62023TJ0493_INF
Judgment of the General Court (Fifth Chamber) of 18 December 2024 –Tauber v Council
(Case T‑493/23)
(Common Foreign and Security Policy – Restrictive measures taken in view of actions destabilising Moldova – Freezing of funds – Restrictions on entry into the territories of the Member States – Lists of persons, entities and bodies subject to the freezing of funds and to restrictions on entry into the territories of the Member States – Inclusion and maintenance of the applicant’s name on the lists – Planning and directing violent demonstrations – Article 1(1)(a)(ii) and Article 2(1)(a)(ii) of Decision (CFSP) 2023/891 and Article 2(3)(a)(ii) of Regulation (EU) 2023/888 – Obligation to state reasons – Plea of illegality – Error of assessment – Freedom to conduct a business – Right to property – Non-contractual liability)
1.
European Union – Judicial review of the legality of the acts of the institutions – Restrictive measures taken in view of the situation in Moldova – Scope of the review
(Council Decision (CFSP) 2023/891, as amended by Decisions (CFSP) 2023/1047 and (CFSP) 2024/1244; Council Regulations 2023/888, 2023/1045 and 2024/1243)
(see paragraph 19)
2.
Acts of the institutions – Statement of reasons – Obligation – Scope – Restrictive measures taken in view of the situation in Moldova – Prohibition on entry and transit and freezing of funds of persons responsible for actions which undermine or threaten the sovereignty and independence of Moldova – Obligation to identify in the statement of reasons the specific and concrete elements justifying the said measure – Decision falling within a context known to the person concerned, enabling him or her to understand the scope of the measure taken against him or her – Whether summary statement of reasons sufficient
(Council Decision (CFSP) 2023/891, as amended by Decisions (CFSP) 2023/1047 and (CFSP) 2024/1244; Council Regulations 2023/888, 2023/1045 and 2024/1243)
(see paragraphs 24-32)
3.
Common foreign and security policy – Restrictive measures taken in view of the situation in Moldova – Decision to freeze funds – Judicial review of legality – Scope – Provision of general scope concerning an individual restrictive measure – Included
(Art. 29 TEU; Arts 275, second para., and 277 TFEU; Council Decision (CFSP) 2023/891, Arts 1(1)(a)(ii) and 2(1)(a)(ii); Council Regulation 2023/888, Art. 2(3)(a)(ii))
(see paragraphs 43-45)
4.
Acts of the institutions – Choice of legal basis – Acts concerning the adoption of restrictive measures in view of the situation in Moldova – Prohibition on entry and transit and freezing of funds of persons planning, directing or engaging in violent demonstrations or other acts of violence – Article 29 TEU and Article 215(2) TFEU – Whether permissible
(Arts 3(5), 21, 23, 24 and 29 TEU; Art. 215(2) TFEU; Council Decision (CFSP) 2023/891, Arts 1(1)(a)(ii) and 2(1)(a)(ii); Council Regulation 2023/888, Art. 2(3)(a)(ii))
(see paragraphs 51, 52, 57-60)
5.
Common foreign and security policy – Restrictive measures taken in view of the situation in Moldova – Legal basis – Restrictive measures provided for by a decision and a regulation adopted, respectively, on the basis of Article 29 TEU and Article 215 TFEU – Power of the Council to adopt restrictive measures designed to support the rule of law in an EU candidate country
(Arts 21(2)(b) and 29 TEU; Art. 215(2) TFEU; Council Decision (CFSP) 2023/891, Arts 1(1)(a)(ii) and 2(1)(a)(ii); Council Regulation 2023/888, Art. 2(3)(a)(ii))
(see paragraph 63)
6.
European Union – Judicial review of the legality of the acts of the institutions – Restrictive measures taken in view of the situation in Moldova – Scope of the review – Restricted review for general rules – Criteria for adopting restrictive measures – Prohibition on entry and transit and freezing of funds of persons planning, directing or engaging in violent demonstrations or other acts of violence – Scope – Observance of the principle of proportionality – Respect for the principle of legal certainty
(Art. 275, second para., TFEU; Council Decision (CFSP) 2023/891, Art. 2(1)(a)(ii); Council Regulation 2023/888, Art. 2(3)(a)(ii))
(see paragraphs 72-76, 79, 80, 86)
7.
European Union – Judicial review of the legality of the acts of the institutions – Restrictive measures taken in view of the situation in Moldova – Scope of the review – Inclusion of the applicant on the list annexed to the contested decision on account of his or her responsibility for actions or policies undermining or threatening the sovereignty and independence of the Republic of Moldova – Documents available to the public – Probative value – Principle of the unfettered assessment of the evidence
(Council Decision (CFSP) 2023/891, as amended by Decisions (CFSP) 2023/1047 and (CFSP) 2024/1244; Council Regulations 2023/888, 2023/1045 and 2024/1243)
(see paragraphs 103-113)
8.
Common foreign and security policy – Restrictive measures taken in view of the situation in Moldova – Prohibition on entry and transit and freezing of funds of persons responsible for actions or policies undermining or threatening the sovereignty and independence of the Republic of Moldova – Applicant with the status of party leader who planned violent demonstrations in the interest and with the assistance of the Russian Federation – Error of assessment – None
(Council Decision (CFSP) 2023/891, as amended by Decisions (CFSP) 2023/1047 and (CFSP) 2024/1244; Council Regulations 2023/888, 2023/1045 and 2024/1243)
(see paragraphs 125-131, 140, 141)
9.
European Union – Judicial review of the legality of the acts of the institutions – Restrictive measures taken in view of the situation in Moldova – Scope of the review – Proof that the measure is well founded – Obligation on the competent EU authority to establish, in the event of challenge, that the reasons relied on against the persons or entities concerned are well founded – Breadth of the discretion of the competent authority – Relevance of evidence produced on the basis of a previous inclusion where there are no amendments to the grounds for inclusion or changes in the applicant’s situation or in the context in Moldova
(Council Decision (CFSP) 2023/891, as amended by Decisions (CFSP) 2023/1047 and (CFSP) 2024/1244; Council Regulations 2023/888, 2023/1045 and 2024/1243)
(see paragraphs 143, 149, 150)
10.
Common foreign and security policy – Restrictive measures taken in view of the situation in Moldova – Scope – Persons responsible for actions or policies undermining or threatening the sovereignty and independence of the Republic of Moldova – Meaning – Persons who have committed those acts in the past, notwithstanding the lack of evidence establishing current involvement or participation in such acts – Included
(Council Decision (CFSP) 2023/891, as amended by Decisions (CFSP) 2023/1047 and (CFSP) 2024/1244, Arts 1(1)(a)(ii) and 2(1)(a)(ii); Council Regulations 2023/888, Art. 2(3)(a)(ii), 2023/1045 and 2024/1243)
(see paragraphs 147, 148)
11.
Common foreign and security policy – Restrictive measures taken in view of the situation in Moldova – Prohibition on entry and transit and freezing of funds of persons planning, directing or engaging in violent demonstrations or other acts of violence – Restriction of property rights and freedom of enterprise – Breach of the principle of proportionality – None
(Charter of Fundamental Rights of the European Union, Arts 16 and 17; Council Decision (CFSP) 2023/891, as amended by Decisions (CFSP) 2023/1047 and (CFSP) 2024/1244; Council Regulations 2023/888, 2023/1045 and 2024/1243)
(see paragraphs 158-165, 168)
12.
Non-contractual liability – Conditions – Actual and certain damage – Assessment – Criteria – No actual and certain damage
(Art. 340, second para., TFEU)
(see paragraphs 172, 173)
Operative part
The Court:
1.
Dismisses the action;
2.
Orders Ms Marina Tauber to bear her own costs and to pay those of the Council of the European Union;
3.
Orders the European Commission to bear its own costs.