CELEX: 62001TJ0047
Language: en
Date: 2003-10-16
Title: Judgment of the Court of First Instance (Fifth Chamber) of 16 October 2003. # Co-Frutta Soc.coop.rl v Commission of the European Communities. # Action for annulment - Access to documents - Decision 94/90/ECSC, EC, Euratom - Refusal - Authorship rule - Misuse of powers. # Case T-47/01.

Case T-47/01 Co-Frutta Soc. coop. rlvCommission of the European Communities
            «(Action for annulment – Access to documents – Decision 94/90/ECSC, EC, Euratom – Refusal – Authorship rule – Misuse of powers)»
            
               
                  Judgment of the Court of First Instance (Fifth Chamber), 16 October 2003  
                     
                
               
            
                   
               
               
            
            Summary of the Judgment
         
         
                  1..
                  Actions for annulment – Actionable measures – Definition – Measures with binding legal effects – Preparatory measures – Exclusion – Secretary-General's decision replacing an initial statement of position in the context of an application for access to Commission
                     documents – Included  
                  (Art. 230 EC; Commission Decision 94/90, Art. 2(2)) 
         
                  2..
                  Commission – Right of public access to Commission documents – Decision 94/90 – Exceptions to the principle of access to documents – Authorship rule – Scope – Collection by the Commission, in a single computer database, of data notified by the Member States  (Commission Decision 94/90) 
         
                  3..
                  Commission – Right of public access to Commission documents – Decision 94/90 – Exceptions to the principle of access to documents – Authorship rule – To be narrowly construed – Documents on which the decision-making process is based  (Commission Decision 94/90) 
         
                  4..
                  Commission – Right of public access to Commission documents – Decision 94/90 – Exceptions to the principle of access to documents – Authorship rule – Documents from the Member States – Difficulties in gaining access to documents by applying to the Member States – Not relevant   (Commission Decision 94/90) 
         
                  5..
                  Commission – Right of public access to Commission documents – Decision 94/90 – Exceptions to the principle of access to documents – Authorship rule – Possibility of relying on Regulation No 1049/2001 to justify a strict construction of that rule – Not possible  (Regulation No 1049/2001 of the European Parliament and of the Council; Commission Decision 94/90) 
         
                  6..
                  Commission – Right of public access to Commission documents – Decision 94/90 – Review of initial refusal – Discrepancy in the reasoning – Misuse of powers – None  (Art. 230 EC; Commission Decision 94/90) 
         
         1.
          Only a measure the legal effects of which are binding on and capable of affecting the interests of an applicant by bringing
         about a distinct change in his legal position is an act against which an action for annulment may be brought under Article
         230 EC. In the case of acts or decisions adopted by a procedure involving several stages, in particular where they are the
         culmination of an internal procedure, only measures definitively establishing the position of the institution on the conclusion
         of that procedure, and not provisional measures intended to pave the way for the final decision, may be the subject of an
         action for annulment. In that regard, under the procedure established by Decision 94/90 on public access to Commission documents, if, in the event
         of an initial refusal, the applicant makes a confirmatory application to the Secretary-General for review of that position,
         the Secretary-General's decision constitutes the final statement of the institution's position. Consequently, only the measure
         adopted by the Secretary-General, which is a decision and which entirely replaces the previous statement of position, is capable
         of producing legal effects such as to affect the interests of the applicant and, therefore, of being the subject of an action
         for annulment under Article 230 EC. see paras 28-29, 31
         
         2.
          It is not enough to deprive the Member States of their authorship of those documents for the purposes of Decision 94/90 on
         public access to Commission documents, that the Commission collects in a single computer database data notified by those States
         where that institution confines itself to collecting the data, for the simple purposes of facilitating the tasks of comparison
         and checking for double counting of the data, but without being able itself to effect alterations, corrections or other treatment,
         since the appropriate checks or corrections of that data must be requested of the national authorities. see para. 47
         
         3.
          While the authorship rule, which makes an exception to the right of access provided for in Decision 94/90 on public access
         to Commission documents, must be construed and applied strictly so as not to restrict that right of access, nevertheless,
         the argument that since that rule must be construed strictly it is not applicable to cases where the third-party documents
         sought are those on which the Community's decision-making process was based, cannot be accepted. Since the Code of Conduct
         adopted by Decision 90/94 does not provide for any restriction on the application of that rule, it must be construed as meaning
         that it is fully applicable to every sort of third-party document to which access is sought, and it is not possible to have
         different levels of applicability according to whether such documents may affect the commercial player concerned or according
         to their use by the Commission in its decision-making process.  In addition, the legal test of strict construction and application of the authorship rule is necessary particularly when there
         are doubts as to the authorship of the document sought. If there are no doubts in that regard, since the Member States alone
         are the authors of the documents in question, that case-law cannot be relied upon. see paras 57-58, 60-61
         
         4.
          For the purposes of the procedure under Decision 90/94 on public access to Commission documents, difficulties in gaining access
         to the documents sought by applying to the Member States are irrelevant as regards the lawfulness of a decision of that institution
         refusing access to the documents sought on the ground that those States were their authors. The position taken by the Member
         States on the information sought is a matter of domestic law and is governed by the restrictions laid down by the relevant
         national legislation, so that it cannot undermine the correct application by the Commission of the authorship rule laid down
         by the Community legislature. see para. 64
         
         5.
          Since Regulation No 1049/2001 regarding public access to European Parliament, Council and Commission documents entered into
         force on 3 June 2001 and applied only from 3 December 2001, it cannot be relied upon against a Commission decision, which
         was adopted on an earlier date and in compliance with the regime laid down by Decision 94/90 on public access to Commission
         documents to justify a strict construction of the authorship rule which would result in its inapplicability. see para. 65
         
         6.
          A measure is vitiated by misuse of powers only if it appears on the basis of objective, relevant and consistent evidence to
         have been taken with the exclusive, or at least the main, purpose of achieving an end other than that stated or evading a
         procedure specifically prescribed by the Treaty for dealing with the circumstances of the case. In that regard, since the system established by the Code of Conduct concerning public access to Council and Commission documents
         and put in place as regards the Commission by Decision 94/90 makes refusal to grant access to documents subject to a procedure
         involving two applications, in which only the Secretary-General's confirmatory decision constitutes the institution's final
         statement of position, any discrepancy in the reasoning stated by the Commission in the course of the review procedure cannot
         be regarded as an indication of misuse of powers since that review procedure is intended precisely to enable the Secretary-General
         to reconsider the matter, without constraint from previous statements of position by the competent services. see paras 72-73
      

      
      
      
      
      
      
      
      
      
      
      
      
      
      
      
            
            JUDGMENT OF THE COURT OF FIRST INSTANCE (Fifth Chamber)16 October 2003  (1)
         
         
               ((Action for annulment – Access to documents – Decision 94/90/ECSC, EC, Euratom – Refusal – Authorship rule – Misuse of powers))
               
             In Case T-47/01, 
            
            
            Co-Frutta Soc. coop. rl, established in Padua (Italy), represented by  W. Viscardini, M. Paolin and S. Donà, lawyers,
            
            
            applicant, 
            
            v
            Commission of the European Communities, represented by P. Stancanelli, P. Aalto and U. Wölker, acting as Agents, with an address for service in Luxembourg,
            
            defendant, 
            
             APPLICATION for annulment of the Commission's decision contained in the letters of 31 July 2000 from the Directorate-General
            for Agriculture and 5 December 2000 from the Secretary-General of the Commission, by which access to the documents sought
            by the applicant in connection with the arrangements for importing bananas was partly refused,
            
            
            THE COURT OF FIRST INSTANCE OF THE EUROPEAN COMMUNITIES (Fifth Chamber),
            
             composed of: R. García-Valdecasas, President, P. Lindh and J.D. Cooke, Judges, 
            
             Registrar: J. Palacio González, Principal Administrator, 
            
            
            having regard to the written procedure and further to the hearing on 20 March 2003,
         gives the following
         
         
         Judgment
            
               Legal background
             The Community rules on access to documents
         
         
         1
            
          Following Declaration No 17 on the right of access to information annexed to the Final Act of the Treaty on European Union
         signed at Maastricht on 7 February 1992, the Council and the Commission adopted, on 6 December 1993, a Code of Conduct concerning
         public access to Council and Commission documents (OJ 1993 L 340, p. 41, hereinafter  
         the Code of Conduct) to establish the principles governing access to the documents they hold. 
         
         
         2
            
          So far as concerns the Commission, it adopted Decision 94/90/ECSC, EC, Euratom of 8 February 1994 on public access to Commission
         documents (OJ 1994 L 46, p. 58, hereinafter  
         Decision 94/90), which implements the Code of Conduct. 
         
         
         3
            
          The Code of Conduct provides as follows under the heading  
         General principle: The public will have the widest possible access to documents held by the Commission and the Council.Document means any written text, whatever its medium, which contains existing data and is held by the Commission or the Council.
         
         
         4
            
          The third paragraph of the section headed  
         Processing of initial applications provides as follows (hereinafter referred to as  
         the authorship rule): Where the document held by an institution was written by a natural or legal person, a Member State, another Community institution
         or body or any other national or international body, the application must be sent direct to the author.
         
         
         5
            
          The circumstances in which an institution may refuse an application for access to documents are set out in the Code of Conduct,
         under the heading  
         Exceptions, in the following terms: The institutions will refuse access to any document whose disclosure could undermine:...
         
         
         ─
             the protection of commercial and industrial secrecy, 
          the protection of commercial and industrial secrecy, 
         ...
         
         
         ─
             the protection of confidentiality as requested by the natural or legal persons that supplied the information or as required
            by the legislation of the Member State that supplied the information. 
          the protection of confidentiality as requested by the natural or legal persons that supplied the information or as required
         by the legislation of the Member State that supplied the information. 
         ...
         
         
         6
            
          As regards the treatment of applications for public access to Commission documents, Article 2(2) of Decision 94/90 provides:
         The ... Director-General ... shall inform the applicant in writing, within one month, whether the application is granted or
         whether he intends to refuse access. In the latter case the applicant shall also be notified that he has one month in which
         to apply to the Secretary-General of the Commission for review of the intention to refuse access, failing which he shall be
         deemed to have withdrawn his initial application.
         
         
         7
            
          The Code of Conduct provides also that  
         if a confirmatory application is submitted, and if the institution concerned decides to refuse to release the document, that
         decision, which must be made within a month of submission of the confirmatory application, will be notified in writing to
         the applicant as soon as possible.  The grounds of the decision must be given, and the decision must indicate the means of
         redress that are available, i.e. judicial proceedings and complaints to the ombudsman under the conditions specified in, respectively,
         Articles 173 and 138e [now Articles 230 EC and 195 EC] of the Treaty establishing the European Community. 
         
         
         8
            
          The Treaty of Amsterdam, which entered into force on 1 May 1999, expressly recognised, in Article 255 EC, the right of public
         access to documents. In accordance with Article 255(2) EC, the Parliament and the Council adopted Regulation (EC) No 1049/2001
         of 30 May 2001 regarding public access to European Parliament, Council and Commission documents, which took effect from 3 December
         2001 (OJ 2001 L 145, p. 43). 
          The arrangements for the common organisation of the market in bananas
         
         
         9
            
          Council Regulation (EEC) No 404/93 of 13 February 1993 on the common organisation of the market in bananas (OJ 1993 L 47,
         p. 1) introduced in Title IV, relating to trade with third countries, a common system for imports from third countries which
         replaced, from 1 July 1993, the various previously existing national arrangements. 
         
         
         10
            
          In the context of that system, as implemented by Commission Regulation (EEC) No 1442/93 of 10 June 1993 laying down detailed
         rules for the application of the arrangements for importing bananas into the Community (OJ 1993 L 142, p. 6) and, from 1 January
         1999, by Commission Regulation (EC) No 2362/98 of 28 October 1998 laying down detailed rules for the implementation of [Regulation
         No 404/93] regarding imports of bananas into the Community (OJ 1998 L 293, p. 32), the competent authorities of the Member
         States are required to notify the Commission each year of the lists of the operators registered with them together with the
         data relating to the quantities marketed by each of them during a reference period, to the volumes covered by the applications
         made by the operators in the current year and to the quantities actually marketed, with the serial numbers of the licences
         used (see, in particular, Article 4 of Regulation No 1442/93 and Articles 6 and 28 of Regulation No 2362/98), as well as certain
         quarterly statistical and economic information relating, inter alia, to the import licences (see, in particular, Article 21
         of Regulation No 1442/93 and Article 27 of Regulation No 2362/98). 
         
         
         11
            
          Communication of the lists in question enables the Commission to check the data available to the competent national authorities
         and, in so far as required, to forward the lists to the other Member States with a view to facilitating the detection or prevention
         of false claims by operators. On the basis of the data transmitted, the Commission may where appropriate set a single correction
         or adjustment coefficient to be applied by the Member States to the operators' reference quantities (see Article 4 of Regulation
         No 1442/93 and Articles 6 and 28 of Regulation No 2362/98). 
         Facts
         
         12
            
          The applicant is an Italian cooperative society of banana ripeners which has operated in that sector for about 20 years and
         which imports bananas from what is called the dollar area. It claims that it learnt through the Italian press of fraudulent
         imports of bananas into the Community between March 1998 and June 2000, at a reduced tariff, on the basis of false import
         licences. 
         
         
         13
            
          The applicant considers itself to have been affected by those imports by reason of serious price distortions caused by additional
         quantities being put on the Community market, which meant that the tariff quota was exceeded, and submits that the loss suffered
         would be even greater if it became clear that the imports were made not with false licences but with licences which had been
         properly issued, but on the basis of false or erroneous reference quantities. 
         
         
         14
            
          In order to protect its interests the applicant applied, by letter of 27 June 2000, to the Commission's Directorate-General
         for Agriculture (
         DG Agriculture) and on the basis of the provisions of the Code of Conduct for access to the following documents: 
         
         1.
          The list of traditional operators showing, for each operator, the quantity of bananas imported during the period 1994-1996
         and the respective provisional reference quantity, as well as the serial numbers of the licences used and extracts from the
         licences used relating thereto. 
         
         
         2.
          The lists, for 1998 and 1999, of all the operators registered in the Community showing, for each operator, the import licences
         applied for and the quantities actually imported. 
         
         
         3.
          The data relating to 1998 and 1999 and, if available, those for the first quarter of the current year 2000, of the quantities
         of bananas from Ecuador the import of which has been applied for, separately from the quantities actually marketed in the
         Community.
         
         
         
         15
            
          By letter of 31 July 2000 (hereinafter  
         the letter from DG Agriculture), the Assistant Director-General of DG Agriculture sent the applicant the data relating to paragraph 3 of its application.
         On the other hand, he refused access to the documents covered by paragraphs 1 and 2 of the application, citing  
         the protection of commercial and industrial secrecy, as well as the protection of confidentiality required by the natural
         or legal person, or provided for by the legislation of the Member State, that supplied the information. He referred also to the exceptions laid down by the Code of Conduct, to Article 287 EC and to Article 20 of Council Regulation
         No 17/62 of 6 February 1962, First Regulation implementing Articles [81] and [82] of the Treaty (OJ, English Special Edition
         1959-1962, p. 87). 
         
         
         16
            
          By letter of 1 September 2000 and in accordance with the provisions of the Code of Conduct, the applicant submitted a confirmatory
         application to the Secretariat-General of the Commission for reconsideration of that position. 
         
         
         17
            
          By letter of 5 December 2000 (hereinafter  
         the Secretary-General's letter), received by the applicant on 21 December 2000, the Secretary-General informed the applicant that it was not possible to
         send it the documents sought because of the authorship rule laid down by the Code of Conduct. The Secretary-General's letter
         reads as follows: ...Having reconsidered your application, I have, unfortunately, to inform you that it is not possible to send you those documents
         because of the authorship rule laid down by the Code of Conduct concerning public access to documents adopted on 8 February
         1994 by Commission Decision [94/90/ECSC, EC, Euratom], which provides that:Where the document held by an institution was written by a natural or legal person, a Member State, another Community institution
         or body or any other national or international body, the application must be sent direct to the author.Complying with your application would mean giving you access to data relating to individual operators, collected and used
         by the Member States. Such data, which contain information relating to the reference quantities of the undertakings, to licence
         applications and to the quantities actually imported by each of them, were transmitted to the Commission in order to ensure
         compliance with the arrangements governing imports and particularly the detection or prevention of irregularities, especially
         fraudulent claims by operators, as is provided for by Article 4(5) of [Regulation No 1442/93] and Article 6(2) of [Regulation
         No 2362/98].I therefore suggest that you apply to the competent authorities of the Member States directly for copies of the documents
         you wish to obtain.
         Procedure and forms of order sought
         
         18
            
          The applicant brought this action by application lodged at the Registry of the Court of First Instance on 1 March 2001. 
         
         
         19
            
          By a separate document lodged at the Registry on the same date, the applicant applied for the proceedings to be expedited
         under Article 76a of the Rules of Procedure of the Court of First Instance. By decision of 5 April 2001, the Court of First
         Instance, Fifth Chamber, rejected that application. 
         
         
         20
            
          Upon hearing the report of the Judge-Rapporteur, the Court of First Instance (Fifth Chamber) decided to open the oral procedure.
         The parties presented oral argument and replied to the questions put to them by the Court at the hearing on 20 March 2003.
         
         
         
         21
            
          The applicant claims that the Court should: 
         
         
         ─
             annul the Commission's decision contained in the letters from DG Agriculture of 31 July 2000 and from the Secretary-General
            of the Commission of 5 December 2000; 
          annul the Commission's decision contained in the letters from DG Agriculture of 31 July 2000 and from the Secretary-General
         of the Commission of 5 December 2000; 
         
         
         
         ─
             order the Commission to pay the costs. 
          order the Commission to pay the costs. 
         
         
         
         
         22
            
          The Commission contends that the Court should: 
         
         
         ─
             declare the application for annulment of the decision contained in the letter from DG Agriculture of 31 July 2000 to be inadmissible;
            
          declare the application for annulment of the decision contained in the letter from DG Agriculture of 31 July 2000 to be inadmissible;
         
         
         
         
         ─
             dismiss in its entirety the application for annulment of the decision contained in the letter from the Secretary-General of
            the Commission of 5 December 2000; 
          dismiss in its entirety the application for annulment of the decision contained in the letter from the Secretary-General of
         the Commission of 5 December 2000; 
         
         
         
         ─
             order the applicant to pay the costs. 
          order the applicant to pay the costs. 
         
         
         Admissibility Arguments of the parties
         
         
         23
            
          Without formally raising an objection of inadmissibility, the Commission maintains that the action against the decision contained
         in the letter from DG Agriculture is inadmissible on the ground that it is not a challengeable act for the purposes of Article
         230 EC. 
         
         
         24
            
          The applicant argues that its action is not intended to seek the annulment separately of the letter from DG Agriculture and
         of the Secretary-General's letter and accepts that, since the procedure was concluded by the latter, only the annulment of
         the Secretary-General's decision is to be sought. 
         
         
         25
            
          However, it maintains that since it became clear during the procedure that there was an earlier decision based on different
         reasoning inconsistent with that expressed by the Secretary-General, it would have been impossible to challenge the Secretary-General's
         decision alone, disregarding that of DG Agriculture, because it is that aspect which indicates that there was misuse of powers.
         
         
         
         26
            
          Also, it is in the applicant's interest to seek annulment of the Commission's decision as it emerges from all the replies
         received, in order to avoid the risk that, if the Court annuls the decision resulting from the Secretary-General's letter,
         the Commission gives another negative response based on DG Agriculture's reasoning, which would not have been declared unlawful
         by the Court (see, for example, the facts in Case T-92/98  
         Interporc v  
         Commission [1999] ECR II-3521, paragraph 54). 
         
         
         27
            
          At the hearing, the applicant requested that, even if the action concerning the letter from DG Agriculture should be declared
         inadmissible, the Court should rule, for reasons of procedural economy and effectiveness, on the reasons for refusal relied
         upon in that letter. 
          Findings of the Court
         
         
         28
            
          It has consistently been held that only a measure the legal effects of which are binding on and capable of affecting the interests
         of an applicant by bringing about a distinct change in his legal position is an act against which an action for annulment
         may be brought under Article 230 EC. In the case of acts or decisions adopted by a procedure involving several stages, in
         particular where they are the culmination of an internal procedure, only measures definitively establishing the position of
         the institution on the conclusion of that procedure, and not provisional measures intended to pave the way for the final decision,
         may be the subject of an action for annulment (Case 60/81  
         IBM v  
         Commission [1981] ECR 2639, paragraph 10, and Case T-277/94  
         AITEC v  
         Commission [1996] ECR II-351, paragraph 51). 
         
         
         29
            
          In the present context, it must be noted that under the procedure established by Decision 94/90 the decision of the Secretary-General
         of the Commission constitutes the final statement of the institution's position on the application for access to documents
         made by the applicant. 
         
         
         30
            
          In this case, it is clear from the combined effect of Article 2(2) of Decision 94/90 and the Code of Conduct's provisions
         on the treatment of confirmatory applications that the response contained in the letter from DG Agriculture was only an initial
         statement of position, conferring on the applicant the right to request the Secretary-General of the Commission to reconsider
         the position in question. Under Article 2(2) of Decision 94/90, in the case of refusal, the Director-General's reply constitutes
         an initial statement of position which shows an  
         intention to refuse access, which can be made the subject of a confirmatory application for  
         review of the intention to refuse access. 
         
         
         31
            
          Consequently, only the measure adopted by the Secretary-General of the Commission, which is a decision and which entirely
         replaces the previous statement of position, is capable of producing legal effects such as to affect the interests of the
         applicant and, therefore, of being the subject of an action for annulment under Article 230 EC. 
         
         
         32
            
          In addition, the applicant has admitted, in its pleadings and at the hearing, that only the annulment of the Secretary-General's
         decision can be sought, since the procedure was closed by that statement of position. 
         
         
         33
            
          It follows that the action is inadmissible in so far as concerns the claim for annulment of the letter from DG Agriculture
         of 31 July 2000 and, therefore, that the Court need not rule on the reasoning on which DG Agriculture based its initial statement
         of position, which was not relied upon by the Secretary-General. 
         Substance
         
         34
            
          The arguments relied upon by the applicant can be brought together under two pleas in law: first, infringement of the Code
         of Conduct adopted by the Commission by Decision 94/90, and secondly misuse of powers. 
          The first plea in law, alleging infringement of the Code of Conduct adopted by Decision 94/90
         
         
         35
            
          The applicant's principal argument is that the authorship rule is not applicable to this case because the documents required
         were drawn up not by the national authorities, but by the Commission. In the alternative, the applicant submits that, even
         if the documents required were actually drawn up by the national authorities, the authorship rule is not applicable since
         it should be strictly construed, in accordance with the general principle of access to documents laid down by the Code of
         Conduct. 
         (a) Determination of the author of the documents in question
         ─ Arguments of the parties
         
         
         36
            
          The applicant asserts that the Secretary-General's contention that the application concerns documents the author of which
         is not the Commission but the Member States is mistaken, since the purpose of the application is to obtain the overall lists
         of the Community's traditional operators, and not the individual lists of each Member State. 
         
         
         37
            
          First, the applicant maintains that, in the light of the essential tasks entrusted to the Commission in the context of the
         arrangements for banana imports, it is evident that the Member States have no independent role in establishing the lists of
         operators and of their reference quantities, but have the function of assisting the Commission, which is responsible for managing
         and monitoring the arrangements. 
         
         
         38
            
          Secondly, in order to exercise those powers of management and monitoring, the Commission must necessarily have an independent
         list drawn up by itself which brings together, at the Community level, all the information concerning the Community's traditional
         operators provided by the Member States. That collation is undertaken by the Commission and not the Member States. 
         
         
         39
            
          If the Commission merely confines itself to receiving the data prepared by the Member States and consolidating it without
         making any alterations or corrections, it fails in its duty of action and monitoring, on its own initiative, the figures transmitted
         by the Member States and its decision fixing the adjustment coefficient will rely purely on the diligence of the national
         authorities. Consequently, given that the Commission does not confine itself to pointing out errors but also intervenes on
         its own initiative, even if there were no list properly described as being of Community origin it is legitimate to consider
         that the Commission is the author of the documents in question. 
         
         
         40
            
          The Commission contends that the authorship rule has been correctly invoked and is fully applicable because the data requested
         by the applicant in paragraph 1 of its application of 27 June 2000 are in the form of documents drawn up by the Member States.
         Furthermore, as regards the documents mentioned in paragraph 2 of the application for access, the defendant maintains that
         there is no document which provides the data requested with the degree of precision required by the applicant and that, in
         any case, if any did exist, the authorship rule would still apply because it would be in the form of a document drawn up by
         the Member States. 
         ─ Findings of the Court
         
         
         41
            
          The applicant disputes the application in this case of the authorship rule because the lists to which access was sought were
         drawn up not by the Member States but by the Commission. 
         
         
         42
            
          That raises the question, therefore, whether the documents sought by the applicant are documents drawn up by the Commission
         or by the Member States. In that respect, a distinction must be drawn between the documents referred to in paragraphs 1 and
         2 respectively of the application made by the applicant in its letter of 27 June 2000. 
         
         
         43
            
          In the first place, in relation to the first series of documents to which access was requested, that is to say  
         the list of traditional operators showing, for each operator, the quantity of bananas imported during the period 1994-1996
         and the respective provisional reference quantity, as well as the serial numbers of the licences used and extracts from the
         licences used relating thereto, the documents sought correspond to those which, under Articles 6(2) and 28(2) of Regulation No 2362/98, the Member States
         must draw up and notify to the Commission. They are, therefore, documents of which the authors are the Member States. 
         
         
         44
            
          Secondly, concerning the second series of documents sought, namely,  
         the lists, for 1998 and 1999, of all the operators registered in the Community showing, for each operator, the import licences
         applied for and the quantities actually imported, the Commission maintained in the proceedings before the Court that it had no such documents, since none of the Member States'
         documents provided the data in question with the degree of precision required by the applicant, in other words, making reference
         to each operator individually, and that, in any case, they are documents drawn up by the Member States. 
         
         
         45
            
          However, it is stated in the second paragraph of the Secretary-General's letter that  
         such data, which contain information relating to the reference quantities of the undertakings, to licence applications and
         to the quantities actually imported by each of them, were transmitted to the Commission in order to ensure compliance with
         the arrangements governing imports and particularly the detection or prevention of irregularities. Therefore, since the Commission did not deny in the contested decision the existence of the documents sought in paragraph
         2 of the applicant's application for access, it cannot validly claim at this stage of the proceedings that such documents
         do not exist. 
         
         
         46
            
          It is important to note that under Article 28(2)(a) of Regulation No 2362/98 the Member States were to send to the Commission
         the lists for 1999 of all the registered operators, with a statement of the provisional quantities individually applied for
         as well as, in accordance with Article 27(c) of that regulation, quarterly data for the total quantities of bananas imported
         by all the operators. As regards 1998, Article 4(4) and (5) and Article 21 of Regulation No 1442/93 required the Member States
         to notify to the Commission the lists of all the registered operators, as well as global data concerning the quantities under
         import licences issued and those relating to licences used, collected on a quarterly national basis, and by categories of
         operators. It is therefore clear that the second series of documents sought by the applicant also refers to documents drawn
         up by the Member States. 
         
         
         47
            
          So far as concerns the question of the collection of such national data in a single computer database ─ the existence of which
         the Commission admitted in relation to the first series of documents to which access was sought ─ it is important to note
         that, as is apparent from Articles 6 and 28 of Regulation No 2362/98 and from Article 4 of Regulation No 1442/93, the national
         authorities alone are responsible for establishing and correcting the reference quantities of each operator according to the
         adjustment coefficient fixed globally by the Commission, since the institution has no power itself to alter the national data
         notified (see, to that effect, Case T-160/98  
         Van Parys and Pacific Fruit Company v  
         Commission [2002] ECR II-233, paragraph 65). The Commission confines itself to collecting the data, for the simple purposes of facilitating
         the tasks of comparison and checking for double counting of the data, but without being able itself to effect alterations,
         corrections or other treatment, since the appropriate checks or corrections of that data must be requested of the national
         authorities. Therefore, the collection by the Commission of the data notified by the Member States in relation to the first
         series of documents sought ─ and, assuming it is established, in relation to the second series of documents sought ─ is not
         enough to deprive the Member States of their authorship of those documents for the purposes of Decision 94/90. Consequently,
         the Commission was entitled to decide that the authors of the documents for which the applicant sought access were exclusively
         the competent national authorities of the Member States. 
         
         
         48
            
          Consequently, the complaint concerning the authorship of the documents referred to in paragraphs 1 and 2 of the applicant's
         application for access must be rejected. 
         (b) Whether the authorship rule is to be strictly construed, with the result that it is not applicable to the documents upon
         which the Community decision-making process is based
         ─ Arguments of the parties
         
         
         49
            
          The applicant asserts that if the authors of the documents sought were considered to be the Member States, the authorship
         rule would not be applicable in this case, because it must be construed strictly and it cannot be relied on in the case of
         applications for access to the documents of third parties used by the Commission as the basis of the Community decision-making
         process. 
         
         
         50
            
          It points out, first of all, that the general principle of the Code of Conduct guarantees access to documents  
         held by the Commission and that its refusal to give access to the documents of third parties which it holds does not appear to
         be compatible with that principle. 
         
         
         51
            
          Next, according to settled case-law (Case T-105/95  
         WWF UK v  
         Commission [1997] ECR II-313 and Case T-188/97  
         Rothmans v  
         Commission [1999] ECR II-2463) all exceptions to or limitations of the right of access must be construed strictly in order to ensure
         observance of the principle of transparency of the decision-making process. In the light of that case-law, the Commission
         is under a duty to allow access to all the documents in its possession on which it has based its decision, especially where
         such documents are sought by operators whose interests may be harmed by a decision of the Commission. That is the case here,
         since the Commission has fixed the adjustment coefficient for the provisional quantities established by the Member States
         on the basis of the data they provided, which has affected the applicant by reducing its reference quantity. 
         
         
         52
            
          Consequently, a broad construction of the authorship rule, which would exclude that type of documents from the scope of the
         Code of Conduct, would be unlawful. 
         
         
         53
            
          Furthermore, whilst the Court of First Instance has accepted the lawfulness of the authorship rule, it has pointed out that
         it is precisely where its application may raise doubts as to the authorship of a document that it is important to construe
         it strictly (
         Interporc v  
         Commission, cited above, paragraph 70). That principle applies here, given that the documents in question are the result of close cooperation
         between the Commission and the Member States and that it is impossible to establish which is really the author. The applicant
         points out that, in that judgment, the Court of First Instance annulled the decision refusing access to the  
         internal records of the Commission, drawn up on the basis of data provided by the Member States in a context comparable to that of the banana
         sector. 
         
         
         54
            
          It is absurd, moreover, to suppose that the applicant could obtain the data to which it is entitled by applying to fifteen
         national administrations. It points out in the reply that it has applied to the Member States and at present has received
         practically nothing but refusal of access in various forms, usually based on technicalities or national rules on confidentiality.
         
         
         
         55
            
          Finally, it is apparent from the new Regulation No 1049/2001 adopted to implement Article 255 EC that the authorship rule
         cannot be relied on in order to refuse an application for documents used in the decision-making process even if their provenance
         is from third parties, since Article 2(3) provides for access for  
         all documents held by an institution, that is to say, documents drawn up or received by it and in its possession, in all areas
         of activity of the European Union. The applicant argues that even if the new regime does not apply immediately it may be invoked in this case to justify strict
         construction of the authorship rule, to the effect that the institutions must allow the widest access to the documents  
         drawn up or received by them in cases where they act as legislator in the widest sense. 
         
         
         56
            
          The Commission contends that it correctly construed the authorship rule in the contested decision and that the rule so applied
         is perfectly lawful in the context of the current Community legal order. 
         ─ Findings of the Court
         
         
         57
            
          It has been held that the authorship rule, which makes an exception to the right of access provided for in Decision 94/90,
         must be construed and applied strictly so as not to restrict that right of access (see, to that effect,  
         Rothmans v  
         Commission, cited above, paragraph 55, and Case T-191/99  
         Petrie and Others v  
         Commission [2001] ECR II-3677, paragraph 66). 
         
         
         58
            
          Nevertheless, the applicant's argument that since the authorship rule must be construed strictly it is not applicable to cases
         such as this one, where the documents sought are those on which the Commission's decision-making process was based, cannot
         be accepted. 
         
         
         59
            
          In the first place, it is appropriate to note that whilst the Code of Conduct laid down the general principle of access to
         documents it established, by means of the authorship rule, an absolute and unqualified exception for documents authored by
         a third party. 
         
         
         60
            
          Secondly, a construction such as that suggested by the applicant would deprive the authorship rule of any useful effect, because
         almost all third-party documents held by the Commission are the basis of, or connected with, its decision-making process.
         Therefore, since the Code of Conduct does not provide for any restriction on the application of that rule, it must be construed
         as meaning that it is fully applicable to every sort of third-party document to which access is sought, and it is not possible
         to have different levels of applicability according to whether such documents may affect the commercial player concerned or
         according to their use by the Commission in its decision-making process. 
         
         
         61
            
          Thirdly, it is important to make clear that the legal test invoked by the applicant, that of strict construction and application
         of the authorship rule, is necessary particularly when there are doubts as to the authorship of the document sought. As the
         Court of First Instance has pointed out, it is precisely where there is a doubt as to the authorship of a document that it
         is important to construe and apply the authorship rule strictly (
         Interporc v  
         Commission, cited above, paragraph 70, confirmed on appeal in Case C-41/00 P  
         Interporc v  
         Commission [2003] ECR I-2125).  However, as has been held above, in this case there are no doubts in that regard, since the Member States
         alone are the authors of the documents in question. That case-law cannot therefore be relied upon in this case. 
         
         
         62
            
          In addition, in relation to the applicant's argument that the Court of First Instance annulled, in  
         Interporc v  
         Commission, the decision refusing access to the internal records of the Commission in a context comparable to that of the banana sector,
         it is sufficient to point out that in that case the Court of First Instance annulled the Commission's decision refusing access
         to the internal records drawn up by DG VI on the basis of the statements of the Member and other States in so far as the documents
         in question were documents emanating exclusively from the Commission, for which it had invoked the exception based on protection
         of the public interest. In this case, the documents for which the applicant sought access are not, as has been held, internal
         records analysing national data or lists compiled by the Commission resulting from checking or correcting that data, but simply
         a collection of the basic documents drawn up and transmitted by the Member States. Since the two cases are not the same, therefore,
         the applicant cannot rely on  
         Interporc v  
         Commission. 
         
         
         63
            
          It follows that the strict construction advocated by the applicant under which the authorship rule is not applicable to third-party
         documents upon which the Community decision-making process is based cannot be upheld. 
         
         
         64
            
          For the sake of completeness, it is appropriate to note, with regard to the applicant's argument that it is impossible to
         gain access to the documents sought by applying to the Member States, that those difficulties are, as the Commission correctly
         maintains, irrelevant as regards the lawfulness of the decision in question. The position taken by the Member States on the
         information sought is a matter of domestic law and is governed by the restrictions laid down by the relevant national legislation,
         so that it cannot undermine the correct application by the Commission of the authorship rule laid down by the Community legislature.
         
         
         
         65
            
          Finally, the Court observes that the applicant's argument that Regulation No 1049/2001 can serve to justify a strict construction
         on the basis of which the rule would not apply in this case cannot be accepted either. Since that regulation entered into
         force on 3 June 2001 and applied only from 3 December 2001, it is clear that the contested decision, which was adopted on
         5 December 2000, had to comply only with the regime laid down by Decision 94/90. 
         
         
         66
            
          In those circumstances, since the Code of Conduct was the only relevant provision applying to this case at the date on which
         the Commission took the contested decision, it must be held that it did not act unlawfully in construing and applying the
         authorship rule in conformity with the legislation in force at the time of the facts. 
         
         
         67
            
          Therefore, the first plea in law, alleging infringement of the Code of Conduct adopted by Decision 94/90, must be rejected
         as unfounded. 
          The second plea in law, alleging misuse of powers
          Arguments of the parties
         
         
         68
            
          The applicant claims that access to the documents was refused for purposes other than those stated. 
         
         
         69
            
          In the first place, the inconsistent reasoning adopted by the Commission in its letters is a clear indication of misuse of
         powers. 
         
         
         70
            
          Secondly, with regard to the real purpose of the rejection, the applicant first of all claims that the Secretary-General's
         refusal, together with the invitation to apply to each Member State to obtain the list of Community operators, appear to disregard
         the power conferred on the Commission by the Council in relation to the management and monitoring of the Community market
         in bananas in order to evade any responsibility and pass it to others. By its refusal the Commission is also seeking to deprive
         the applicant of the opportunity to check the attribution and distribution of banana import licences as well as their actual
         use and, by the same token, the opportunity to scrutinise the decision-making process followed by the defendant. 
         
         
         71
            
          The Commission contends that this plea in law should be rejected as wholly unfounded. In particular, the sole purpose of the
         Secretary-General's letter was to reply to the applicant's application for reconsideration, and it in no way seeks to disregard
         the powers of the Commission with regard to the arrangements for banana imports. 
          Findings of the Court
         
         
         72
            
          According to settled case-law, a measure is vitiated by misuse of powers only if it appears on the basis of objective, relevant
         and consistent evidence to have been taken with the exclusive, or at least the main, purpose of achieving an end other than
         that stated or evading a procedure specifically prescribed by the Treaty for dealing with the circumstances of the case (Case
         C-285/94  
         Italy v  
         Commission [1997] ECR I-3519, paragraph 52, and Case T-143/89  
         Ferriere Nord v  
         Commission [1995] ECR II-917, paragraph 68). 
         
         
         73
            
          In this case, as regards the applicant's argument that the inconsistency between the two sets of reasoning relied on in order
         to refuse its application is a clear indication of the misuse of powers, the Court notes that, as has been previously declared,
         the system established by the Code of Conduct and put in place by Decision 94/90 makes refusal to grant access to documents
         subject to a procedure involving two applications, in which only the Secretary-General's confirmatory decision constitutes
         the institution's final statement of position. Therefore, any discrepancy in the reasoning stated by the Commission in the
         course of such a procedure cannot be regarded as an indication of misuse of powers since the review procedure conceived by
         that provision is intended precisely to enable the Secretary-General to reconsider the matter, without constraint from previous
         statements of position by the competent services. If the Secretary-General could not base his decision on reasoning different
         to that stated by the competent service, the procedure would, as the Commission correctly argues, lose all purpose. 
         
         
         74
            
          Furthermore, it must be noted that the applicant has adduced no evidence to show that, as it submits, the Commission's refusal
         pursued purposes other than those stated in the contested decision. 
         
         
         75
            
          Therefore, it must be held that the applicant has adduced no objective, relevant and consistent evidence to substantiate its
         allegation of misuse of powers by the Commission. 
         
         
         76
            
          Consequently, the second plea in law must be rejected and, therefore, so must the action as a whole. 
         
         Costs
         77
            
          Under Article 87(2) of the Rules of Procedure of the Court of First Instance, the unsuccessful party must be ordered to pay
         the costs if they have been applied for by the successful party.  Since the applicant has been unsuccessful, it must be ordered
         to pay its own costs together with those of the defendant, in accordance with the form of order sought by the latter. 
         
         On those grounds, 
         
         
         
            
            THE COURT OF FIRST INSTANCE (Fifth Chamber)
         
         
          hereby:  
         
            
            1.
             Dismisses the application for annulment of the decision contained in the letter from DG Agriculture of 31 July 2000 as inadmissible;
            
            
            
            2.
             Dismisses the rest of the action as unfounded; 
            
            
            3.
             Orders the applicant to bear its own costs, as well as those of the Commission. 
            
            
                  García-Valdecasas
               
               
                  Lindh 
               
               
                  Cooke 
               
            
                  
               
               
                  
               
               
                  
               
            
                  
               
               
                  
               
               
                  
               
            
                  
               
               
                  
               
               
                  
               
            
                  
               
               
                  
               
               
                  
               
            
            
            
            
            
            
            
            
         
         
          Delivered in open court in Luxembourg on 16 October 2003. 
         
         
         
         
                  H. Jung 
               
               
                  R. García-Valdecasas  
               
            
         
         
         
                  Registrar
               
               
                  President
               
            
         
            
         
      
          1 –
            
             Language of the case: Italian.