下將僅介紹歐盟、歐盟執委會、歐洲議會以及歐洲 理事會於保護區域與少數語言上所制定之相關計畫，對於歐盟理事會筆者便不加 以贅述。
1 Council of the European Union, COMPETITIVENESS (Internal Market, Industry and Research), 6874/1/03 (Presse 59), 03.03.2003, p.16
Council of the European Union, Education, Youth and Culture, 14061/05 (Presse 284), 14-15.11.2005, p.13
Council of the European Union, General Affairs and External Relations, 16862/08 (Presse 359), 08.12.2008, p.37
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歐盟基本權利機構（European Union Agency for Fundamental Rights，FRA）
依據歐盟理事會條例 2007 年 2 月 15 日於維也納設立。2 該機構表示尊重人權和
2 Official Journal of the European Union, REGULATIONS COUNCIL REGULATION (EC) No 168/2007 of 15 February 2007: establishing a European Union Agency for Fundamental Rights, L 53/1, 22.02.2007
3 參閱 Article 6 (2)：The Union shall respect fundamental rights, as guaranteed by the European Convention for the Protection of Human Rights and Fundamental Freedoms signed in Rome on 4 November 1950 and as they result from the constitutional traditions common to the Member States, as general principles of Community law.
4 Official Journal of the European Union, COUNCIL DECISION of 28 February 2008 implementing Regulation (EC) No 168/2007 as regards the adoption of a Multi-annual Framework for the European Union Agency for Fundamental Rights for 2007-2012 (2008/203/EC), L 63/14, 07.03.2008