’WPCū kžĮŻéµHŪ${÷‚ ”m†įŲT[ tµŌZĪ(a'I‡­@.2ĶY£’•³•H 9ą<%|ןŽn³ÆHŃ!. ęh…˜p@ŲĆÅ4OĆTŲ¤Ąˆ–4F•€™†ų꧖'”…C@‡@ ųī€ųŚūv;UÆĻoå_Č$ć›1˜¢¾ˆA?"¼W7]÷ģ:čne°šh`Ø"8fP'Ņƒ"†®E|lb³ŠuÆ9ZPɈwą”œ¢Ś5EįlGń€|VélrłŗžZՋŲwX»® cžuī–iÆCPßOržŹ>’’įz¶·/ņžóĻ®F?żF ؑˆ@›p3.Ä<‹‹čv'7īęjInć Č½h,˜”ŽkŗŽé\Ę[賬 ƒE¾ųŠEõwČz{k‹Ś XĶŃĀ$ß`źjHļĶ;~’č Hī=SAæBF^[6jœ”Ų=€ŹRé®jcųz”™‚¢»–õ”:,aßĪ*<źÓ5’Ó¶Ņ$„C‰LK»‡t’R©Ż^™i)Š žSįldė11Śkg5r C Ķäd"ū¹8Ā°qØ©čöėz"P©h–)=ÉiM® RTWT–Uń0“vpQž>æU>¤Ģā 0µ® 0<c 0YŸ 0_ų 0iW 0PĄĘ 0įÖ 0(· D+ß AM %W W ] 0Nm 0Ę» #Į UNBBM(”N¼^ ¾wŹ4Īā mäō\  `‹&Times New Roman' L. G. Danning v. the Netherlands, Communication No. 180/1984 (9 April 1987), U.N. Doc. Sup4 1987), U.N. Doc. Sup"Angie Dituri"0Angie Dituri .   6F , ’’4Heading 3Ō S ŌÓ p^SÓŌ€£££Ōņ ņŌ  ŌŌ  ŌŌ€XXXŌó óÓ p^SÓ<’’:Default Para6’’4HyperlinkóóņņŌ ’ ŌóóŌ  Ō<’’:FollowedHypeóóņņŌ  ŌóóŌ  Ō< ’’:Normal (Web)Ō S ŌÓ =jSÓÓ =jSÓ0’’.Strongņ ņŌ  Ōó óŌ  Ō Level 1 Level 2 Level 3 Level 4 Level 5(¹2!Ķ$££Ż ƒµ!ŻŅÜ°ŅŅÜ°ŅŌ..ŌŌ  ŌŌ  ŌÓ  ÓŌ€X*–XXXŌŌ€X*–XXX*–ŌŌŌŻ  Ż(’’$’’'dxd A<< c’’X#|x(ĶO$——Ō’ŌņņóóŌ’Ō(žµ$””ŅÜ°ŅŅÜ°ŅŌ..ŌŌ  ŌŌ  ŌÓ  ÓŌ€X9¶XXXŌŌ€X9¶XXX9¶ŌŌŌ˜HP LaserJet 6P/6MP - Standard,ä,,,,,ä0(ČhH  Z‹6Times New Roman RegularŌ™ł* Äpģ*X[” ’U‹’ĄĄĄŻ ƒµ!ŻŅÜ°ŅŅÜ°ŅŌ..ŌŌ  ŌŌ  ŌÓ  ÓŌ€X*–XXXŌŌ€X*–XXX*–ŌŌŌŻ  ŻŌ_Ōņ ņHUMAN€RIGHTS€COMMITTEEŠ ° ŠĢņņŌ_ŌDanningŌ_Ō€Ō_Ōv.Ō_Ō€the€NetherlandsóóŠ |Ģ ŠĢCommunication€No.€180/1984Š H˜ ŠĢ9€April€1987Š  d ŠĢĢVIEWSó óŠ Ę   ŠĢĢņņņņSubmitted€by:€óóL.€G.€Ō_ŌDanningŌ_Ō€(represented€by€legal€counsel)€Š xČ  ŠĢņņAlleged€victim:€óóthe€author€Š D”  ŠĢņņState€party€concerned:€óóthe€Netherlands€Š ` ŠĢņņDate€of€communication:€óó19€July€1984€Š Ü, ŠĢņņDate€of€decision€on€admissibility:€óó25€October€1985€óóŠ Øų ŠĢĢņņÓ  ÓThe€Human€Rights€Committeeóó€established€under€article€28€of€the€International€Covenant€onŠ ZŖ ŠCivil€and€Political€Rights:Š @ ŠĢņņMeetingóó€on€9€April€1987;€Š  \ ŠĢņņHaving€concludedóó€its€consideration€of€communication€No.€180/1984€submitted€to€theŠ Ų( ŠCommittee€by€L.€G.€Ō_ŌDanningŌ_Ō€under€the€Optional€Protocol€to€the€International€Covenant€onŠ ¾ ŠCivil€and€Political€Rights;€Š ¤ō ŠĢņņHaving€taken€into€accountóó€all€written€information€made€available€to€it€by€the€author€of€theŠ p!Ą  Šcommunication€and€by€the€State€party€concerned;€Š V"¦! ŠĢņņAdoptsóó€the€following:€Š "$r# ŠĢĢÓ  Óņ ņņņViews€under€article€5,€paragraph€4,€of€the€Optional€Protocolóóó óŠ Ō&$"& ŠÓeÓĢĢ1.€The€author€of€the€communication€(initial€letter€dated€19€July€1984€and€subsequent€lettersŠ †)Ö$) Šdated€13€August€1984,€8€July€1985€and€25€June€1986)€is€Ludwig€Ō_ŌGustaafŌ_Ō€Ō_ŌDanningŌ_Ō,€aŠ l*¼%* ŠNetherlands€citizen€born€in€1960.€He€is€represented€by€legal€counsel.€Š R+¢&+ ŠĢ2.1€The€author€claims€to€be€a€victim€of€a€violation€by€the€Government€of€the€Netherlands€ofŠ -n(- Šarticle€26€in€conjunction€with€article€2,€paragraph€1€of€the€International€Covenant€on€CivilŠ ° Šand€Political€Rights.€Š –ę ŠĢ2.2€He€states€that,€as€a€consequence€of€an€automobile€accident€in€1979,€he€became€disabledŠ b² Šand€confined€to€a€wheelchair.€During€the€first€year€after€the€accident€he€received€paymentsŠ H˜ Šfrom€his€employer's€insurance;€after€the€first€year,€payments€were€received€under€anotherŠ . ~ Šinsurance€Ō_ŌprogrammeŌ_Ō€for€employees€who€have€been€medically€declared€unfit€to€work.€ThisŠ  d ŠŌ_ŌprogrammeŌ_Ō€provides€for€higher€payments€to€married€beneficiaries.€The€author€claims€thatŠ ś J Šsince€1977€he€has€been€engaged€to€Miss€Esther€Ō_ŌVerschurenŌ_Ō€and€that€they€live€together€inŠ ą 0 Šcommon„law€marriage.€Therefore€he€maintains€that€he€should€be€accorded€insurance€benefitsŠ Ę   Šas€a€married€man€and€not€as€a€single€person.€Such€benefits,€however,€have€been€denied€toŠ ¬ ü  Šhim€and€he€has€taken€the€case€to€the€competent€instances€in€the€Netherlands.€The€Ō_ŌRaadŌ_Ō€vanŠ ’ā  ŠŌ_ŌBeroepŌ_Ō€in€Rotterdam€(an€organ€dealing€with€administrative€appeals€in€employment€issues)Š xČ  Šheld€in€1981€that€his€claim€was€ill„founded;€he€subsequently€appealed€to€the€Ō_ŌCentraleŌ_Ō€Ō_ŌRaadŌ_ŌŠ ^®  Švan€Ō_ŌBeroepŌ_Ō€in€Utrecht,€which€in€1983€confirmed€the€decision€of€the€lower€instance.€HeŠ D”  Šclaims€that€this€appeal€exhausted€domestic€remedies.€Š *z  ŠĢ2.3€The€same€matter€has€not€been€submitted€for€examination€to€any€other€procedure€ofŠ öF Šinternational€investigation€or€settlement.€Š Ü, ŠĢ3.€By€its€decision€of€16€October€1984,€the€Working€Group€of€the€Human€Rights€CommitteeŠ Øų Štransmitted€the€communication€under€rule€91€of€the€provisional€rules€of€procedure,€to€theŠ ŽŽ ŠState€party€concerned,€requesting€information€and€observations€relevant€to€the€question€ofŠ tÄ Šadmissibility€of€the€communication.€Š ZŖ ŠĢ4.1€In€its€submission€dated€29€May€1985€the€State€party€underlined,€ņņinter€alia,€óóthat:€Š &v ŠĢ(a)€"The€principle€that€elements€of€discrimination€in€the€realization€of€the€right€to€socialŠ ņB Šsecurity€are€to€be€eliminated€is€embodied€in€article€9€in€conjunction€with€articles€2€and€3€ofŠ Ų( Šthe€International€Covenant€on€Economic,€Social€and€Cultural€Rights";€Š ¾ ŠĢ(b)€"The€Government€of€the€Kingdom€of€the€Netherlands€has€accepted€to€implement€thisŠ Š Ś Šprinciple€under€the€terms€of€the€International€Covenant€on€Economic,€Social€and€CulturalŠ p!Ą  ŠRights.€Under€these€terms,€States€parties€have€undertaken€to€take€steps€to€the€maximum€ofŠ V"¦! Štheir€available€resources€with€a€view€to€achieving€progressively€the€full€realization€of€theŠ <#Œ" Šrights€recognized€in€that€Covenant€(art.€2,€para.€1)";€Š "$r# ŠĢ(c)€"The€process€of€gradual€realization€to€the€maximum€of€available€resources€is€well€on€itsŠ ī%>!% Šway€in€the€Netherlands.€Remaining€elements€of€discrimination€in€the€realization€of€the€rightsŠ Ō&$"& Šare€being€and€will€be€gradually€eliminated";€Š ŗ' #' ŠĢ(d)€"The€International€Covenant€on€Economic,€Social€and€Cultural€Rights€has€establishedŠ †)Ö$) Šits€own€system€for€international€control€of€the€way€in€which€States€parties€are€fulfilling€theirŠ l*¼%* Šobligations.€To€this€end€States€parties€have€undertaken€to€submit€to€the€Economic€and€SocialŠ R+¢&+ ŠCouncil€reports€on€the€measures€they€have€adopted€and€the€progress€they€are€making.€TheŠ 8,ˆ', ŠGovernment€of€the€Kingdom€of€the€Netherlands€to€this€end€submitted€its€first€report€inŠ -n(- ŠŌ_Ō1983".€Š ° ŠĢ4.2€The€State€party€then€posed€the€question€whether€the€way€in€which€the€Netherlands€wasŠ |Ģ Šfulfilling€its€obligations€under€article€9€in€conjunction€with€articles€2€and€3€of€theŠ b² ŠInternational€Covenant€on€Economic,€Social€and€Cultural€Rights€could€become,€by€way€ofŠ H˜ Šarticle€26€of€the€International€Covenant€on€Civil€and€Political€Rights,€the€object€of€anŠ . ~ Šexamination€by€the€Human€Rights€Committee.€The€State€party€submitted€that€that€questionŠ  d Šwas€relevant€for€the€decision€whether€the€communication€was€admissible.€Š ś J ŠĢ4.3€The€State€party€stressed€that€it€would€greatly€benefit€from€receiving€an€answer€from€theŠ Ę   ŠHuman€Rights€Committee€to€the€question€mentioned€in€paragraph€4.2€above.€"Since€suchŠ ¬ ü  Šan€answer€could€hardly€be€given€without€going€into€one€aspect€of€the€merits€of€the€case€„€i.e.,Š ’ā  Šthe€question€of€the€scope€of€article€26€of€the€International€Covenant€on€Civil€and€PoliticalŠ xČ  ŠRights€„€the€Government€would€respectfully€request€the€Committee€to€join€the€question€ofŠ ^®  Šadmissibility€to€an€examination€of€the€merits€of€the€case."€Š D”  ŠĢ4.4€In€case€the€Committee€did€not€grant€that€request€and€declared€the€communicationŠ ` Šadmissible,€the€State€party€reserved€the€right€to€submit,€in€the€course€of€the€proceedings,Š öF Šobservations€which€might€have€an€effect€on€the€question€of€admissibility.€Š Ü, ŠĢ4.5€The€State€party€confirmed€that€the€author€had€exhausted€domestic€remedies.€Š Øų ŠĢ5.€Commenting€on€the€State€party's€submission€under€rule€91,€the€author,€in€a€letter€dated€8Š tÄ ŠJuly€1985,€contends€that€the€fact€that€the€International€Covenant€on€Economic,€Social€andŠ ZŖ ŠCultural€Rights€obliges€the€Governments€of€the€States€parties€to€eliminate€discrimination€inŠ @ Štheir€system€of€social€security,€does€not€mean€that€the€individuals€of€the€State€parties€whichŠ &v Šare€also€parties€to€the€Optional€Protocol€to€the€International€Covenant€on€Civil€and€PoliticalŠ  \ ŠRights€are€precluded€from€having€recourse€to€the€Human€Rights€Committee€in€case€of€aŠ ņB Šviolation€of€any€right€set€forth€in€the€latter€Covenant€that€at€the€same€time€constitutesŠ Ų( Šdiscrimination€in€the€exercise€of€a€social€security€right.€Š ¾ ŠĢ6.1€Before€considering€any€claims€contained€in€a€communication,€the€Human€RightsŠ Š Ś ŠCommittee€must,€in€accordance€with€rule€87€of€its€provisional€rules€of€procedure,€decideŠ p!Ą  Šwhether€or€not€it€is€admissible€under€the€Optional€Protocol€to€the€Covenant.€Š V"¦! ŠĢ6.2€Article€5,€paragraph€2€(a),€of€the€Optional€Protocol€precludes€the€Committee€fromŠ "$r# Šconsidering€a€communication€if€the€same€matter€is€being€examined€under€another€procedureŠ %X $ Šof€international€investigation€or€settlement.€In€this€connection€the€Committee€observes€thatŠ ī%>!% Šthe€examination€of€State€reports,€submitted€under€article€16€of€the€International€CovenantŠ Ō&$"& Šon€Economic,€Social€and€Cultural€Rights,€does€not,€within€the€meaning€of€article€5€(2)€(a),Š ŗ' #' Šconstitute€an€examination€of€the€'same€matter'€as€a€claim€by€an€individual€submitted€to€theŠ  (š#( ŠHuman€Rights€Committee€under€the€Optional€Protocol.€Š †)Ö$) ŠĢ6.3€The€Committee€further€observes€that€a€claim€submitted€under€the€Optional€ProtocolŠ R+¢&+ Šconcerning€an€alleged€breach€of€a€provision€of€the€International€Covenant€on€Civil€andŠ 8,ˆ', ŠPolitical€Rights€is€not€necessarily€incompatible€with€the€provisions€of€that€Covenant€(see€art.Š -n(- Š3€of€the€Optional€Protocol),€because€the€facts€also€relate€to€a€right€protected€by€theŠ ° ŠInternational€Covenant€on€Economic,€Social€and€Cultural€Rights€or€any€other€internationalŠ –ę Šinstrument.€It€still€had€to€be€tested€whether€the€alleged€breach€of€a€right€protected€by€theŠ |Ģ ŠInternational€Covenant€on€Civil€and€Political€Rights€was€borne€out€by€the€facts.€Š b² ŠĢ6.4€Article€5,€paragraph€2€(b),€of€the€Optional€Protocol€precludes€the€Committee€fromŠ . ~ Šconsidering€a€communication€unless€domestic€remedies€have€been€exhausted.€The€partiesŠ  d Što€the€present€communication€agree€that€domestic€remedies€have€been€exhausted.€Š ś J ŠĢ6.5€With€regard€to€the€State€party's€inquiry€concerning€the€scope€of€article€26€of€theŠ Ę   ŠInternational€Covenant€on€Civil€and€Political€Rights,€the€Committee€did€not€consider€itŠ ¬ ü  Šnecessary€to€pronounce€on€its€scope€prior€to€deciding€on€the€admissibility€of€theŠ ’ā  Šcommunication.€However,€having€regard€to€the€State€party's€statement€(para.€4.4€above)€thatŠ xČ  Šit€reserved€the€right€to€submit€further€observations€which€might€have€an€effect€on€theŠ ^®  Šquestion€of€the€admissibility€of€the€case,€the€Committee€pointed€out€that€it€would€take€intoŠ D”  Šaccount€any€further€observations€received€on€the€matter.€Š *z  ŠĢ7.€On€25€October€1985€the€Human€Rights€Committee€therefore€decided€that€theŠ öF Šcommunication€was€admissible.€In€'accordance€with€article€4,€paragraph€2,€of€the€OptionalŠ Ü, ŠProtocol,€the€State€party€was€requested€to€submit€to€the€Committee,€within€six€months€of€theŠ Ā Šdate€of€transmittal€to€it€of€the€decision€on€admissibility,€written€explanations€or€statementsŠ Øų Šclarifying€the€matter€and€the€measures,€if€any,€that€might€have€been€taken€by€it.€Š ŽŽ ŠĢ8.1€In€its€submission€under€article€4,€paragraph€2,€of€the€Optional€Protocol,€dated€20€MayŠ ZŖ Š1986,€the€State€party€again€objected€to€the€admissibility€of€the€communication,€reiteratingŠ @ Šthe€arguments€advanced€in€its€submission€of€29€May€1985.€Š &v ŠĢ8.2€In€discussing€the€merits€of€the€case,€the€State€party€elucidates€first€the€factual€backgroundŠ ņB Šand€the€relevant€legislation€as€follows:€Š Ų( ŠĢ"Paragraph€2.2€of€the€Human€Rights€Committee's€decision€of€23€July€1985€sets€forth€theŠ ¤ō Ševents€prior€to€Mr.€Danning's€complaint.€The€facts€of€the€case€need€to€be€stated€moreŠ Š Ś Šprecisely.€After€the€accident,€Mr.€Danning€received€benefit€under€the€Sickness€Benefits€ActŠ p!Ą  Š(ZW),€which€was€supplemented€by€his€employer.€As€from€14€July€1980€he€receivedŠ V"¦! Šdisablement€benefit€in€accordance€with€the€General€Disablement€Benefits€Act€(AAW)€andŠ <#Œ" Šthe€Disability€Insurance€Act€(WAO).€This€benefit€was€supplemented€by€payments€made€inŠ "$r# Šaccordance€with€the€General€Assistance€Act€(ABW).€Š %X $ ŠĢ"To€obtain€a€clear€picture€of€the€present€matter€it€is€important€to€consider€the€regulations€forŠ Ō&$"& Šdisability€for€work€in€the€Netherlands.€Employed€persons€pay€contributions,€based€on€theirŠ ŗ' #' Šincome,€towards€various€forms€of€social€insurance.€The€most€important€of€these€in€theŠ  (š#( Špresent€case€are€the€Sickness€Benefits€Act€(ZW),€the€Disability€Insurance€Act€(WAO)€andŠ †)Ö$) Šthe€General€Disablement€Benefits€Act€(AAW).€If€the€employee€falls€ill,€he€can€receiveŠ l*¼%* Šbenefit€equivalent€to€70€per€cent€of€his€most€recent€income€(up€to€a€yearly€income€+€f.Š R+¢&+ Š60,000)€for€a€period€of€up€to€one€year€under€ZW.€The€employer€will€in€most€cases€contributeŠ 8,ˆ', Šthe€remaining€30€per€cent€of€the€employee's€income.€If€the€employee€remains€ill€for€moreŠ -n(- Šthan€one€year,€sickness€benefit€is€replaced€by€payments€made€under€the€provisions€of€AAWŠ ° Šand€WAO.€Š –ę ŠĢ"AAW€is€a€basic€payment€for€(long„term)€disability€and€is€linked€to€the€minimumŠ b² Šsubsistence€income€as€defined€in€the€Netherlands.€Persons€who€were€in€full„timeŠ H˜ Šemployment€prior€to€becoming€disabled€qualify€in€the€first€instance€for€a€standard€payment,Š . ~ Šbased€on€what€is€termed€the€'base€figure'.€Š  d ŠĢ"In€the€case€of€total€disability,€the€base€figure€will€give€a€payment€equivalent€to€70€per€centŠ ą 0 Šof€the€current€net€statutory€minimum€wage.€Only€married€people€with€a€dependent€spouseŠ Ę   Šand€unmarried€people€with€one€or€more€dependent€children€may€qualify€for€an€increase€ofŠ ¬ ü  Šthe€base€figure€by€15€to€30€per€cent,€depending€on€the€amount€of€the€insured€person's€ownŠ ’ā  Šincome€(art.€10€AAW).€'Married€person'€is€defined€in€such€a€way€as€to€exclude€unmarriedŠ xČ  Šcohabitants.€Š ^®  ŠĢ"This€rather€complicated€system,€involving€two€different€Acts€concerning€disablement,€canŠ *z  Šbe€explained€in€historical€terms.€WAO€dates€from€18€February€1967€and€AAW€from€11Š ` ŠDecember€1975.€The€introduction€of€AAW€(which€unlike€WAO€was€not€restricted€toŠ öF Šemployees,€but€also€included€the€self„employed)€meant€that€WAO€(which€was€usually€higherŠ Ü, Šthan€AAW)€acquired€the€function€of€a€supplementary€payment.€Š Ā ŠĢ"In€the€case€of€partial€disability€or€part„time€employment,€AAW€and€WAO€payments€areŠ ŽŽ Šreduced€proportionately.€If€the€payment€calculated€in€this€way€is€less€than€the€officialŠ tÄ Šsubsistence€level,€it€can€be€supplemented€by€a€(partial)€payment€under€the€provisions€of€theŠ ZŖ ŠGeneral€Assistance€Act€(ABW),€which€contains€regulations€on€the€minimum€subsistenceŠ @ Šincome.€The€size€of€payments€made€under€the€provisions€of€ABW€is€also€linked€to€the€netŠ &v Šminimum€wage.€Unlike€both€AAW€and€WAO,€ABW€takes€account€of€the€financial€positionŠ  \ Šand€income€of€the€recipient's€partner.€Š ņB ŠĢ"This€complicated€system€will€in€fact€probably€be€discontinued€in€the€near€future.€For€someŠ ¾ Štime€now,€the€Netherlands€Government€has€been€planning€to€simplify€the€social€securityŠ ¤ō Šsystem,€partly€with€a€view€to€eliminating€complaints€of€unequal€treatment€of€recipients.€ToŠ Š Ś Šthis€end€the€Government€put€a€package€of€proposed€reform€legislation€before€the€LowerŠ p!Ą  ŠHouse€in€1985.€The€Bill€is€currently€going€through€parliament.€Important€changes€will€beŠ V"¦! Šmade€to€AAW€and€WAO.€There€will€be€a€single€Disablement€Benefits€Act,€and€the€'baseŠ <#Œ" Šfigure'€system€of€AAW€will€disappear.€Š "$r# ŠĢ"It€will€be€replaced€by€a€Supplementary€Benefits€Act,€which€will€provide€for€supplementaryŠ ī%>!% Špayments€in€cases€where€the€basic€payment€is€less€than€the€official€minimal€subsistenceŠ Ō&$"& Šincome.€In€the€course€of€drafting€this€new€legislation,€the€question€whether€married€peopleŠ ŗ' #' Šand€unmarried€cohabitants€will€be€accorded€equal€treatment,€and€if€so€to€what€extent,€willŠ  (š#( Šbe€examined.€Š †)Ö$) ŠĢ"Mr.€Danning€submitted€that€he€was€in€receipt€of€a€supplementary€payment€under€theŠ R+¢&+ Šprovisions€of€ABW.€This€payment€is€apparently€made€because€the€AAW/WAO€payment€isŠ 8,ˆ', Šbelow€the€official€subsistence€level.€Š -n(- Š‡"The€AAW€payment€made€to€Mr.€Danning,€who€at€the€time€of€applying€was€cohabiting€withŠ ° Šhis€girl„friend,€was€based€on€the€general€base€figure€and€not€on€the€higher,€married€person'sŠ –ę Šbase€figure.€In€fact€it€would€make€no€difference€to€the€total€payment€made€to€Mr.€DanningŠ |Ģ Šif€the€AAW€payment€were€to€be€calculated€using€the€married€person's€base€figure.€This€isŠ b² Šbecause€he€lives€with€his€girl„friend€and€therefore€receives€a€supplementary€familyŠ H˜ Šallowance€under€the€provisions€of€ABW,€which€brings€his€total€social€security€payment€upŠ . ~ Što€the€same€level€(i.e.,€the€net€minimum€wage)€as€an€AAW€payment€based€on€the€marriedŠ  d Šperson's€base€figure.€Since€Mr.€Danning€is€in€receipt€of€a€supplementary€allowance€underŠ ś J ŠABW,€the€Netherlands€Government€is€of€the€opinion€that€the€difference€between€ABW€andŠ ą 0 ŠAAW€in€respect€of€the€partner's€financial€position€and€income€is€not€a€factor€in€the€presentŠ Ę   Šcase.€The€conclusion€is€therefore€that€Mr.€Danning's€complaint€is€based€purely€onŠ ¬ ü  Šconsiderations€of€principle."€Š ’ā  ŠĢ8.3€With€regard€to€the€scope€of€article€26€of€the€International€Covenant€on€Civil€and€PoliticalŠ ^®  ŠRights,€the€State€party€argues,€ņņinter€alia,€óóas€follows:€Š D”  ŠĢ"The€Netherlands€Government€takes€the€view€that€article€26€of€the€Covenant€does€entail€anŠ ` Šobligation€to€avoid€discrimination,€but€that€this€article€can€only€be€invoked€under€theŠ öF ŠOptional€Protocol€to€the€Covenant€in€the€sphere€of€civil€and€political€rights,€not€necessarilyŠ Ü, Šlimited€to€those€civil€and€political€rights€that€are€embodied€in€the€Covenant.€The€GovernmentŠ Ā Šcould,€for€instance,€envisage€the€admissibility€under€the€Optional€Protocol€of€a€complaintŠ Øų Šconcerning€discrimination€in€the€field€of€taxation.€But€the€Government€cannot€accept€theŠ ŽŽ Šadmissibility€of€a€complaint€concerning€the€enjoyment€of€economic,€social€and€culturalŠ tÄ Šrights.€The€latter€category€of€rights€is€the€object€of€a€separate€United€Nations€convention.€Mr.Š ZŖ ŠDanning's€complaint€relates€to€rights€in€the€sphere€of€social€security,€which€fall€under€theŠ @ ŠInternational€Covenant€on€Economic,€Social€and€Cultural€Rights.€Articles€2,€3€and€9€of€thatŠ &v ŠCovenant€are€of€particular€relevance€here.€That€Covenant€has€its€own€specific€system€andŠ  \ Šits€own€specific€organ€for€international€monitoring€of€how€States€parties€meet€theirŠ ņB Šobligations€and€deliberately€does€not€provide€for€an€individual€complaints€procedure.Š Ų( ŠĢ"The€Government€considers€it€incompatible€with€the€aims€of€both€the€Covenants€and€theŠ ¤ō ŠOptional€Protocol€that€an€individual€complaint€with€respect€to€the€right€of€social€security,Š Š Ś Šas€referred€to€in€article€9€of€the€International€Covenant€on€Civil€and€Political€Rights,€couldŠ p!Ą  Šbe€dealt€with€by€the€Human€Rights€Committee€by€way€of€an€individual€complaint€under€theŠ V"¦! ŠOptional€Protocol€based€on€article€26€of€the€International€Covenant€on€Civil€and€PoliticalŠ <#Œ" ŠRights.€Š "$r# ŠĢ"The€Netherlands€Government€reports€to€the€Economic€and€Social€Council€on€mattersŠ ī%>!% Šconcerning€the€way€it€is€fulfilling€its€obligations€with€respect€to€the€right€to€social€security,Š Ō&$"& Šin€accordance€with€the€relevant€rules€of€the€International€Covenant€on€Economic,€Social€andŠ ŗ' #' ŠCultural€Rights€...€Š  (š#( ŠĢ"Should€the€Human€Rights€Committee€take€the€view€that€article€26€of€the€InternationalŠ l*¼%* ŠCovenant€on€Civil€and€Political€Rights€ought€to€be€interpreted€more€broadly,€thus€that€thisŠ R+¢&+ Šarticle€is€applicable€to€complaints€concerning€discrimination€in€the€field€of€social€security,Š 8,ˆ', Šthe€Government€would€observe€that€in€that€case€article€26€must€also€be€interpreted€in€theŠ -n(- Šlight€of€other€comparable€United€Nations€Conventions€laying€down€obligations€to€combatŠ ° Šand€eliminate€discrimination€in€the€field€of€economic,€social€and€cultural€rights.€TheŠ –ę ŠGovernment€would€particularly€point€to€the€International€Convention€on€the€Elimination€ofŠ |Ģ ŠAll€Forms€of€Racial€Discrimination€and€the€Convention€on€the€Elimination€of€All€Forms€ofŠ b² ŠDiscrimination€against€Women.€Š H˜ ŠĢ"If€article€26€of€the€International€Covenant€on€Civil€and€Political€Rights€were€deemedŠ  d Šapplicable€to€complaints€concerning€discriminatory€elements€in€national€legislation€in€theŠ ś J Šfield€of€those€conventions,€this€could€surely€not€be€taken€to€mean€that€a€State€party€wouldŠ ą 0 Šbe€required€to€have€eliminated€all€possible€discriminatory€elements€from€its€legislation€inŠ Ę   Šthose€fields€at€the€time€of€ratification€of€the€Covenant.€Years€of€work€are€required€in€orderŠ ¬ ü  Što€examine€the€whole€complex€of€national€legislation€in€search€of€discriminatory€elements.Š ’ā  ŠThe€search€can€never€be€completed,€either,€as€distinctions€in€legislation€which€are€justifiableŠ xČ  Šin€the€light€of€social€views€and€conditions€prevailing€when€they€are€first€made€may€becomeŠ ^®  Šdisputable€as€changes€occur€in€the€views€held€in€society€...€Š D”  ŠĢ"If€the€Human€Rights€Committee€should€decide€that€article€26€of€the€International€CovenantŠ ` Šon€Civil€and€Political€Rights€entails€obligations€with€regard€to€legislation€in€the€economic,Š öF Šsocial€and€cultural€field,€such€obligations€could,€in€the€Government's€view,€not€compriseŠ Ü, Šmore€than€an€obligation€of€States€to€subject€national€legislation€to€periodic€examination€afterŠ Ā Šratification€of€the€Covenant€with€a€view€to€seeking€out€discriminatory€elements€and,€if€theyŠ Øų Šare€found,€to€progressively€taking€measures€to€eliminate€them€to€the€maximum€of€the€State'sŠ ŽŽ Šavailable€resources.€Such€examinations€are€under€way€in€the€Netherlands€with€regard€toŠ tÄ Švarious€aspects€of€discrimination,€including€discrimination€between€men€and€women.€Š ZŖ ŠĢ"If€the€Human€Rights€Committee€accepts€the€above€considerations,€Mr.€Danning's€claim€thatŠ &v Šthe€Netherlands€has€violated€article€26€of€the€Covenant€seems€to€be€ill„founded."€Š  \ ŠĢ8.4€With€regard€to€the€concept€of€discrimination€in€article€26€of€the€Covenant,€the€State€partyŠ Ų( Šexplains€the€distinctions€made€in€Dutch€law€as€follows:€Š ¾ ŠĢ"In€the€Netherlands,€'the€fact€that€people€live€together€as€a€married€or€unmarried€couple€hasŠ Š Ś Šlong€been€considered€a€relevant€factor€to€which€certain€legal€consequences€may€be€attached.Š p!Ą  ŠPersons€living€together€as€unmarried€cohabitants€have€a€free€choice€of€whether€or€not€toŠ V"¦! Šenter€into€marriage,€thereby€making€themselves€subject€either€to€one€set€of€laws€or€toŠ <#Œ" Šanother.€The€differences€between€the€two€are€considerable;€the€cohabitation€of€marriedŠ "$r# Špersons€is€subject€to€much€greater€legal€regulation€than€is€the€cohabitation€of€unmarriedŠ %X $ Špersons.€A€married€person€is,€for€example,€obliged€to€provide€for€his€or€her€spouse'sŠ ī%>!% Šmaintenance;€the€spouse€is€also€jointly€liable€for€debts€incurred€in€respect€of€commonŠ Ō&$"& Šproperty;€a€married€person€also€requires€the€permission€or€co„operation€of€his€or€her€spouseŠ ŗ' #' Šfor€certain€undertakings,€such€as€buying€goods€on€hire€purchase€which€would€normally€beŠ  (š#( Šconsidered€a€part€of€the€household,€transactions€relating€to€the€matrimonial€home,€etc.€TheŠ †)Ö$) ŠCivil€Code€contains€extensive€regulations€governing€matrimonial€law€concerning€property.Š l*¼%* ŠThe€legal€consequences€of€ending€a€marriage€by€divorce€are€also€the€subject€of€a€largeŠ R+¢&+ Šnumber€of€provisions€in€the€Civil€Code,€including€a€provision€allowing€the€imposition€of€aŠ 8,ˆ', Šmaintenance€allowance€payable€to€the€former€spouse.€The€law€of€inheritance,€too,€is€totallyŠ -n(- Šgeared€to€the€individuals'€formal€status.€The€Government€cannot€accept€that€the€differencesŠ ° Šin€treatment€by€the€Netherlands€law,€described€above,€between€married€and€unmarried€co„Š –ę Šhabitants€could€be€considered€to€be€'discrimination'€within€the€legal€meaning€of€that€termŠ |Ģ Šunder€article€26€of€the€Covenant.€There€is€no€question€of€'equal€cases'€being€treatedŠ b² Šdifferently€under€the€law.€There€is€an€objective€justification€for€the€differences€in€the€legalŠ H˜ Šposition€of€married€and€unmarried€co„habitants,€provided€for€by€the€Netherlands€legislation."€Š . ~ ŠĢ9.€In€his€comments,€dated€25€June€1986,€the€author€welcomes€the€forthcoming€changes€inŠ ś J Šthe€General€Disablement€Benefits€Act€(AAW)€and€the€Disability€Insurance€Act€(WAO),Š ą 0 Šmentioned€in€the€State€party's€submission.€However,€he€notes€that€while€he€understands€thatŠ Ę   Šit€is€not€possible€for€the€Netherlands€Government€to€bring€into€effect€immediately€all€desiredŠ ¬ ü  Šchanges€to€the€existing€laws,€"individuals€should€not€suffer€as€a€consequence€of€not€beingŠ ’ā  Šable€to€benefit€from€proposed€changes€in€the€legislation€which€are€about€to€affect€theirŠ xČ  Šsituation."€He€claims€that€the€existing€law€is€"clearly€discriminatory"€and€that€article€26€ofŠ ^®  Šthe€Covenant€applies€because€the€differentiation€between€married€and€unmarried€couples€isŠ D”  Šdiscriminatory€in€itself.€Š *z  ŠĢ10.€The€Human€Rights€Committee€has€considered€the€present€communication€in€the€light€ofŠ öF Šall€information€made€available€to€it€by€the€parties,€as€provided€in€article€5,€paragraph€1,€ofŠ Ü, Šthe€Optional€Protocol.€The€facts€of€the€case€are€not€in€dispute.€Š Ā ŠĢ11.€Article€26€of€the€International€Covenant€on€Civil€and€Political€Rights€provides:€Š ŽŽ ŠĢ"All€persons€are€equal€before€the€law€and€are€entitled€without€any€discrimination€to€the€equalŠ ZŖ Šprotection€of€the€law.€In€this€respect,€the€law€shall€prohibit€any€discrimination€and€guaranteeŠ @ Što€all€persons€equal€and€effective€protection€against€discrimination€on€any€ground€such€asŠ &v Šrace,€colour,€sex,€language,€religion,€political€or€other€opinion,€national€or€social€origin,Š  \ Šproperty,€birth€or€other€status."€Š ņB ŠĢ12.1€The€State€party€contends€that€there€is€considerable€overlapping€of€the€provisions€ofŠ ¾ Šarticle€26€with€the€provisions€of€article€2€of€the€International€Covenant€on€Economic,€SocialŠ ¤ō Šand€Cultural€Rights.€The€Committee€is€of€the€view€that€the€International€Covenant€on€CivilŠ Š Ś Šand€Political€Rights€would€still€apply€even€if€a€particular€subject„matter€is€referred€to€orŠ p!Ą  Šcovered€in€international€instruments,€for€example,€the€International€Convention€on€theŠ V"¦! ŠElimination€of€All€Forms€of€Racial€Discrimination,€the€Convention€on€the€Elimination€ofŠ <#Œ" ŠAll€Forms€of€Discrimination€against€Women,€or,€as€in€the€present€case,€the€InternationalŠ "$r# ŠCovenant€on€Economic,€Social€and€Cultural€Rights.€Notwithstanding€the€interrelated€draftingŠ %X $ Šhistory€of€the€two€Covenants,€it€remains€necessary€for€the€Committee€to€apply€fully€the€termsŠ ī%>!% Šof€the€International€Covenant€on€Civil€and€Political€Rights.€The€Committee€observes€in€thisŠ Ō&$"& Šconnection€that€the€provisions€of€article€2€of€the€International€Covenant€on€Economic,€SocialŠ ŗ' #' Šand€Cultural€Rights€do€not€detract€from€the€full€application€of€article€26€of€the€InternationalŠ  (š#( ŠCovenant€on€Civil€and€Political€Rights.€Š †)Ö$) ŠĢ12.2€The€Committee€has€also€examined€the€contention€of€the€State€party€that€article€26€ofŠ R+¢&+ Šthe€International€Covenant€on€Civil€and€Political€Rights€cannot€be€invoked€in€respect€of€aŠ 8,ˆ', Šright€which€is€specifically€provided€for€under€article€9€of€the€International€Covenant€onŠ -n(- ŠEconomic,€Social€and€Cultural€Rights€(social€security,€including€social€insurance).€In€soŠ ° Šdoing,€the€Committee€has€perused€the€relevant€ņņtravaux€preparatoires€óóof€the€InternationalŠ –ę ŠCovenant€on€Civil€and€Political€Rights,€namely€the€summary€records€of€the€discussions€thatŠ |Ģ Štook€place€in€the€Commission€on€Human€Rights€in€1948,€1949,€1950€and€1952€and€in€theŠ b² ŠThird€Committee€of€the€General€Assembly€in€1961,€which€provide€a€"supplementary€meansŠ H˜ Šof€interpretation"€(art.€32€of€the€Vienna€Convention€on€the€Law€of€Treaties€a/).€TheŠ . ~ Šdiscussions,€at€the€time€of€drafting,€concerning€the€question€whether€the€scope€of€article€26Š  d Šextended€to€rights€not€otherwise€guaranteed€by€the€Covenant,€were€inconclusive€and€cannotŠ ś J Šalter€the€conclusion€arrived€at€by€the€ordinary€means€of€interpretation€referred€to€inŠ ą 0 Šparagraph€12.3€below.€Š Ę   ŠĢ12.3€For€the€purpose€of€determining€the€scope€of€article€26,€the€Committee€has€taken€intoŠ ’ā  Šaccount€the€"ordinary€meaning"€of€each€element€of€the€article€in€its€context€and€in€the€lightŠ xČ  Šof€its€object€and€purpose€(art.€31€of€the€Vienna€Convention€on€the€Law€of€Treaties).€TheŠ ^®  ŠCommittee€begins€by€noting€that€article€26€does€not€merely€duplicate€the€guarantees€alreadyŠ D”  Šprovided€for€in€article€2.€It€derives€from€the€principle€of€equal€protection€of€the€law€withoutŠ *z  Šdiscrimination,€as€contained€in€article€7€of€the€Universal€Declaration€of€Human€Rights,Š ` Šwhich€prohibits€discrimination€in€law€or€in€practice€in€any€field€regulated€and€protected€byŠ öF Špublic€authorities.€Article€26€is€thus€concerned€with€the€obligations€imposed€on€States€inŠ Ü, Šregard€to€their€legislation€and€the€application€thereof.€Š Ā ŠĢ12.4€Although€article€26€requires€that€legislation€should€prohibit€discrimination,€it€does€notŠ ŽŽ Šof€itself€contain€any€obligation€with€respect€to€the€matters€that€raay€be€provided€for€byŠ tÄ Šlegislation.€Thus€it€does€not,€for€example,€require€any€State€to€enact€legislation€to€provideŠ ZŖ Šfor€social€security.€However,€when€such€legislation€is€adopted€in€the€exercise€of€a€State'sŠ @ Šsovereign€power,€then€such€legislation€must€comply€with€article€26€of€the€Covenant.€Š &v ŠĢ12.5€The€Committee€observes€in€this€connection€that€what€is€at€issue€is€not€whether€or€notŠ ņB Šsocial€security€should€be€progressively€established€in€the€Netherlands€but€whether€theŠ Ų( Šlegislation€providing€for€social€security€violates€the€prohibition€against€discriminationŠ ¾ Šcontained€in€article€26€of€the€International€Covenant€on€Civil€and€Political€Rights€and€theŠ ¤ō Šguarantee€given€therein€to€all€persons€regarding€equal€and€effective€protection€againstŠ Š Ś Šdiscrimination.€Š p!Ą  ŠĢ13.€The€right€to€equality€before€the€law€and€to€equal€protection€of€the€law€without€anyŠ <#Œ" Šdiscrimination€does€not€make€all€differences€of€treatment€discriminatory.€A€differentiationŠ "$r# Šbased€on€reasonable€and€objective€criteria€does€not€amount€to€prohibited€discriminationŠ %X $ Šwithin€the€meaning€of€article€26.Š ī%>!% ŠĢ14.€It€therefore€remains€for€the€Committee€to€determine€whether€the€differentiation€inŠ ŗ' #' ŠNetherlands€law€at€the€time€in€question€and€as€applied€to€Mr.€Danning€constitutedŠ  (š#( Šdiscrimination€within€the€meaning€of€article€26.€In€the€light€of€the€explanations€given€by€theŠ †)Ö$) ŠState€party€with€respect€to€the€differences€made€by€Netherlands€legislation€between€marriedŠ l*¼%* Šand€unmarried€couples€(para.€8.4€above),€the€Committee€is€persuaded€that€the€differentiationŠ R+¢&+ Šcomplained€of€by€Mr.€Danning€is€based€on€objective€and€reasonable€criteria.€The€CommitteeŠ 8,ˆ', Šobserves,€in€this€connection,€that€the€decision€to€enter€into€a€legal€status€by€marriage,€whichŠ -n(- Šprovides,€in€Netherlands€law,€both€for€certain€benefits€and€for€certain€duties€andŠ ° Šresponsibilities,€lies€entirely€with€the€cohabiting€persons.€By€choosing€not€to€enter€intoŠ –ę Šmarriage,€Mr.€Danning€and€his€cohabitant€have€not,€in€law,€assumed€the€full€extent€of€theŠ |Ģ Šduties€and€responsibilities€incumbent€on€married€couples.€Consequently,€Mr.€Danning€doesŠ b² Šnot€receive€the€full€benefits€provided€for€in€Netherlands€law€for€married€couples.€TheŠ H˜ ŠCommittee€concludes€that€the€differentiation€complained€of€by€Mr.€Danning€does€notŠ . ~ Šconstitute€discrimination€,€in€the€sense€of€article€26€of€the€Covenant.€Š  d ŠĢ15.€The€Human€Rights€Committee,€acting€under€article€5,€paragraph€4,€of€the€OptionalŠ ą 0 ŠProtocol€to€the€International€Covenant€on€Civil€and€Political€Rights,€is€of€the€view€that€theŠ Ę   Šfacts€as€submitted€do€not€disclose€a€violation€of€any€article€of€the€International€Covenant€onŠ ¬ ü  ŠCivil€and€Political€Rights.€Š ’ā  ŠĢĢņņNotesóó€Š D”  ŠĢa/€€€United€Nations,€ņņJuridical€Yearbook€1969€óó(United€Nations€publication,€Sales€No.Š ` ŠE.71.V.4),€p.€140.€