SIGURJÓNSSON v. ICELAND



EUROPEAN COMMISSION OF HUMAN RIGHTS

Application No. 16130/90

Sigurour SIGURJONSSON

against

ICELAND

REPORT OF THE COMMISSION

(adopted on 15 May 1992)

TABLE OF CONTENTS

                                                                 page

I.         INTRODUCTION

           (paras. 1-4) . . . . . . . . . . . . . . . . . . . . . . 1

           A.    The application

                 (paras. 2-4) . . . . . . . . . . . . . . . . . . . 1

           B.    The proceedings

                 (paras. 5-9) . . . . . . . . . . . . . . . . . . . 1

           C.    The present Report

                 (paras. 10-14) . . . . . . . . . . . . . . . . . . 2

II.        ESTABLISHMENT OF THE FACTS

           (paras. 15-42) . . . . . . . . . . . . . . . . . . . . . 3

           A.    The particular circumstances of the case

                 (paras. 15-38) . . . . . . . . . . . . . . . . . . 3

           B.Relevant domestic law

                 (paras. 39-42) . . . . . . . . . . . . . . . . . . 8

III.       OPINION OF THE COMMISSION

           (paras.  43-81). . . . . . . . . . . . . . . . . . . . .34

           A.    Complaint declared admissible

                 (para. 43) . . . . . . . . . . . . . . . . . . . .34

           B.    Point at issue

                 (para. 44) . . . . . . . . . . . . . . . . . . . .34

           C.    Article 11 of the Convention

                 (paras. 45-71) . . . . . . . . . . . . . . . . . .34

           D.    Articles 9 and 10 of the Convention

                 (paras. 72-74) . . . . . . . . . . . . . . . . . .39

           E.    Article 13 of the Convention

                 (paras. 75-78) . . . . . . . . . . . . . . . . . .39

           F.    Recapitulation

                 (paras. 79-81) . . . . . . . . . . . . . . . . . .40

Dissenting opinion by Mr. S. Trechsel . . . . . . . . . . . . . . .41

APPENDIX I       : HISTORY OF THE PROCEEDINGS . . . . . . . . . . .42

APPENDIX II      : DECISION ON THE ADMISSIBILITY. . . . . . . . . .43

I.   INTRODUCTION

1.    The following is an outline of the case as submitted to the

European Commission of Human Rights, and of the procedure before the

Commission.

A.    The Application

2.    The applicant is an Icelandic citizen, born in 1952. He is a taxi

driver and resides in Reykjavík. In the proceedings before the

Commission the applicant is represented by

Mr. Jón Steinar Gunnlaugsson, a lawyer practising in Reykjavík.

3.    The application is directed against Iceland. The respondent

Government are represented by their Agent, Mr. porsteinn Geirsson of

the Ministry of Justice and Ecclesiastical Affairs.

4.    The case concerns the applicant's obligation to be a member of

a trade union in order to obtain or keep a licence to operate a

taxicab. The applicant considers that this obligation violates his

right to freedom of association and he invokes Article 11 of the

Convention or, in the alternative, Articles 9, 10 and 13 of the

Convention.

B.    The Proceedings

5.    The application was introduced on 22 December 1989 and registered

on 2 February 1990. On 2 July 1990 the Commission decided in accordance

with Rule 48 para. 2 (b) of its Rules of Procedure to give notice of

the application to the respondent Government and to invite them to

present, before 12 October 1990, their observations in writing on the

admissibility and merits of the application.

6.    The Government submitted their observations on 11 December 1990

after two extensions of the time-limit. The applicant's written

observations in reply were submitted on 28 January 1991.

7.    On 10 July 1991 the Commission decided to declare the application

admissible and the parties were then invited to submit any additional

observations on the merits which they wished to make. No further

observations on the merits were received from the parties.

8.    Legal aid under the Addendum to the Commission's Rules of

Procedure was granted to the applicant on 21 February 1992.

9.    After declaring the case admissible the Commission, acting in

accordance with Article 28 para. 1 (b) of the Convention, placed itself

at the disposal of the parties with a view to securing a friendly

settlement of the case. Active consultations with the parties took

place between 15 July 1991 and 20 January 1992. In the light of the

parties' reaction, the Commission now finds that there is no basis upon

which such a settlement can be effected.

C.    The Present Report

10.   The present Report has been drawn up by the Commission  in

pursuance of Article 31 of the Convention and after deliberations and

votes, the following members being present:

           MM.   C. A. NØRGAARD, President

                 S. TRECHSEL

                 F. ERMACORA

                 E. BUSUTTIL

                 A. S. GÖZÜBÜYÜK

                 A. WEITZEL

                 J.-C. SOYER

                 H. G. SCHERMERS

                 H. DANELIUS

           Mrs.  G. H. THUNE

           Sir   Basil HALL

           MM.   F. MARTINEZ RUIZ

                 C. L. ROZAKIS

           Mrs.  J. LIDDY

           MM.   L. LOUCAIDES

                 J.-C. GEUS

                 M. P. PELLONPÄÄ

                 B. MARXER

11.   The text of this Report was adopted on 15 May 1992 and is now

transmitted to the Committee of Ministers of the Council of Europe, in

accordance with Article 31 para. 2 of the Convention.

12.   The purpose of the Report, pursuant to Article 31 of the

Convention, is:

i)    to establish the facts, and

ii)   to state an opinion as to whether the facts found disclose a

      breach by the State concerned of its obligations under the

      Convention.

13.   A schedule setting out the history of the proceedings before the

Commission is attached hereto as Appendix I and the Commission's

decision on the admissibility of the application as Appendix II.

14.   The full text of the parties' submissions, together with the

documents lodged as exhibits, are held in the archives of the

Commission.

II.   ESTABLISHMENT OF THE FACTS

A.    The Particular Circumstances of the Case

15.   On 26 September 1984 the applicant applied for a licence to

operate a taxicab. The application was written on a printed form for

the purpose and was, according to its printed text, addressed to the

Frami Automobile Drivers' Association (hereafter called Frami). It

stated inter alia that the applicant had until September 1984 operated,

on behalf of another person, a taxicab accommodating up to eight

passengers for more than seven years and furthermore contained the

following declaration:

      (translation)

      "If an operating licence is granted to me I undertake the

      obligation of operating my automobile as full-time

      occupation. I also undertake the obligation of observing

      the provisions of the said regulation in full detail, as

      effective at any particular time, and I am aware that in

      case I violate the regulation my professional licence may

      be suspended or permanently revoked. I am also aware that

      when becoming a member of the Frami Automobile Drivers'

      Association I am obliged to pay to the association the

      charges stipulated by its articles."

16.   The applicant's application was considered on the basis of Act

No. 36/1970 on Motor Vehicles for Public Hire (lög Nr. 36/1970 um

leigubifreidar) then in force, and Regulation No. 320/1983 issued by

the Minister of Communications in accordance with Section 10 of the

Act. This regulation provided for the implementation of the Act in

further detail.

17.    Section 6 of the Regulation provided that operating licences

should be issued by three persons called "licence allotters".  One of

them was appointed by the directors of Frami, one by employees who did

not own the taxicabs they operated, and the chairman by the Minister

of Communications. Furthermore, Section 6 provided that the operating

licences should be numbered and limited to the licence holders

personally.  The licences should be deposited with Frami.  Section 7

of the Regulation obliged the licence allotters to supervise that the

laws and regulations relating to motor vehicles for public hire were

observed, and provided that, in cases of a violation by a licence

holder, his licence could be suspended or, in cases of serious or

repeated violations, permanently revoked.  A new Regulation

(No. 293/1985) subsequently entered into force.  It did not amend the

above provisions except for the fact that the "licence allotters" were

now called the Committee for Taxicab Supervision (hereafter called the

Committee).

18.   The decisions of the Committee suspending or revoking a licence

could be appealed to the Minister of Communications.

19.   As regards a licence holder's affiliation with Frami, Section 8

of the Regulation stated:

      (translation)

      "A driver may not be granted an operating licence unless he

      undertakes the obligation of operating his own taxicab as

      full-time occupation and applies for membership of the

      Frami Automobile Drivers' Association."

20.   On the basis of the above Act and Regulation the applicant was

granted an operating licence by the then "licence allotters" (now the

Committee). It was issued on 24 October 1984 as licence no. 1210 and

contained inter alia the following:

      (translation)

      "This operating licence is issued in conformity with the

      regulation in respect of limitation of taxicabs in Reykjavík and

      the allocation of operating licences, and permits the licence

      holder to operate a single taxicab accommodating up to eight

      passengers, for service in Reykjavík from a taxi station approved

      by the town council. If the licence holder violates the said

      regulation, as effective at any particular time, the licence

      allotter may revoke his operating licence temporarily, or

      permanently in case of repeated violations."

21.   On the same day the applicant signed a declaration where he,

inter alia, undertook to observe the provisions of the Regulation in

full, and declared that he was aware that a violation of the Regulation

could lead to a suspension or permanent revocation of his operating

licence.

22.   Having received his operating licence, the applicant paid his

membership fees to Frami.  This continued until August 1985 when he

ceased paying his membership fees. In reply to Frami's notification of

5 February 1986 concerning the planned suspension of station services

by reason of default on membership fees the applicant informed the

association's directors by letter of 14 February 1986 as follows:

      (translation)

      "You know my stand with regard to the Frami interest

      association and that it is not my desire to be a member of

      such an association as Frami is. And I refuse completely to

      put up with such oppression any longer as to be forced to

      pay membership dues to you and to remain within the

      association. The reason why I accepted an 'operating

      licence' without first securing my legal position with

      regard to membership was that I felt at the moment that I

      was not financially capable of initiating the necessary

      measures; as you know such action would have meant that I

      would not have obtained an 'operating licence' until

      judgment had been rendered, and trying one's best to avoid

      time-consuming litigation is only natural. The reason why

      I paid membership dues to Frami to August 1985 is the same.

      ..."

23.   On 30 June 1986 the Committee informed the applicant that it had

approved a request from Frami to revoke his licence as from July 1986.

The reasons for this were that he had not paid membership fees and that

he had "encouraged and/or tolerated, in his capacity as director of

Steindór's Taxi Station, that persons were transported for charge in

the delivery vans of Sendibílar Ltd.", a company which he owned in part

and in which he was chairman of its board of directors.

24.   On 1 July 1986 the applicant complained to the Ministry of

Communications of the revocation of his licence.  He expressed the

opinion that there could be no justification for compelling him to be

a member of Frami, and declared that he would refer the question of the

revocation of his licence to the courts.

25.   The Ministry of Communications answered the applicant by letter

of 17 July 1986, stating inter alia:

      (translation)

      "The Ministry hereby informs you that, following an

      examination of the matter and with reference to the reasons

      given by the Supervision Committee and to Sections 7 and 12

      of Regulation No. 293/1985, the Committee's decision of

      30 June, last, revoking your licence permitting you the

      operation of taxicabs for the transport of persons, is

      confirmed."

26.   The Ministry of Communications sent a copy of its letter to the

Chief of Police of Reykjavík.

27.   The applicant refused, however, to accept this.  On 28 July 1986

he sent a letter to the Chief of Police of Reykjavík in which he

explained that he regarded the revocation of his operating licence as

unlawful. He stated his intention of bringing a lawsuit for a

declaratory judgment confirming this view following the courts' summer

recess.  His main arguments were set out in the letter and the police

was requested not to interfere with his occupation as taxicab operator.

The Chief of Police took no account of this request.  On 1 August 1986

the police stopped the applicant while driving, and removed the plates

from his vehicle which identified it as a vehicle for public hire.

28.   On 18 September 1986 the applicant instituted proceedings against

the Committee and the Minister of Communications in the Civil Court of

Reykjavík.  The applicant maintained that the revocation of his taxi

licence should be declared null and void.

29.   The applicant's claim in court was based, inter alia, on the

argument that, with reference to Sections 69 and 73 of the Icelandic

Constitution, the view could not be sustained that a person could be

compelled to be a member of an association.  If people were free to

form associations for any lawful purpose in accordance with their

desires, opinions or interests, they would have to be granted the right

to refuse membership of associations.  If not, people could be forced

to work against their own desires, opinions or interests.  Least of all

would it be possible to make a person's right to pursue an occupation

conditional on the membership of an association of which he did not

desire to be a member.

30.   The applicant referred to his political opinions maintaining that

access to occupation should not be limited in the way done by the

association.  Secondly, he was opposed to such restraints on account

of his own interests, considering that he would be better able to

pursue his occupation in a free market system.

31.   The applicant furthermore maintained that if the above arguments

were rejected, a duty to be a member of an association would at least

have to be based on statute law enacted by Parliament.  Provisions

contained in a Regulation issued by a Minister of the Government would

not suffice to legally establish such duty.  Finally, the applicant

argued that failure to pay membership fees to Frami could not justify

a revocation of his operating licence.

32.   Judgment was pronounced in the Civil Court of Reykjavík on

17 July 1987, rejecting the applicant's claims.  He appealed against

the judgment to the Supreme Court of Iceland maintaining his above

views. Judgment was pronounced by seven judges on 15 December 1988.

33.   The Supreme Court first examined the applicant's complaints under

Section 73 of the Constitution. It rejected, unanimously, the

applicant's argument that he could not, on account of this provision,

be obliged to remain a member of Frami. The Court stated in this

respect as follows:

      (translation)

      "This provision of the Constitution is unchanged in

      substance from Section 55 of the Constitution relating to

      Matters Particular to Iceland, of 5 January 1874, which in

      turn was adopted from Section 92 of the Danish Constitution

      of 5 June 1849. When interpreting this provision its

      history must be kept in view, and its purpose at the time

      when it entered into force, which was to secure the right

      of the subjects to form associations without permits being

      obtained from the authorities in advance. The provision was

      only intended to protect the formation of associations as

      such, but not a right of remaining outside associations.

      The appellant has not demonstrated that Section 73 of the

      Constitution conflicts with the provisions of the

      international instruments to which he refers, which are

      described in the judgment appealed from; neither would

      this, by itself, affect the provisions of the Constitution

      as they stand. The appellant's view that this

      constitutional provision should now be construed as

      providing for a person's right to refuse to become or

      remain a member of an association cannot be sustained.

      Neither can the inference be drawn from this constitutional

      provision that a professional licence cannot lawfully be

      made conditional upon the membership of an association."

34.   A majority of four judges, however, reversed the judgment of the

lower instance finding that the matters referred to should be regulated

by law and not by a Regulation issued by the Minister of

Communications. In this respect the Supreme Court stated, inter alia:

      (translation)

      "... The (Act No. 36/1970 on Motor Vehicles for Public Hire)

      does not provide for an obligation on the part of the licence

      holder to be a member of a trade union, nor that only members of

      automobile drivers' trade unions may be granted an operating

      licence. ...

      Thus, a provision in a Regulation to the effect that membership

      of a trade union was a prerequisite for being granted an

      operating licence, was unauthorised by law. Accordingly, a legal

      basis for an obligation imposed on the appellant, against his

      will, to be a member of the Frami Automobile Drivers'

      Association, was lacking. Therefore depriving him of his

      operating licence, as done when he ceased paying membership dues

      and withdrew from the association, was unlawful.

      ...

      Accordingly, the applicant's appeal shall be allowed and the

      decision of the Committee for Taxicab Supervision, notified to

      him on 30 June 1986 and confirmed by the Minister of

      Communications on 17 July 1986, revoking his licence to operate

      a taxicab in Reykjavik, shall be invalidated."

35.   Three judges dissented, confirming as a whole the judgment of the

Civil Court.

36.   Following this judgment the Minister of Communications presented

a new Bill to Parliament concerning vehicles for public hire. This was

passed as Act No. 77/1989 and took effect on 1 July 1989 (see below

under B). This Act expressly enumerates as a condition for being

granted an operating licence that an applicant shall be a member of the

relevant trade union of drivers of motor vehicles transporting persons,

or shall have applied for membership.  The Act furthermore authorises

temporary revocation of operating licences if the holder of such a

licence violates the provisions of laws or regulations relating to

vehicles for public hire, and permanent revocation in cases of serious

or repeated violations.  A new Regulation, No. 308/1989, has been

issued on the basis of the new Act (see below under B).

37.   Following the entry into force of Act No. 77/1989 and Regulation

No. 308/1989 the applicant sent the following letter of 4 July 1989 to

Frami and the Minister of Communications:

      (translation)

      "With reference to the new legislation relating to vehicles

      for public hire which took effect on 1 July, last, and the

      concomitant Regulation on taxicab operation, I consider

      myself obliged to be a member of the Frami Automobile

      Drivers' Association, and therefore I accept that

      membership fees be collected monthly with my station

      charges at BSR.

      I wish to state clearly that I am not a member of the Frami

      Automobile Drivers' Association of my own free will, and

      the fact remains unaltered that my interests are better

      served outside the association than within it, since its

      statute contains provisions which run counter to my

      political opinions, and the association uses the membership

      fees to work against my interests.  I am anything but

      content with the legislation referred to, in particular due

      to the fact that the conclusion of the judgment of the

      Supreme Court pronounced in my case against the Ministry of

      Communications on 15 December 1988 states that Section 73

      of the Constitution does not prevent the legislator from

      obliging motor vehicle operators by legislation to remain

      members of the same association.  In my opinion the

      legislation in question is incompatible with the Human

      Rights Convention of the Council of Europe to which Iceland

      is a party.

      As I do not consider it necessary in a democratic society

      to impose the obligation on all taxi drivers that they be

      members of the same interest group, I shall lodge a

      complaint relating to the legislation in question with the

      Human Rights Commission and the European Court of Human

      Rights."

38.   The applicant did not challenge the new legislation in the

domestic courts.

B.    Relevant Domestic Law

39.   Sections 69 and 73 of the Icelandic Constitution reads as

follows:

      "Engin bönd má leggja á atvinnufrelsi manna, nema almenningsheill

      krefji, enda parf lagabod til."

      "Rétt eiga menn á ad stofna félög í sérhverjum löglegum tilgangi,

      án pess ad sækja purfi um leyfi til pess. Ekkert félag má leysa

      upp med stjórnarrádstöfun. pó má banna félag um sinn, en pá

      verdur pegar ad höfda mál gegn félaginu, til pess ad pad verdi

      leyst upp."

      (translation)

      "No restriction may be imposed upon individual freedom of

      employment, unless legislated for as being required by the common

      good."

      "Societies may be formed for any lawful purpose, without previous

      authorisation. No society may be dissolved by act of Government,

      but it may be temporarily suspended, in which case an action for

      dissolution must immediately be brought."

40.   The Act No. 77/1989 on Motor Vehicles for Public Hire now in

force reads as follows:

                               "I. KAFLI

                             Leiguakstur.

                                 1.gr.

      Lög pessi taka fólksbifreida, vörubifreida og sendibifreida sem

      notadar eru til leiguaksturs. Fólksbifreidar, sem taka fleiri en

      átta farpega, falla pó ekki undir lög pessi.

      Leiguakstur fólksbifreida telst pad pegar fólksbifreid er seld

      á leigu ásamt ökumanni fyrir tiltekid gjald til flutnings á

      farpegum og farangri peirra.

      Leiguakstur vörubifreida og sendibifreida telst pad pegar slík

      bifreid er seld á leigu ásamt ökumanni til flutnings á vörum

      fyrir tiltekid gjald par sem ökumadur eda eigandi bifreidarinn-

      ar er hvorki eigandi, seljandi né kaupandi vörunnar sem flutt er.

      Heimilt er med reglugerd ad kveda nánar á um mörkin milli

      atvinnusvids fólksbifreida, vörubifreida og sendibifreida sem

      notadar eru til leiguaksturs. Rísi ágreiningur um pessi mörk sker

      samgönguráduneytid úr.

      Leigubifreidar skulu audkenndar.

                               II. KAFLI

                           Bifreidastödvar.

                                2. gr.

      Bæjarstjórn er heimilt, ad fengnum tillögum hlutadeigandi

      stéttarfélags bifreidastjóra, ad ákveda ad allar leigubifreidar

      í kaupstadnum í hverjum flokki fyrir sig, p.e. fólksbifreidar,

      vörubifreidar og sendibifreidar, skuli hafa afgreidslu á

      bifreidastöd sem fengid hefur vidurkenningu bæjarstjórnar.

      Á félagssvædum, par sem vidurkenndar bifreidastödvar eru

      starfandi, er öllum, sem aka utan pessara stödva, bannad ad taka

      ad sér eda stunda leiguakstur á vidkomandi svidi.

                                 3.gr.

      Bifreidastödvar fyrir leigubifreidar skulu, í samrádi vid

      stéttarfélög leigubifreidastjóra, skipuleggja starfsemi sína med

      peim hætti ad almenningi verdi veitt gód og örugg pjónusta. Hver

      bifreidastöd skal fylgjast med pví ad ökumenn, sem par hafa

      afgreidslu, fari eftir fyrirmælum laga og reglugerda um

      leigubifreidar.

                              III. KAFLI

                              Takmörkun.

                                4. gr.

      Samgönguráduneytinu er heimilt eftir beidni hlutadeigandi

      stéttarfélags bifreidastjóra, hvort heldur um er ad ræda félag

      fólksbifreidastjóra, vörubifreidastjóra eda sendibifreidastjóra,

      ad takmarka fjölda leigubifreida á félagssvædinu, enda komi til

      medmæli peirra bæjarstjórna og héradsnefnda er félagssvædid

      fellur undir. Verdi bæjarstjórnir og héradsnefndir, sem

      félagssvædi stéttarfélags bifreidastjóra fellur undir, eigi

      sammála um hvort mæla skuli med takmörkun eda ekki eda pær greini

      á um vid hvada bifreidafjölda takmörkun skuli mida skal

      samgönguráduneytid skera úr.

      par sem takmörkun er heimilud skal hún ákvedin af ráduneytinu med

      reglugerd. Takmörkun á fjölda vörubifreida og sendibifreida, sem

      midast vid ákvedna hámarkstölu, framkvæma félögin sjálf.

      Takmörkun á fjölda fólksbifreida, sem midast vid ákvedna

      hámarkstölu eda vidmidun vid íbúafjölda, ber ad framkvæma med

      útgáfu atvinnuleyfa sem umsjónarnefnd fólksbifreida annast.

                                 5.gr.

      Á félagssvædi, par sem takmörkun er í gildi, skulu

      bifreidastjórar í sömu grein vera í sama stéttarfélagi.

      Á peim félagssvædum stéttarfélaga vörubifreidastjóra og

      sendibifreidastjóra, par sem takmörkun er í gildi, er öllum

      utanfélagsmönnum bannad ad taka ad sér eda stunda leiguakstur á

      vörum.

      Á peim félagssvædum stéttarfélaga fólksbifreidastjóra, par sem

      takmörkun er í gildi, er öllum, sem eigi hafa atvinnuleyfi,

      bannad ad taka ad sér eda stunda leiguakstur á fólki.

                                 6.gr.

      pegar heimild til takmörkunar á fjölda leigubifreida er veitt er

      óheimilt ad skerda atvinnuréttindi peirra manna sem á lögmætan

      hátt stunda leigubifreidaakstur og eru fullgildir félagar í

      hlutadeigandi stéttarfélagi pá er takmörkun hefst.

                               IV. KAFLI

                             Atvinnuleyfi.

                                 7.gr.

      Í pví skyni ad takmarka fjölda fólksbifreida til leiguaksturs á

      peim félagssvædum, par sem samgönguráduneytid hefur veitt heimild

      til takmörkunar, skal gefa út sérstök atvinnuleyfi. Grundvöllur

      atvinnuleyfanna er ad sérhver leyfishafi eigi fólksbifreid og

      hafi pad ad adalatvinnu ad aka henni sjálfur. Frá skilyrdum um

      adalatvinnu má víkja á félagssvædum par sem íbúar eru færri en

      5000. Fjöldi atvinnuleyfa á hverju félagssvædi midast vid pann

      fjölda fólksbifreida sem takmörkunarreglugerd heimilar. Engum má

      veita meira en eitt atvinnuleyfi.

      Atvinnuleyfi er bundid vid nafn. Leyfishafa er óheimilt ad selja

      atvinnuleyfi, leigja pad út eda rádstafa pví á annan hátt.

      Atvinnuleyfishafi er hádur ákvædum laga og reglugerda um

      leigubifreidar svo sem pau eru á hverjum tíma.

                                 8.gr.

      peir einir, sem fullnægja eftirtöldum skilyrdum, geta ödlast

      atvinnuleyfi:

      1. hafa fullnægjandi ökuréttindi samkvæmt umferdarlögum,

      2. eru 20-65 ára ad aldri,

      3. hafa eigi gerst sekir um alvarlegt refsilagabrot,

      4. hafa fullnægjandi heilbrigdisvottord,

      5. hafa starfsreynslu vid akstur á fólki,

      6. eru félagsmenn í hlutadeigandi stéttarfélagi

        fólksbifreidastjóra eda hafa sótt um inngöngu í pad.

      pessum skilyrdum verdur atvinnuleyfishafi einnig ad fullnægja

      eftir ad leyfi er fengid, sbr. pó 1. mgr. 9. gr.

      Heimilt er ad halda námskeid fyrir umsækjendur um atvinnuleyfi

      og má pá gera prófárangur ad skilyrdi fyrir pví ad leyfi verdi

      veitt. Heimilt er ad taka sérstaklega tillit til umsókna um

      atvinnuleyfi frá öryrkjum, enda uppfylli peir skilyrdi pessarar

      greinar og ætla megi ad leiguakstur henti peim. Um heimild pessa

      má ákveda nánar í reglugerd.

                                 9.gr.

      Atvinnuleyfi fellur úr gildi vid lok 70 ára aldurs leyfishafa.

      Atvinnuleyfi fellur úr gildi vid andlát leyfishafa. pó má dánarbú

      hans eda eftirlifandi maki nyta leyfid í allt ad prjú ár par á

      eftir.

      Heimilt er ad svipta leyfishafa atvinnuleyfi tímabundid ef hann

      brytur gegn ákvædum laga og reglugerda um leigubifreidar, en

      fyrir fullt og allt ef um alvarleg eda ítrekud brot er ad ræda.

      Veita má leyfishafa tímabundnar undanpágur frá akstri eigin

      bifreidar vegna:

      a. orlofs, veikinda eda annarra forfalla,

      b. vaktaskipta á álagstímum,

      c. vidgerdar eda endurnyjunar á bifreid.

      Stéttarfélag fólksbifreidastjóra annast pessar undanpáguveitingar

      eftir nánari fyrirmælum í reglugerd.

      Um atvinnuleyfi, úthlutun peirra, nytingu og brottfall skal setja

      nánari ákvædi í reglugerd.

                               V. KAFLI

                     Umsjónarnefnd fólksbifreida.

                                10.gr.

      Á öllum félagssvædum, par sem takmörkun fólksbifreida til

      leiguaksturs hefur verid ákvedin, sbr. 4. gr., skal starfa

      umsjónarnefnd fólksbifreida. Samgöngurádherra skipar

      umsjónarnefndir fólksbifreida. Hver nefnd skal skipud premur

      mönnum. Hlutadeigandi stéttarfélag fólksbifreidastjóra tilnefnir

      einn nefndarmanna, annan tilnefnir sveitarfélag eda sveitarfélög

      sameiginlega á félagssvædi og hinn pridja skipar rádherra án

      tilnefningar og er hann formadur nefndarinnar. Sömu adilar velja

      hver um sig einn varamann.

      Umsjónarnefnd fólksbifreida hefur med höndum umsjón og eftirlit

      med framkvæmd laga og reglugerda um leigubifreidar á

      félagssvædinu, úthlutun atvinnuleyfa og afturköllun peirra, svo

      og eftirlit med pjónustu fólksbifreidastödva. Ad ödru leyti

      verdur starfssvid umsjónarnefnda ákvedid í reglugerd.

      Samgöngurádherra ákvedur laun nefndarmanna. Laun peirra og annan

      kostnad af störfum umsjónarnefnda greidir ríkissjódur.

                               VI. KAFLI

                             Ymis ákvædi.

      ...

                                13.gr.

      Brot gegn lögum pessum og reglugerdum, sem settar verda samkvæmt

      peim, varda sektum nema pyngri refsing liggi vid eftir ödrum

      lögum og skal farid med mál út af brotum á lögum pessum ad hætti

      opinberra mála.

                                14.gr.

      Lög pessi ödlast gildi 1. júlí 1989. Jafnframt falla úr gildi lög

      um leigubifreidar, nr. 36 1970, lög nr. 47/1988 og 66.gr. laga

      nr. 108/1988, um breytingu á peim lögum.

      prátt fyrir ákvædi 1. mgr. 5.gr. laga pessara er rádherra heimilt

      ad veita undanpágu frá ákvædinu par sem önnur tilhögun hefur

      tídkast.

      Prátt fyrir ákvædi 5. lidar 8.gr. skulu launpegar í

      leigubifreidastjórastétt hafa forgang vid veitingu atvinnuleyfa

      næstu prjú ár frá gildistöku pessara laga, sbr. pó 3.mgr. 8.gr.

      Prátt fyrir ákvædi 1.mgr. 9.gr. er heimilt ad veita peim, sem eru

      66 ára eda eldri vid gildistöku pessara laga, heimild til ad

      halda atvinnuleyfi í allt ad fimm ár til vidbótar enda uppfylli

      peir ad ödru leyti skilyrdi pessara laga. Pó verdi ekki heimilt

      ad framlengja atvinnuleyfi lengur en til 75 ára aldurs

      leyfishafa.

      Vid gildistöku laga pessara haldast vidurkenningar á

      bifreidastödvum samkvæmt eldri lögum par til ödruvísi verdur

      ákvedid af réttum adilum.

      Peir, sem hafa atvinnuleyfi eda njóta takmörkunar vid gildistöku

      laga pessara, eru hádir peim breytingum á réttarstödu sem lög

      pessi hafa í för med sér."

      (translation)

                              "CHAPTER I

              Operation of Motor Vehicles for Public Hire

                               Section 1

      This Act applies to automobiles for the transport of persons or

      goods, and to delivery vans when operated for hire. Automobiles

      for more than eight passengers are however excluded from the

      scope of this Act.

      For the purposes of this Act operation of a taxicab shall mean

      letting out an automobile on lease, with its operator, for a

      specified charge, for transport of passengers and their baggage.

      Operation of lorries and delivery vans for hire shall mean

      letting out automobiles of the said types on lease, with their

      operators, for transport of goods for a specified charge, when

      the operator or owner of the automobile is neither owner, seller

      nor buyer of the goods transported.

      The respective spheres of operation of taxicabs and of lorries

      and delivery vans when operated for hire may be further

      circumscribed by regulation. In cases of dispute relating to the

      respective spheres of operation, the Ministry of Communications

      shall decide.

      Motor vehicles for public hire shall be marked as such.

                              CHAPTER II

                             Taxi Stations

                               Section 2

      A town's municipal council may, acting on a proposal from the

      trade union of automobile drivers in question, decide that all

      motor vehicles for public hire within the municipality shall

      have, for each category of vehicles separately, a facility for

      serving customers at a station approved by the municipal council.

      In the area of a trade union, where an approved taxi station is

      functioning, operation of motor vehicles for public hire by

      persons not operating from such stations is prohibited.

                               Section 3

      Taxi stations shall, in consultation with trade unions of

      automobile conductors, organise their operation so as to offer

      good and reliable service to the public. Each station shall

      observe that drivers operating from that station obey the

      provisions of laws and regulations relating to motor vehicles for

      public hire.

                              CHAPTER III

                              Limitation

                               Section 4

      On the request of the relevant trade union of automobile drivers,

      whether a union of taxicab, lorry or delivery van drivers, and

      on recommendation of the town councils and regional boards in the

      area of the union, the Ministry of Communications may limit the

      number of motor vehicles for public hire operating there. In case

      the town councils or regional boards disagree on whether or not

      to recommend such limitation, or to what number of motor vehicles

      the limitation should apply, the Ministry of Communications shall

      decide.

      Where a limitation is approved the Ministry shall impose it by

      regulation. The unions themselves shall implement the limitation

      of the number of lorries and delivery vans. A limitation of the

      number of passenger vehicles, either to a fixed maximum or as

      based on the number of inhabitants, shall be implemented by the

      issuing of operating licences by a committee for the supervision

      of taxicab operation.

                               Section 5

      In the area of a trade union to which a limitation applies,

      vehicle operators operating vehicles of the same category shall

      be members of the same trade union.

      In an area of a trade union of lorry or delivery van operators

      to which a limitation applies, lorry or delivery van operation

      for hire is prohibited for non-members.

      In an area of a trade union of taxicab operators to which a

      limitation applies, taxicab operation is prohibited for persons

      not possessing an operating licence.

                               Section 6

      When a limitation of the number of motor vehicles for hire is

      authorised the rights of persons to pursue their occupation, who

      are lawfully operating motor vehicles for hire as valid members

      of the relevant trade union at the time at which the limitation

      is imposed, shall not be infringed.

                              CHAPTER IV

                          Operating Licences

                               Section 7

      In order to limit the number of taxicabs in areas where the

      Ministry of Communications has authorised such limitation,

      operating licences shall be issued. They shall be issued on the

      premise that each licence holder owns a passenger automobile and

      operates it himself as his chief occupation. The requirement of

      chief occupation may be waived in union areas where the number

      of inhabitants does not reach 5000. The number of operating

      licences in each union area shall depend on the number of

      taxicabs permitted by the limitation regulation. No person may

      be granted more than one operating licence.

      An operating licence shall be issued to the licence holder's

      name. A licence holder may not sell his licence, lease it, or

      otherwise dispose of it. The holder of an operating licence shall

      be subject to the provisions of laws and regulations in force at

      any particular time.

                               Section 8

      Operating licences shall only be granted to persons who:

      1.   Possess requisite qualifications according to the Traffic

           Act;

      2.   Are 20 - 65 years of age;

      3.   Have not been found guilty of serious violation of penal

           law;

      4.   Possess a medical certificate evidencing sufficient health;

      5.   Have experience in transporting persons by automobile;

      6.   Are members of the relevant trade union or have applied for

           membership thereof.

      Subject to Section 9, subsection 1, the above conditions shall

      also be fulfilled by a licence holder after an operating licence

      has been granted.

      A training course for persons applying for operating licences may

      be held, and the issue of a licence may be made conditional upon

      examination performance. Applications from disabled persons may

      be given precedence, provided they fulfil the conditions set by

      this Section and operation of motor vehicles for public hire is

      deemed to suit them. A regulation may provide for further details

      in this respect.

                               Section 9

      An operating licence shall terminate at the end of the licence

      holder's 70th year of age.

      An operating licence shall terminate when the licence holder

      dies. However, his estate or his surviving spouse may make use

      of the licence for the next three years following his death.

      An operating licence may be suspended if the licence holder

      violates the provisions of laws or regulations relating to motor

      vehicles for public hire, or permanently revoked in cases of

      serious or repeated violation.

      The requirement that a licence holder personally operate his own

      automobile may be temporarily waived by reason of the following:

      a.  vacation, or illness or other inability;

      b.  shift changes during periods of high demand;

      c.  vehicle repair or renewal.

      The relevant trade union of taxicab operators shall grant such

      exemptions as further provided by regulation.

      Further details concerning issue, use and termination of

      operating licences shall be prescribed by regulation.

                               CHAPTER V

                   Committee for Taxicab Supervision

                              Section 10

      In each area for which a decision has been made to limit the

      number of taxicabs there shall be established a Committee for

      Taxicab Supervision. Committees for taxicab supervision shall be

      appointed by the Minister of Communications. Each committee shall

      be composed of three members. One member shall be nominated by

      the relevant union of taxicab drivers, another member shall be

      nominated by the municipality of the union area, or by the

      municipalities of that area collectively, and the third member

      shall be appointed by the Minister without nomination, also to

      serve as chairman. Each of the same parties shall choose one

      substitute.

      A committee of taxicab supervision shall supervise and control

      the implementation of laws and regulations relating to motor

      vehicles for public hire in the union area, the allocation of

      operating licences and their revocation, and control the services

      rendered by taxi stations. In other respects the functions of

      supervision committees will be determined by regulation.

      The Minister of Communications determines the salaries of

      committee members. Their salaries, as well as other costs arising

      from the functions of supervision committees, shall be paid by

      the State Treasury.

                              CHAPTER VI

                       Miscellaneous Provisions

      ...

                              Section 13

      Whoever violates this Act or regulations issued in accordance

      with it shall be fined, if heavier penalties are not prescribed

      by other Acts, and cases arising from violation of this Act are

      subject to procedure in criminal cases.

                              Section 14

      This Act enters into force on 1 July 1989. At the same time Act

      no. 36/1 in respect of Motor Vehicles for Public Hire, as well

      as Act no. 47/1988 and Section 66 of Act no. 108/1988 amending

      that Act, are repealed.

      Notwithstanding the provision of Section 5, subsection 1, the

      Minister may grant a derogation with respect to areas where a

      different arrangement has been practised.

      Notwithstanding the provision of item 5 of Section 8, persons

      employed as conductors of motor vehicles for public hire shall,

      subject to Section 8, subsection 3, have priority when operating

      licences are issued, for three years after the entry into force

      of this Act.

      Notwithstanding the provision of Section 9, subsection 1, persons

      who are 66 years of age or older when this Act enters into force

      may be permitted to retain their operating licences for five

      years, provided they fulfil the requirements of this Act in other

      respects. However, extension of the validity of an operating

      licence beyond the licence holder's 75th year of age shall not

      be allowed.

      When this Act enters into force approval of taxi stations

      approved in accordance with older Acts shall remain unaffected

      until a different decision is made by the competent parties.

      Persons holding operating licences or benefiting from limitation

      when this Act enters into force are subject to the changes in

      legal status caused by this Act."

41.   Regulation No. 308/1989 now in force concerning taxicabs and the

limitation of their numbers reads as follows:

                               "I. KAFLI

                              Gildissvid

                                 1.gr.

      Reglugerd pessi er sett samkvæmt lögum nr. 77/1989 um

      leigubifreidar og gildir um fólksbifreidar, sem notadar eru til

      leiguaksturs og mega flytja allt ad átta farpega.

                                 2.gr.

      Leiguakstur telst pad pegar fólksbifreid er seld á leigu ásamt

      ökumanni fyrir tiltekid gjald til flutnings á farpegum og

      farangri peirra. Farangur skal flytja í farangursgeymslu

      bifreidar, en pó má setja ferdatöskur inn í bifreidina, ef

      farpegi krefst pess. Eigi er heimilt ad flytja farangur án

      farpega nema í undantekningartilfellum, enda sé um ad ræda

      flutning bréfa, skjala eda annarra sérstakra verdmæta. (This

      Section has subsequently been amended. The amended text appears

      in the translation below).

                               II. KAFLI

                               Audkenni.

                                 3.gr

      Leigubifreid til fólksflutninga skal audkennd med pakljósi

      samkvæmt ákvædum reglugerdar um gerd og búnad bifreida. Ennfremur

      skal fólksbifreid, sem ekur frá bifreidastöd, audkennd med merki

      stödvarinnnar.

                              III. KAFLI

                              Gjaldmælar.

                                 4.gr.

      Gjaldmælar í fólksbifreidum skulu syna rétt ökugjald samkvæmt

      almennum taxta og sértöxtum. Nú er gjaldmælir eigi pannig búinn

      ad hann syni glöggt hina heimiludu sértaxta og skulu

      bifreidastjórar pá nota verdskrá, sem farpegar geta kynnt sér.

      Gjaldmælir skal pannig stadsettur í bifreid, ad farpegar sjái

      glöggt upphæd ökugjalds á gjaldskífu mælisins.

      Samgönguráduneytid ákvedur hvada tegundir gjaldmæla skuli nota.

                                 5.gr.

      Heimilt er ad aka án gjaldmælis:

      1.   Pegar sérstaklega stendur á og lögreglustjóri veitir

           undanpágu.

      2.   Pegar fyrirfram er samid um akstursgjald fyrir tiltekna

           ferd.

      3.   Pegar mælir bilar í ökuferd.

                                6. gr.

      Óheimilt er ad taka gjaldmæli í notkun í bifreid fyrr en

      löggilding á mælinum hefur farid fram.

      Löggildingarmenn, skipadir af samgönguráduneytinu, annast

      löggildingu gjaldmæla og gefa út vottord par ad lútandi. Peir

      hafa med höndum vidgerdir, breytingar og innsiglun gjaldmæla.

      Ennfremur framkvæma peir almenna skodun á gjaldmælum svo oft sem

      purfa pykir ad mati lögreglustjóra, pó eigi sjaldnar en einu

      sinni á ári.

      Samgönguráduneytid ákvedur gjald fyrir störf löggildingarmanna,

      sem bifreidaeigendur greida.

      Endurskoda skal löggildingu gjaldmælis, ef skipt er um drif á

      bifreid eda breyting gerd á hjóla- eda hjólbardastærd hennar.

                                 7.gr.

      Verdi breytingar á ökugjaldi bifreida skal stilla pær breytingar

      inn á gjaldmæla innan fjögurra vikna. Eftir pann tíma er notkun

      óbreyttra gjaldmæla óheimil. Á bidtímanum skal nota verdskrá.

                               IV. KAFLI

                    Takmarkanir á fjölda bifreida.

                                 8.gr.

                      Félagssvædi og hámarkstala.

      Takmarkanir á fjölda fólksbifreida gilda á eftirtöldum svædum;

      1.   Á félagssvædi Bifreidastjórafélagsins Frama, sem er

           Reykjavík, Kópavogur, Hafnarfjördur, Gardabær,

           Seltjarnarnes, Mosfellsbær og Bessastadahreppur.

           Hámarkstala er 570 fólksbifreidar.

      2.   Á félagssvædi Bifreidastjórafélaganna Fylkis og Freys, sem

           er Keflavík, Njardvík, Hafna-, Midnes-, Gerda- og

           Vatnsleysustrandarhreppur. Hámarkstala er 40

           fólksbifreidar.

      3.   Á félagssvædi Bílstjórafélags Akureyrar, sem er Akureyri.

           Hámarkstala er 27 fólksbifreidar.

      4.   Á félagssvædi Bifreidastjórafélagsins Orku, sem er

           Ísafjördur. Hámarkstala er 9 fólksbifreidar.

      5.   Á félagssvædi Bifreidastjórafélagsins Faxa, sem er Selfoss.

           Hámarkstala er 7 fólksbifreidar.

      Takmörkun er framkvæmd med útgáfu atvinnuleyfa svo sem

      hámarkstala segir til um.

      Nú eru fleiri atvinnuleyfi í gildi en hámarkstalan segir til um

      vid gildistöku pessarar reglugerdar og skal pá á næstu árum

      einungis úthluta ödru hverju leyfi, sem úr gildi fellur, uns

      réttri tölu er nád.

                                 9.gr.

                     Umsjónarnefnd fólksbifreida.

      Á hverju félagssvædi stéttarfélags fólksbifreidastjóra, par sem

      takmörkun er heimilud, starfar umsjónarnefnd fólksbifreida. Hver

      nefnd er skipud premur mönnum. Ákvardanir umsjónarnefndar eru

      gildar hafi pær hlotid a.m.k. tvö atkvædi á nefndarfundi.

      Á nefndarfundum skal halda gerdabók par sem ákvardanir og

      sampykktir skulu skilmerkilega færdar til bókar. Allir

      nefndarmenn undirrita fundargerd.

      Umsjónarnefnd gefur samgönguráduneytinu árlega skriflega  skyrslu

      um störf sín. Ráduneytid getur pó hvenær sem er krafist

      greinargerdar frá umsjónarnefnd um tiltekid málefni.

      Umsjónarnefnd setur sér starfsreglur sem taka gildi pegar

      ráduneytid stadfestir pær.

      Umsjónarnefnd er heimilt ad ráda trúnadarlækni.

                                10.gr.

                               Umsóknir.

      Umsjónarnefndir, hver á sínu svædi, gefa út atvinnuleyfi til

      leiguaksturs fólksbifreida og annast úthlutun peirra. Úthlutun

      skal fara fram pegar hennar er pörf, pó eigi sjaldnar en einu

      sinni á hverju almanaksári. Auglyst skal eftir umsækjendum med

      a.m.k. priggja vikna fyrirvara.

      Bifreidastjóri, sem óskar eftir atvinnuleyfi, skal sækja um pad

      á sérstöku eydubladi, sem umsjónarnefnd lætur gera. Umsókninni

      skulu fylgja öll pau gögn og vottord, sem umsjónarnefnd gerir

      kröfu til, par med talid vottord um ad umsækjandi eigi kost á

      afgreidslu á bifreidastöd.

                                11.gr.

                               Námskeid.

      Umsjónarnefnd fólksbifreida er heimilt pegar hún telur pörf á,

      pó eigi fyrr en eftir 1. júlí 1992, ad stofna til námskeids fyrir

      umsækjendur um atvinnuleyfi, sem fullnægja skilyrdum laga um

      leigubifreidar. Umsjónarnefnd skipuleggur slík námsskeid, ákvedur

      kennslutilhögun, námsefni, prófreglur og námskeidsgjald.

      Undanpágu frá námsskeidi má veita peim umsækjendum, er ádur hafa

      stundad leiguakstur sem atvinnuleyfishafar.

                                12.gr.

                           Úthlutunarreglur.

      Atvinnuleyfum skal einungis úthlutad til peirra, sem fullnægja

      skilyrdum 1.-6. tl. 8.gr. laga um leigubifreidar. Á tímabilinu

      frá 1. júlí 1989 til 1. júlí 1992 skulu launpegar í

      leigubifreidastjórastétt hafa forgang til atvinnuleyfa, en pó má

      jafnframt taka sérstakt tillit til umsókna um atvinnuleyfi frá

      peim öryrkjum, sem leiguakstur hentar vel enda hafi peir medmæli

      Öryrkjabandalags Íslands og tryggingayfirlæknis.

      Pegar atvinnuleyfi eru veitt ad undangengnu námskeidi skal

      prófárangur ad jafnadi ráda veitingu atvinnuleyfa til umsækjenda.

      Pegar atvinnuleyfum er úthlutad án undanfarandi námskeids og

      tímabundnar reglur 1. mgr. eiga ekki lengur vid metur

      umsjónarnefnd pad af réttsyni hverjir umsækjenda eru hæfastir til

      ad hljóta atvinnuleyfi og lætur pá ad jafnadi sitja fyrir, sem

      hafa ödlast fjögurra ára starfsreynslu vid akstur á fólki. Pess

      utan er nefndinni heimilt ad taka sérstakt tillit til umsókna frá

      öryrkjum, sbr. 1.mgr.

      Umsjónarnefnd er heimilt ad höfdu samrádi vid hagsmunafélög

      fatladra og vidkomandi stéttarfélag ad úthluta atvinnuleyfum til

      reksturs á sérbúnum bifreidum til flutnings á hreyfihömludum.

      Umsjónarnefnd er heimilt ad setja reglur um notkun edalvagna

      (limousine), sem ætladir eru til sérstakrar pjónustu.

                                13.gr.

                  Varsla og endurútgáfa atvinnuleyfa.

      Atvinnuleyfin skulu tölusett og geymd í vörslu stéttarfélags

      leyfishafa. Leyfishafi fær í hendur stadfest eftirrit af

      atvinnuleyfi sínu.

      Umsjónarnefnd er heimilt ad endurútgefa atvinnuleyfi pau, sem eru

      í gildi vid gildistöku laga um leigubifreidar nr. 77/1989, til

      samræmis vid efni laganna og ákvædi pessarar reglugerdar.

                                14.gr.

                            Eigin bifreid.

      Vid leiguaksturinn ber leyfishafa ad nota bifreid, sem sampykkt

      er af stéttarfélagi hans og hann er skrádur eigandi ad eda hefur

      umrád yfir samkvæmt kaupleigusamningi vid eignarleigufyrirtæki

      samkvæmt lögum um eignarleigustarfsemi.

                                15.gr.

                         Nyting atvinnuleyfis.

      Leyfishafi skal nyta atvinnuleyfi sitt med edlilegum hætti og

      stunda aksturinn sem adalatvinnu. Akstur eigin leigubifreidar

      telst adalatvinna leyfishafa pegar hann ad jafnadi stundar

      aksturinn eigi færri en 30 klst. á viku hverri. Frá pessu má pó

      víkja á félagssvædum med færri en 5000 íbúa á peim tíma árs pegar

      lítil pörf er fyrir leigubifreidapjónustu.

      Bifreidastjóra, sem ödlast atvinnuleyfi, ber ad hefja nytingu

      pess innan sex mánada frá útgáfudegi leyfisins. Ad ödrum kosti

      fellur atvinnuleyfid úr gildi.

      Leyfishafi, sem nytir ekki atvinnuleyfi sitt í sex mánudi eda

      lengur án pess ad lögmætar ástædur séu fyrir hendi, skal sviptur

      pví fyrir fullt og allt, ef hann lætur ekki skipast vid

      áminningu.

      Umsjónarnefnd getur heimilad leyfishafa ad láta atvinnuleyfid

      ónotad í allt ad tvö ár samtals, ef sérstakar ástædur eru fyrir

      hendi.

      Óski forseti Íslands eda rádherra ad ráda leyfishafa sem

      einkabílstjóra á medan peir gegna embætti, er peim leyfishöfum

      heimilt ad leggja atvinnuleyfid inn á medan starfinu stendur.

                                16.gr.

                              Undanpágur.

      Heimilt er ad veita leyfishafa tímabundnar undanpágur frá akstri

      eigin bifreidar vegna:

      a.  veikinda eda annarra forfalla

      b.  orlofs.

      c.  vaktaskipta á álagstímum.

      d.  vidgerdar eda endurnyjunar á bifreid.

      Stéttarfélag fólksbifreidastjóra setur reglur um pessar

      undanpáguveitingar og annast framkvæmd peirra. Undanpágu skal ad

      jafnadi veita, nema sérstakar ástædur mæli henni í gegn.

      Undanpágu má binda skilyrdum. Undanpága vegna veikinda verdur pó

      ekki veitt fyrstu fjóra daga hvers veikindatímabils.

      Stéttarfélagid má ekki veita lengri undanpágu samkvæmt a lid en

      prjá mánudi samtals á hverju almanaksári.

      Óski leyfishafi eftir lengri undanpágu fjallar umsjónarnefnd um

      mál hans og getur hún veitt allt ad tólf mánada undanpágu til

      vidbótar. Umsjónarnefnd er pó heimilt ad veita allt ad tólf

      mánada undanpágu par ad auki vegna alvarlegra og langvarandi

      veikinda leyfishafa.

      Pegar leyfishafi setur annan mann á bifreid sína, sbr. lidi

      a - c, skal ökumadurinn fullnægja skilyrdum laga um

      leigubifreidar til pess ad ödlast atvinnuleyfi.

                                17.gr.

                     Eftirlifandi maki og dánarbú.

      Pegar leyfishafi fellur frá skal umsjónarnefnd ad undangenginni

      umsókn veita dánarbúi hans eda eftirlifandi maka heimild til ad

      nyta atvinnuleyfid í allt ad prjú ár frá dánardægri, pó eigi

      lengur en til pess tíma er leyfishafi hefdi misst pad fyrir

      aldurs sakir, ef hann hefdi lifad. Eftirlifandi sambylismadur eda

      sambyliskona skodast sem eftirlifandi maki hafi sambúdin stadid

      yfir í ad minnsta kosti tvö ár samfleytt samkvæmt pjódskrá.

      Dánarbúi er óheimilt ad nyta atvinnuleyfi eftir ad skiptum á

      búinu er lokid.

      Pegar eftirlifandi maki eda dánarbú setur ökumann á bifreidina

      skal hann fullnægja skilyrdum laga um leigubifreidar til pess ad

      ödlast atvinnuleyfi.

                                18.gr.

                        Svipting atvinnuleyfis.

      Ef leyfishafi fullnægir eigi lengur skilyrdum laga um

      leigubifreidar nr. 77/1989 til pess ad halda atvinnuleyfi sínu

      eda brytur á annan hátt gegn ákvædum laganna eda pessarar

      reglugerdar er umsjónarnefnd rétt ad beita hann vidurlögum.

      Vidurlögin fara eftir edli brotsins og á hvern hátt pau tengjast

      nytingu  atvinnuleyfisins.

      Vidurlögin eru pessi:

      1.  Áminning.

      2.  Tímabundin svipting atvinnuleyfis.

      3.  Endanleg svipting atvinnuleyfis.

      Prátt fyrir endanlega sviptingu atvinnuleyfis getur

      bifreidastjórinn sótt um atvinnuleyfi ad nyju ad fimm árum

      lidnum, enda hafi hann pa bætt rád sitt og tekid út refsingu

      fyrir brotid, ef svo ber undir.

      Nú er bifreidastjóri sviptur atvinnuleyfi sínu samkvæmt

      framangreindu og er pá fólksbifreidastödvum á félagssvædinu

      óheimilt ad veita honum afgreidslu á medan sviptingin varir.

                                19.gr.

                       Brottfall atvinnuleyfis.

      Frá og med 1. júlí 1994 fellur atvinnuleyfi úr gildi vid lok 70

      ára aldurs leyfishafa, p.e. daginn ádur en hann nær 71 árs aldri.

      Á tímabilinu frá gildistöku laga um leigubifreidar hinn 1. júlí

      1989 til 30. júní 1994 gilda eftirfarandi reglur um brottfall

      atvinnuleyfis sökum aldurs:

      1.   Sá, sem er 66 ára ad aldri vid gildistöku laganna, missir

           leyfid pegar hann verdur 71 árs.

      2.   Sá, sem er 67 ára ad aldri vid gildistöku laganna, missir

           leyfid pegar hann verdur 72 ára.

      3.   Sá, sem er 68 ára ad aldri vid gildistöku laganna, missir

           leyfid pegar hann verdur 73 ára.

      4.   Sá, sem er 69 ára ad aldri vid gildistöku laganna, missir

           leyfid pegar hann verdur 74 ára.

      5.   Peir, sem eru 70-74 ára ad aldri vid gildistöku laganna,

           missa leyfin pegar peir verda 75 ára.

      6.   Peir, sem eru 75 ára eda eldri vid gildistöku laganna og

           hafa haldid atvinnuleyfum sínum, missa leyfin pegar í stad.

                                20.gr.

                           Bifreidastödvar.

      Leyfishafa er heimilt ad hafa bifreid sína í afgreidslu hjá hvada

      vidurkenndri fólksbifreidastöd sem er á félagssvædinu, par sem

      hann á kost á afgreidslu.

      Vilji leyfishafi flytja sig á adra stöd skal hann segja upp

      stödvarleyfi sínu med eins mánadar fyrirvara.

      Bifreidastöd er óheimilt ad taka bifreid í afgreidslu fyrr en

      tilkynning um útgáfu atvinnuleyfis eda flutning á milli stödva

      hefur borist frá vidkomandi stéttarfélagi.

      Bifreidastöd skal fylgjast med pví ad ökumenn á stödinni nyti

      atvinnuleyfi sín og tilkynna stéttarfélaginu, ef út af ber í peim

      efnum. Ennfremur tilkynnir bifreidastöd pad til stéttarfélagsins,

      ef leyfishafi á stödinni brytur stödvarreglur og sætir vidurlögum

      af peim sökum.

      Umsjónarnefnd er heimilt ad setja reglur um pjónustu

      bifreidastödva.

                               V. KAFLI

                             Ymis ákvædi.

                                21. gr.

      Undanpágur frá almennum reglum um akstur eigin bifreidar og

      nytingu atvinnuleyfis, sem veittar hafa verid samkvæmt eldri

      reglugerdum og standa yfir pegar reglugerd pessi ödlast gildi,

      getur umsjónarnefnd framlengt fyrst um sinn.

                                22.gr.

      Brot gegn reglugerd pessari varda sektum samkvæmt 13.gr. laga nr.

      77/1989 um leigubifreidar.

                                23.gr.

      Reglugerd pessi, sem ödlast gildi 1. júlí 1989, stadfestist hér

      med til eftirbreytni öllum peim sem hlut eiga ad máli. Jafnframt

      fellur úr gildi reglugerd um notkun gjaldmæla í leigubifreidum

      nr. 136/1986 og auglysing um sama efni nr. 237/1988. Auk pess

      falla eftirtaldar reglugerdir úr gildi, sem gilt hafa um

      takmörkun leigubifreida til fólksflutninga á einstökum

      félagssvædum; nr. 293/1985 og 206/1987 (Reykjavík); nr. 89/1962

      and 374/1978 (Akranes); nr. 39/1966 og 3/1984 (Ísafjördur); nr.

      207/1978 (Saudárkrókur); nr. 332/1988 (Akureyri); nr. 145/1963

      (Seydisfjördur); nr. 279/1972 (Neskaupstadur); nr. 81/1967 og

      19/1984 (Selfoss); nr. 23/1986 og 487/1986 (Hveragerdi); nr.

      810/1983 (Vestmannaeyjar); nr. 423/1974 og 2/1984 (Grindavík),

      nr. 356/1985 og 200/1987 (Keflavík)."

      (translation)

                              "CHAPTER I

                              Application

                               Section 1

      This Regulation is issued in accordance with Act no. 77/1989 on

      Motor Vehicles for Public Hire, and applies to taxicabs

      transporting up to eight passengers.

                               Section 2

      For the purposes of this Regulation operation of a taxicab shall

      mean letting out an automobile on lease, with its operator, for

      a specified charge, for transport of passengers and their

      baggage. Baggage shall be transported in the baggage compartment

      of the automobile; however, suitcases may be transported inside

      the main compartment, if a passenger so requests. Transport of

      baggage without passengers is not allowed, except that letters,

      documents, flowers or emergency supplies for hospitals may be

      transported in exceptional cases. The respective functions of

      delivery van and taxicab operators shall be determined in further

      detail by mutual agreement between their respective associations,

      to be ratified by the Ministry of Communications.

                              CHAPTER II

                               Markings

                               Section 3

      Taxicabs shall be distinguished by a top light in accordance with

      the Regulation in respect of Design and Equipment of Automobiles.

      In addition, a taxicab operating from a taxi station shall be

      marked with the emblem of the station.

                              CHAPTER III

                              Taximeters

                               Section 4

      Taximeters for use in taxicabs shall display the correct charge

      according to the general rate and special rates. If a taximeter

      is not equipped to display clearly the special rates authorised

      the operator shall use a rate sheet, available for inspection by

      passengers.

      A taxicab's taximeter shall be positioned so as to show the

      passengers clearly the amount of charge on its display.

      The Ministry of Communications shall decide what types of

      taximeter shall be used.

                               Section 5

      A taxicab may be operated without a taximeter:

      1.  In special cases, in accordance with a derogation granted

  by the commissioner of police;

      2.  When an agreement on the charge for a particular trip has

  been reached in advance;

      3.  When a taximeter has malfunctioned while on the road.

                               Section 6

      Taximeters may only be taken into use after being certified.

      Certification, and the issue of certificates, shall be performed

      by inspectors appointed by the Ministry of Communications. They

      shall perform repairs, modifications and sealing of taximeters.

      They shall also perform general inspection of taximeters as often

      as the commissioner of police considers it necessary, but at

      least once a year.

      The Ministry of Communications shall determine a charge for the

      functions performed by the inspectors, to be paid by taxicab

      owners.

      Taximeters shall be certified again if the drive of the taxicab

      is replaced, or changes made to wheel or tire sizes.

                               Section 7

      If charges for taxicab services are changed, changes shall be

      made to taximeter settings within four weeks. After that period,

      the use of unchanged taximeters is prohibited. In the meantime

      a rate sheet shall be used.

                              CHAPTER IV

                 Limitation of the Number of Taxicabs

                               Section 8

                 Association Areas and Maximum Numbers

      Limitation to the numbers of taxicabs shall apply in the

      following areas:

      1.   In the area of the Frami Automobile Drivers' Association,

           which is Reykjavík, Kópavogur, Hafnarfjördur, Gardabær,

           Seltjarnarnes, Mosfellsbær and Bessastadahreppur. The

           maximum number shall be 570 taxicabs.

      2.   In the area of the Fylkir and Freyr Automobile Drivers'

           Association, which is Keflavík, Njardvík, Hafnahreppur,

           Midneshreppur, Gerdahreppur and Vatnsleysustrandarhreppur.

           The maximum number shall be 40 taxicabs.

      3.   In the area of the Akureyri Automobile Drivers'

           Association, which is Akureyri. The maximum number shall be

           27 taxicabs.

      4.   In the area of the Orka Automobile Drivers' Association,

           which is Ísafjördur. The maximum number shall be 9

           taxicabs.

      5.   In the area of the Faxi Automobile Drivers' Association,

           which is Selfoss. The maximum number shall be 7 taxicabs.

      The limitation, up to the maximum number, shall be effected by

      the issuing of operating licences.

      In case the number of operating licences in effect at the time

      this regulation enters into force is higher than the maximum

      number, only every second operating licence which becomes void

      shall be reallocated during the following years, until the

      correct number is reached.

                               Section 9

                  Committees for Taxicab Supervision

      In each area of a taxicab drivers' union where a limitation is

      authorised a committee for taxicab supervision shall be

      established. Each committee shall be composed of three members.

      A supervision committee's decisions are valid if taken by a

      majority of two votes.

      At committee meetings minutes shall be recorded in a book, and

      decisions and resolutions carefully entered. All committee

      members shall sign the minutes.

      Each committee for taxicab supervision shall submit a report on

      its activities to the Ministry of Communications annually. The

      Ministry may, however, request reports on particular matters from

      a supervision committee at any time.

      Each supervision committee shall adopt its own rules of

      procedure, which become effective when ratified by the Ministry.

                              Section 10

                             Applications

      Supervision committees, each within its area, shall issue and

      allocate licences for the operation of taxicabs. Allocation shall

      take place when necessary, but at least once each calendar year.

      Applications shall be invited by announcement at least four weeks

      in advance.

      An automobile driver who requests an operating licence shall

      apply for it on a form which the supervision committee shall have

      prepared. An application shall be accompanied by all documents

      and certificates requested by the supervision committee,

      including a certificate to the effect that the services of a taxi

      station are available to the applicant.

                              Section 11

                           Training Courses

      A committee of taxicab supervision may, when deemed necessary by

      the committee, however not until after 1 July 1992, initiate

      training courses for applicants for operating licences, who

      fulfil the requirements of the Act on Motor Vehicles for Public

      Hire. The committee shall organise such courses and decide how

      instruction shall take place, what material shall be studied, the

      examination procedures to apply, and the charge to be paid. The

      training course requirement may be waived with respect to those

      who have previously operated taxicabs as holders of operating

      licences.

                              Section 12

                         Allocation Procedures

      Operating licences shall only be allocated to persons who fulfil

      the requirements of items 1-6 of Section 8 of the Act on Motor

      Vehicles for Public Hire. During the period 1 July 1989 to

      1 July 1992 employees working as taxicab drivers shall have

      priority as regards the allocation of operating licences;

      however, simultaneously special regard may be had to applications

      from disabled persons  for whom taxicab operation is suitable,

      provided they possess the recommendations of the Iceland

      Federation of the Handicapped and the Chief Medical Officer of

      the State Social Security Institution.

      When operating licences are granted following a training course,

      allocation of licences to applicants shall generally take place

      in accordance with examination performance.

      When operating licences are allocated without a training course

      having been offered and the temporary provision of subsection 1

      no longer applies the supervision committee shall evaluate in

      fairness which of the applicants are best suited to receive an

      operating licence, generally giving precedence to those who have

      acquired four years of experience in transporting passengers. The

      committee may at the same time take special account of

      applications from disabled persons, cf. subsection 1.

      Following consultation with associations for the protection of

      the interests of disabled persons and the trade union in question

      a supervision committee may allocate licences for operation of

      specially equipped automobiles for the transport of persons of

      impaired mobility.

      A supervision committee may issue rules relating to the use of

      limousines intended for special duties.

                              Section 13

               Keeping and Reissue of Operating Licences

      Operating licences shall be numbered and deposited with the

      licence holder's trade union. The licence holder shall receive

      a certified copy of his licence.

      A supervision committee may reissue operating licences effective

      when Act no. 77/1989 on Motor Vehicles for Public Hire enters

      into force, so that they conform to the provisions of the Act and

      the provisions of this Regulation.

                              Section 14

                         Ownership of Taxicabs

      For taxicab operation a licence holder shall use an automobile

      approved by his trade union and of which he is the registered

      owner, or which he possesses under a lease purchase agreement

      concluded with a leasing company in accordance with the Act in

      respect of Leasing.

                              Section 15

                       Use of Operating Licences

      Licence holders shall use their operating licences in a proper

      manner and operate their taxicabs as chief occupation. The

      operation of a taxicab owned by a licence holder shall be deemed

      chief occupation if he operates his taxicab for an average of at

      least 30 hours each week. This may, however, be diverged from in

      union areas with fewer than 5000 inhabitants during seasons when

      there is little demand for taxicab services.

      An operator to whom an operating licence is granted shall make

      use of his licence within six months from the date of issue.

      Failing this, the licence shall lose its effect.

      A licence holder who does not make use of his licence for six

      months or longer without valid reasons shall be permanently

      deprived of his licence if he does not heed an admonition given

      him.

      In case the President of Iceland or a Minister of the Government

      wishes to engage a licence holder as private chauffeur while in

      office, the licence holder in question may deposit his operating

      licence while the engagement lasts.

                              Section 16

                              Exemptions

      The requirement that a licence holder operate his own taxicab may

      be temporarily waived by reason of:

      a.  sickness or other inability;

      b.  vacation;

      c.  shift changes during periods of high demand;

      d.  repairs or renewal of the taxicab.

      The trade union of taxicab drivers shall issue rules relating to

      such exemptions, and implement them. Exemptions shall generally

      be granted, if there are no special reasons to the contrary.

      Exemptions may be made conditional. Exemptions by reason of

      sickness shall, however, not be granted during the first four

      days of each sickness period. The trade union may not grant

      exemptions according to a. for more than a total of three months

      during each calendar year.

      If a licence holder requests exemption for a longer period the

      supervision committee shall discuss his case, and may grant him

      an exemption for up to twelve months in addition. The committee

      may, however, grant yet another extension for twelve months by

      reason of illness which is serious or of long duration.

      When a licence holder engages another person to operate his

      automobile, as under a. to c. above, that person shall be

      eligible for an operating licence in accordance with the

      requirements made by the Act on Motor Vehicles for Public Hire.

                              Section 17

                      Surviving Spouse and Estate

      When a licence holder dies the supervision committee shall, on

      application, permit his estate or his surviving spouse to make

      use of the operating licence for up to three years as from the

      day of his death, however not longer than until the time when the

      licence would have terminated by reason of the licence holder's

      age, had he lived. A cohabiting man or woman shall be regarded

      as surviving spouse in this respect, if cohabitation had lasted

      at least two years according to the files of the national

      registry.

      An estate may not make use of an operating licence after

      distribution has been completed.

      When a surviving spouse or an estate engages a person to operate

      the taxicab that person shall be eligible for an operating

      licence in accordance with the requirements made by the Act on

      Motor Vehicles for Public Hire.

                              Section 18

                   Deprivation of Operating Licence

      If a licensee no longer fulfils the requirements of Act no.

      77/1989 on Motor Vehicles for Public Hire for retaining his

      operating licence, or if he otherwise violates the provisions of

      that Act or those of this Regulation, the supervision committee

      may apply sanctions. The sanctions shall be dependent on the

      nature of the violation, and the way in which they relate to the

      use of the operating licence.

      Such sanctions shall be:

      1.  Admonition

      2.  Suspension of operating licence

      3.  Deprivation of operating licence.

      Even if a person has been deprived of an operating licence he may

      apply for such licence again after five years have passed,

      provided he has mended his ways and served his sentence, if

      applicable.

      If a taxicab operator is deprived of his operating licence

      according to the above, taxicab stations in the union area

      concerned may not render him station service.

                              Section 19

                   Termination of Operating Licence

      As from 1 July 1984 operating licences shall terminate at the end

      of the licence holder's 70th year of age, i.e. on the day before

      he reaches the age of 71 years.

      During the period from 1 July 1989, when the Act on Motor

      Vehicles for Public Hire enters into force, to 30 June 1994, the

      following rules shall apply to the termination of an operating

      licence by reason of age:

      1.   The licence of a person who is 66 years of age when the Act

           takes effect terminates when he reaches his 71st year.

      2.   The licence of a person who is 67 years of age when the Act

           takes effect terminates when he reaches his 72nd year.

      3.   The licence of a person who is 68 years of age when the Act

           takes effect terminates when he reaches his 73rd year.

      4.   The licence of a person who is 69 years of age when the Act

           takes effect terminates when he reaches his 74th year.

      5.   The licence of a person who is 70 to 74 years of age when

           the Act takes effect terminates when he reaches his 75th

           year.

      6.   The licences of persons who are 75 years of age or older

           when the Act takes effect shall terminate at once.

                              Article 20

                             Taxi Stations

      A licence holder may make use of the services of any approved

      taxi station in the area of his trade union, whose services are

      available to him.

      If a licence holder wishes to transfer his taxicab operation to

      another station he shall give one month's notice of the

      termination of his station permit.

      A taxi station may not receive a taxicab for provision of station

      services until a notification of the issue of an operating

      licence or of transfer from another station has been received

      from the trade union concerned.

      A taxi station shall observe that the taxicab operators served

      there make use of their operating licences, and notify the trade

      union if this fails. A taxi station shall also notify the trade

      union if a licence holder violates the station's rules and

      sanctions are applied for that reason.

      A supervision committee may issue rules relating to the services

      rendered by taxi stations.

                               CHAPTER V

                       Miscellaneous Provisions

                              Section 21

      A supervision committee may, for the time being, extend the

      validity of exemptions relating to a licence holder's ownership

      of the taxicabs he operates and to the use of operating licences,

      which have been granted in accordance with previous regulations,

      and which are in effect when this Regulation enters into effect.

                              Section 22

      Violation of this Regulation shall bring fines in accordance with

      Section 13 of Act no. 77/1989 on Motor Vehicles for Public Hire.

                              Section 23

      This Regulation, which shall enter into effect on 1 July 1989,

      is hereby ratified, to be observed by every person concerned. At

      the same time the Regulation in respect of the Use of Taximeters

      in Taxicabs, no. 136/1986, and the Announcement relating to the

      same matter, no. 237/1988, are abrogated. Also, the following

      regulations, which have applied to the limitation of the number

      of taxicabs in individual trade union areas, are abrogated: Nos.

      293/1985 and 206/1987 (Reykjavík); nos. 89/1962 and 374/1978

      (Akranes); nos. 39/1966 and 3/1984 (Ísafjördur); no. 207/1978

      (Saudárkrókur); no. 332/1988 (Akureyri); no. 145/1963

      (Seydisfjördur); no. 279/1972 (Neskaupstadur); nos. 81/1967 and

      19/1984 (Selfoss); nos. 23/1986 and 487/1986 (Hveragerdi); no.

      810/1983 (Vestmannaeyjar); nos. 423/1974 and 2/1984 (Grindavík),

      and nos. 356/1985 and 200/1987 (Keflavík).

42.   Of the Frami statutes, relevant in the present case, Section 2

states as follows:

      (translation)

      "The purpose of the Association is:

      a.   To secure the professional interests of its members,

           and to promote solidarity among professional taxicab

           drivers.

      b.   To determine, negotiate and present demands relating

           to the working hours, wages and rates of its members.

      d.   To keep the number of taxicabs for the transport of

           persons limited in the area of the association, cf.

           the Act on Motor Vehicles for Public Hire and the

           Regulation on the limitation of the number of taxicabs

           in Reykjavík and the allocation of operating licences.

      e.   To represent its members before the authorities."

      The section contained no subsection (c).

III.  OPINION OF THE COMMISSION

A.    Complaint declared admissible

43.   The Commission declared admissible the applicant's complaint that

the obligation imposed on him to be a member of a trade union in order

to obtain or keep a licence to operate a taxicab was contrary to the

Convention.

B.    Points at issue

44.   The issues to be determined are

  a)  whether there has been a violation of Article 11 (Art. 11)

     of the Convention,

  b)  whether there has been a violation of Articles 9 or 10

      (Art. 9, 10) of the Convention, and

  c)  whether there has been a violation of Article 13 (Art. 13) of the

      Convention.

C.    Article 11 (Art. 11) of the Convention

45.   Article 11 (Art. 11) of the Convention reads as follows:

      "1.  Everyone has the right to freedom of peaceful assembly and

      to freedom of association with others, including the right to

      form and to join trade unions for the protection of his

      interests.

      2.   No restrictions shall be placed on the exercise of these

      rights other than such as are prescribed by law and are necessary

      in a democratic society in the interests of national security or

      public safety, for the prevention of disorder or crime, for the

      protection of health or morals or for the protection of the

      rights and freedoms of others.  This Article shall not prevent

      the imposition of lawful restrictions on the exercise of these

      rights by members of the armed forces, of the police or of the

      administration of the State."

46.   It is in dispute between the parties whether there has been an

interference with the right secured to the applicant by the above

provision.

47.   The applicant submits that due to the Icelandic Government's

decision to oblige by law all persons licenced as taxicab operators in

Reykjavík and vicinity to become members of the Frami Automobile

Drivers' Association, he has been compelled to become a member of the

said association against his will as he would otherwise lose his

licence to pursue his occupation.

48.   In particular he refers to the connection between the right to

form an association with others and the right to decline membership of

an association.  A right to form associations for the promotion of, for

example, political opinions or personal interests would be of little

avail, so the applicant submits, if people could be bound by duty to

be members of other associations whose purpose it is to further

contrary opinions or interests as they please.  In the applicant's

opinion the case centres around the question whether he should be

prevented from pursuing his occupation for not being willing to work

against his own views and interests.

49.   The applicant maintains that the Convention secures to him the

right to form, with persons of similar views, an association against

the political objective of limiting the number of taxicabs whereas he

should not be compelled to be a member of an association working for

the opposite objective.

50.   The Government submit that the Icelandic legislator has held that

compulsory membership of associations may be necessary in various areas

in order to organise the use or distribution of limited resources.

Furthermore, the Icelandic Constitution does not secure the right to

remain outside an association. In the Government's opinion the relevant

provision of the Constitution is not in conflict with the provisions

of the Convention which does not, in the Government's view, provide

that membership of an association may not be made compulsory.

51.   The Government maintain that Article 11 (Art. 11) of the

Convention does not protect the "negative" freedom of association and

the fact that the Contracting States refrained from adopting an

explicit provision to that effect indicates that they did not find it

advisable to impose an international obligation of that nature,

preferring to leave such a decision to each individual State.

52.   The Commission recalls that, while the Convention organs have

never expressly determined whether Article 11 (Art. 11) guarantees not

only freedom of association in the positive sense, but also, by

implication, a "negative right" not to be compelled to join an

association, a rule according to which no one may be compelled to

belong to an association features for example in Article 20 para. 2

of the United Nations Universal Declaration of Human Rights. It also

features in Article 11 para. 2 of the Community Charter of the

Fundamental Social Rights of Workers, adopted in Strasbourg on

9 December 1989 by the member States of the European Community.

53.   Assuming that a general rule such as those mentioned above was

deliberately omitted from the Convention as submitted by the

Government, it does not follow that the negative aspect of a person's

freedom of association falls completely outside the ambit of Article

11 (Art. 11) and that each and every compulsion to join a particular

trade union is compatible with the intention of that provision. To

construe Article 11 (Art. 11) as permitting every kind of compulsion

in the field of trade union membership would strike at the very

substance of the freedom it is designed to guarantee (cf. Eur. Court

H.R., Young, James and Webster judgment of 13 August 1981, Series A

no. 44, pp. 21-22, para. 52).

54.   Furthermore, the Commission notes that this negative aspect of

freedom of association is guaranteed, within the Council of Europe, in

Article 5 of the European Social Charter as interpreted by the

Committee of Experts set up under Article 25 of the Charter and to

which Iceland is a Party. Moreover, in line with this interpretation

of the Social Charter, and in seeking to "enhance the political value

of the Charter as an instrument for comparing, appraising and

stimulating national social policies based on respect for human

rights", the Parliamentary Assembly of the Council of Europe on

21 September 1991 adopted its Recommendation 1168 (1991) in which it

proposed the insertion into the Charter of a provision expressly

guaranteeing the negative aspect of freedom of association.

55.   According to Article 11 (Art. 11) of the Convention the right to

form and to join trade unions is a special aspect of freedom of

association. The Commission considers that the notion of a freedom

implies some measure of freedom of choice as to its exercise. However,

whether that freedom of choice has been restricted in a way contrary

to Article 11 (Art. 11) of the Convention must, without losing sight

of the above general aspects, be examined in the light of the specific

circumstances of the particular case.

56.   In the present case the Commission recalls that the applicant

applied in 1984 for a licence to operate a taxicab under the applicable

domestic legislation then in force. The Commission agrees with the

applicant that he would not have received a licence had he at that

moment refused to become a member of Frami. This is also exemplified

by the events which followed when he ceased paying membership fees.

However, it is clear from the judgment of the Icelandic Supreme Court

of 15 December 1988 that under Icelandic law there was at that time no

legal obligation to be a member of Frami for which reason the

revocation of the applicant's licence was declared null and void. It

follows, therefore, that as a consequence of the present Act on Motor

Vehicles for Public Hire, which entered into force on 1 July 1989, the

applicant was from that date onwards faced with the dilemma either of

joining Frami or of losing his licence for which membership of Frami

had not been a requirement when he first obtained it and which by then

he had had for several years.

57.   In these cicumstances the Commission does not find it necessary

to determine whether Article 11 (Art. 11) guarantees the negative

aspect of freedom of association on the same footing as the positive

aspect. A threat of losing the taxicab licence, involving the loss of

livelihood, is a very serious form of compulsion to join a particular

trade union, and in the present case it was directed against a person

who was in possession of such a licence before the introduction of any

legal obligation to join such a union.

58.   The Commission finds that such a form of compulsion strikes at

the very substance of the freedom guaranteed by Article 11 (Art. 11),

and therefore there has been an interference with that freedom (cf.

also the Young, James and Webster judgment mentioned above pp. 22-23,

para. 55).

59.   Having found that there has been an interference with the freedom

guaranteed in paragraph 1 of Article 11 (Art. 11) of the Convention the

Commission must next consider whether this interference was justified

for any of the reasons set out in paragraph 2 of the that provision.

Accordingly it must be ascertained whether the interference was

"prescribed by law", whether it had a legitimate aim and whether it was

"necessary in a democratic society" for the aforesaid aim.

60.   It is undisputed that the interference was prescribed by law. It

follows from Section 8, subsection 1 no. 6, of Act No. 77 on Motor

Vehicles for Public Hire that the applicant must be a member of Frami

in order to retain his taxicab licence. Furthermore, the Commission

will assume for the purpose of this case that the interference had the

aim of protecting the "rights and freedoms of others", this being the

only one of the aims listed in paragraph 2 that might be relevant.

61.   What remains to be determined is accordingly whether it was

"necessary in a democratic society" to compel the applicant by law to

become a member of Frami if he wanted to keep his licence as a taxicab

operator.

62.   From a general point of view the Commission recalls that when

considering the question of "necessity" a number of principles relevant

to its assessment have developed (cf. for example the above-mentioned

Young, James and Webster judgment p. 25, para. 63, with further

references).

63.   Firstly, "necessary" in this context does not have the

flexibility of such expressions as "useful" or "desirable". Secondly,

in a "democratic society" tolerance and broadmindedness require that

a balance must be struck which ensures the fair and proper treatment

of minorities and avoids any abuse of a dominant position. Thirdly, any

restriction imposed on a Convention right must be proportionate to the

legitimate aim pursued.

64.   The applicant submits that it is unacceptable that he should be

prevented from pursuing his occupation for not being willing to work

against his own views and interests. Taxicab operation may very well

be made subject to a licence and the number of licence holders limited

without imposing on these a duty to be members of an association like

Frami. The Government's emphasis on the importance of the role played

by Frami and similar associations in implementing the system now in

force is, according to the applicant, based on a misunderstanding. The

Act itself stipulates that the Committee for Taxicab Supervision

controls and supervises its implementation, and the Act, imposing the

obligation on the applicant to be a member of Frami, has no provisions

specifying Frami's purpose or functions. The power to decide in such

matters is exclusively entrusted to Frami itself, which inter alia has

led to a situation where the applicant had to tolerate that Frami's

funds were used to finance measures taken by the association against

a company of which he is one of the owners.

65.   Finally, the applicant maintains that whereas Section 5,

subsection 1, of the Act seems to imply that it is necessary that all

persons within a certain area are members of the same association the

Minister of Communications may, under Section 14, subsection 2, grant

a derogation from this where appropriate. This, in the applicant's

opinion, demonstrates that the alleged necessity of union membership

is merely a pretext.

66.   The Government submit that Frami is a non-political association

and its activities are not political in nature. The association has the

twofold role of protecting the interests of its members and of

supervising the services which its members are obliged to offer the

public. The fees paid to Frami by the applicant and others are

exclusively used to meet the costs incurred in the exercice of the

functions of the association itself.

67.   Frami's functions involve, according to the Government, a control

that the services are actually performed and acceptably carried out,

a control of the use of the licences granted, as well as the granting

of exemptions from various duties as regards taxi services. If

memberships were voluntary Frami would not be able to carry out these

functions as its rules do not apply to non-members. The Government

maintain that where taxicab operation is limited the authorities can

only ensure proper performance by active supervision which has been

accomplished by entrusting it to the unions in question. Those who

apply for a licence are aware of the membership condition and this

requirement is only natural since all licence holders who benefit from

the limitation in numbers must accept administrative regulation of

their occupation in order to ensure an effective implementation.

68.   Having regard to the general aspects, the parties' submissions

on the question of necessity as well as the facts of the present case

including the contents of Frami's statutes (see para. 42 above), the

Commission notes that Frami is not a public-law institution founded by

the legislature which might have rendered it an association falling

outside the ambit of Article 11 (Art. 11) of the Convention (cf. Eur.

Court H.R. Le Compte, van Leuven and de Meyere judgment of

23 June 1981, Series A no. 43, pp. 26-27, paras. 64-65). Frami is an

independent trade union and its internal organisation is outside public

control.

69.   Furthermore the Commission recalls that Frami has been entrusted

with certain functions under Act no. 77 on Motor Vehicles for Public

Hire. However, Section 10 of the Act provides for the establishment of

a Committee for Taxicab Supervision whose task it is to "supervise and

control the implementation of laws and regulations relating to motor

vehicles for public hire in the union area, the allocation of operating

licences and their revocation, and control the services rendered by

taxi stations". In these circumstances the Commission does not find

that the additional involvement of Frami as a supervisory and

controlling body which, according to the Government, produces certain

advantages, could be considered to be conclusive in respect of the

necessity of the interference complained of. The Commission has not

been informed of any other reasons which could justify the imposition

of the requirement of the applicant's membership of Frami. In

particular the Commission has not found it established that Frami would

have been prevented from protecting its members' occupational interests

(cf. Eur. Court H.R., Swedish Engine Drivers' Union judgment of

6 February 1976, Series A no. 20, pp. 15-16, para. 40) even if the

legislation in force would not oblige taxicab operators, having

objections like the applicant, to join a union like Frami.

70.   In these circumstances the Commission finds that the obligation

of membership of Frami which the applicant must endure goes further

than is required to achieve a proper balance between the conflicting

interests of those involved and cannot be regarded as proportionate to

the aim being pursued. Therefore, even taking into account the State's

margin of appreciation, the obligation complained of could not be

considered "necessary in a democratic society" within the meaning of

Article 11 para. 2 (Art. 11-2) of the Convention.

Conclusion

71.   The Commission concludes, by seventeen votes to one, that there

has been a violation of Article 11 (Art. 11) of the Convention.

D.    Articles 9 and 10 (Art. 9, 10) of the Convention

72.   The applicant submits that the obligation to join Frami also

raises issues under Articles 9 and 10 (Art. 9, 10) of the Convention.

The Government have not expressed themselves on this point.

73.   The Commission finds, however, that the facts of the present case

which have led the Commission to find a breach of Article 11 (Art. 11)

of the Convention are the same in so far as the issues arising under

Articles 9 and 10 (Art. 9, 10) are concerned. Article 11 (Art. 11)

itself contains elements which are generally part of the rights

guaranteed by Articles 9 and 10 (Art. 9, 10), i.e. it protects a

specific method or way of expressing a conviction or an opinion.

Article 11 (Art. 11), therefore, must in the present case be considered

as the lex specialis in relation to the other Articles. It is therefore

not necessary to deal with the complaints under these Articles

separately.

Conclusion

74.   The Commission concludes, unanimously, that it is not necessary

to examine separately whether there has been a violation of Articles 9

and 10 (Art. 9, 10) of the Convention.

E.    Article 13 (Art. 13) of the Convention

75.   Article 13 (Art. 13) of the Convention reads as follows:

      "Everyone whose rights and freedoms as set forth in this

      Convention are violated shall have an effective remedy before a

      national authority notwithstanding that the violation has been

      committed by persons acting in an official capacity."

76.   The applicant invokes the above provision without, however,

submitting other arguments than those presented in respect of

Article 11 (Art. 11) of the Convention. The Government have not

expressed themselves on this point.

77.   The Commission recalls that the applicant's complaint relates to

the fact that Act No. 77 on Motor Vehicles for Public Hire obliges him

to be a member of the Frami trade union. Accordingly, it is the

legislation itself which is the source of the grievance complained of.

In such circumstances a remedy would in effect amount to some sort of

judicial review of legislation because any other review could hardly

be effective. However, the Commission has constantly held that it

cannot be deduced from Article 13 (Art. 13) that there must be a remedy

against legislation as such which is considered not to be in conformity

with the Convention (cf. for example Young, James and Webster v. United

Kingdom, Comm. Report 14.12.79, para. 177, Eur. Court H.R., Series B

no. 39, p. 49). The Commission maintains this view.

Conclusion

78.   The Commission concludes, unanimously, that there has been no

violation of Article 13 (Art. 13) of the Convention.

F.    Recapitulation

79.   The Commission concludes, by seventeen votes to one, that there

has been a violation of Article 11 (Art. 11) of the Convention

(para. 71).

80.   The Commission concludes, unanimously, that it is not necessary

to examine separately whether there has been a violation of Articles 9

and 10 (Art. 9, 10) of the Convention (para. 74).

81.   The Commission concludes, unanimously, that there has been no

violation of Article 13 (Art. 13) of the Convention (para. 78).

Secretary to the Commission                President of the Commission

      (H.C. KRÜGER)                               (C.A. NØRGAARD)

                  Dissenting opinion by Mr. Trechsel

      Contrary to the majority of the Commission I have come to the

conclusion that, in the present case, there has been no violation of

Article 11 of the Convention although, in principle, I fully agree that

this guarantee includes a "negative side", i.e. the right not to join

an association.

      However, in my view, Frami is not to be regarded as an

association within the meaning of Article 11. In spite of its name it

is not a trade union as its members are self-employed independent

business people operating their own taxicab (cf. Section 16 of the

Regulation No. 308/1989). I am not impressed with the fact that

Section 2 of the Frami statutes refers to "wages" as, in practice,

there can hardly be any employed taxi drivers under the present

legislation.

      Although Frami is organised under private law, it falls to be

compared, in my opinion, with organisations such as the Ordre des

médecins which was at issue in the case of Le Compte, Van Leuven and

De Meyere (Eur. Court H.R., judgment of 23 June 1988, Series A no. 43,

pp. 26-27, paras. 64-65). It is, if not created by, at any rate

referred to in legislation (Section 8 of Regulation No. 308/1989) and

de facto also pursues an aim which is in the general interest, namely

the organisation of a system of transportation. It nominates a member

for a supervision committee in accordance with Section 10 of Act

No. 77/1989 on Motor Vehicles for Public Hire which shall issue and

allocate licences for the operation of taxicabs (Section 10 of

Regulation No. 308/1989), may issue rules relating to the services

rendered by taxi stations (Section 20) or extend the validity of

exemptions (Section 21).

      I agree that these aims and functions are not reflected in

Section 2 of the Frami statutes as set out in para. 42 of the Report.

However, the Convention organs must look behind the appearances. In

reality, Frami exercises a number of important functions delegated to

the association by the public authorities. To me it is obvious that

this task cannot be attributed to a variety of organisations but must

be limited to a single body. At the same time it is also quite

acceptable that every operator of a taxicab be required to adhere to

this organisation.

      I fully accept, on the other hand, that it is not quite

satisfactory to say that Frami is not an organisation within the

meaning of Article 11. It might therefore be argued that compulsory

adhesion is an interference which falls to be examined under para. 2

of Article 11. Under this assumption I find that the interference is

prescribed by law in the interest of the prevention of disorder and the

rights of others (the customers and competitors) and proportional to

those aims. It could reasonably be regarded as "necessary in a

democratic society".

                              APPENDIX I

                        HISTORY OF PROCEEDINGS

Date                             Item

_________________________________________________________________

22 December 1989                 Introduction of the application

2 February 1990                  Registration of the application

Examination of Admissibility

2 July 1990                      Commission's decision to invite the

                                 Government to submit observations on

                                 the admissibility and merits of the

                                 application

11 December 1990                 Submission of the Government's

                                 observations

28 January 1991                  Submission of the applicant's

                                 observations

10 July 1991                     Commission's decision to declare the

                                 application admissible

Examination of the merits

7 December 1991                  Consideration of the state of

                                 proceedings

4 April 1992                     Consideration of the state of

                                 proceedings

15 May 1992                      Commission's deliberations on

                                 the merits, final votes and

                                 adoption of the Report

 

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