To

1
Tožba na nicnost / tožba zaradi molka organa

• Dr. Rajko Knez
• 29.4.2008

2
dve tožbi...

• ... ki spadata v skupino neposrednih tožb
• ... kjer je dostop (locus standi) posameznika do
  SPS in SES precej omejen
• ... ki imata naravo abstraktnega in posamicnega
  nadzora nad delovanjem institucij EU
• ... ki združujeta varstvo v javnem in zasebnem
  interesu
• ... kjer se je pokazalo, da sodno varstvo ES z
  razmahom pristojnosti po PES in vse vecjim
  obsegom pravil upravnega prava ne preprecuje vec
  denial of justice (déni de justice)

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230. clen - Tožba na nicnost

• The Court of Justice shall review the legality of
  acts adopted jointly by the European Parliament
  and the Council, of acts of the Council, of the
  Commission and of the ECB, other than
  recommendations and opinions, and of acts of the
  European Parliament intended to produce legal
  effects vis-a-vis third parties. AKTI (1)
• It shall for this purpose have jurisdiction in
  actions brought by a Member State, the European
  Parliament, the Council or the Commission on
  grounds of lack of competence, infringement of an
  essential procedural requirement, infringement of
  this Treaty or of any rule of law relating to its
  application, or misuse of powers. PRIVILEGRANI
  TOŽNIKI IN RAZLOGI (1)
• The Court of Justice shall have jurisdiction
  under the same conditions in actions brought by
  the Court of Auditors and by the ECB for the
  purpose of protecting their prerogatives.
  PRIVILEGRANI TOŽNIKI IN RAZLOGI (2)
• Any natural or legal person may, under the same
  conditions, institute proceedings against a
  decision addressed to that person or against a
  decision which, although in the form of a
  regulation or a decision addressed to another
  person, is of direct and individual concern to
  the former. NEPRIVILEGRANI TOŽNIKI IN AKTI (2)
• The proceedings provided for in this Article
  shall be instituted within two months of the
  publication of the measure, or of its
  notification to the plaintiff, or, in the absence
  thereof, of the day on which it came to the
  knowledge of the latter, as the case may be. ROK

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Article 232 Tožba zaradi molka organa

• Should the European Parliament, the Council or
  the Commission, in infringement of this Treaty,
  fail to act, the Member States and the other
  institutions of the Community may bring an action
  before the Court of Justice to have the
  infringement established. PRIVILEGIRANI TOŽNIKI
  IN RAZLOGI
• The action shall be admissible only if the
  institution concerned has first been called upon
  to act. If, within two months of being so called
  upon, the institution concerned has not defined
  its position, the action may be brought within a
  further period of two months. PROCESNI POGOJ
  (SLEDI LAHKO NICNOSTNA TOŽBA ZOPER STALIŠCE, ALI
  TOŽBA ZARADI MOLKA)
• Any natural or legal person may, under the
  conditions laid down in the preceding paragraphs,
  complain to the Court of Justice that an
  institution of the Community has failed to
  address to that person any act other than a
  recommendation or an opinion. NEPRIVELIGIRANI
  TOŽNIKI
• The Court of Justice shall have jurisdiction,
  under the same conditions, in actions or
  proceedings brought by the ECB in the areas
  falling within the latter's field of competence
  and in actions or proceedings brought against the
  latter. ECB IN NJENE PRAVICE

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Tožba na zakonitost / clen 230 PES

• Npr. Komisija ES za neko slovensko podjetje izda
  odlocbo, da je kršilo konkurencna pravila
  (zlorablja dominantni položaj z angleško
  klavzulo). Podjetje se ne strinja
• Ali danes /29.4.2008/ je objavljena Commission
  Regulation (EC) No 382/2008 of 21 April 2008 on
  rules of application for import and export
  licences in the beef and veal sector Kmetijska
  zbornica meni, da ne omogoca prostega pretoka
  blaga, ampak da ga nesorazmerno ovira z
  administrativnimi ukrepi.
• Kaj storiti?

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Clen 230 Tožba na nicnost

• Ratio 294/83, Les Verts, tocka 23...
• Pravna narava te tožbe
• Akti, ki se lahko izpodbijajo ... 22/70, ERTA
  case
• Razlogi za izpodbijanje ...kršitev PES (ali tudi
  PEU?), objektivne krš.
• Onus probandi ... na tožniku
• Stranke postopka in vprašanje locus standi
• Kolizija primerov Plaumann (25/62), Jego-Quere
  (T-177/01), Union Pequenos Agricultores (C-50/00
  P)
• Individualno in neposredno zadevanje ter pravni
  interes
• Je pomembna državna pripadnost?
• Rok za tožbo (prejemna teorija, 2 meseca)
• Ucinki sodbe (oblikovalna sodba, erga omnes, ex
  tunc, ab initio, ex nunc, ...)

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Akti, ki se lahko izpodbijajo

• vezanost na clen 249 PES
• in še... akti, ki proizvajajo pravne ucinke
• ... 22/70, ERTA
• an action for annulment must be ... available in
  the case of all measures adopted by the
  institutions. whatever their nature or form,
  which are intended to have legal effects...
• ... C-27/04, Kom. v Svetu EU
• ... tudi sklepi Sveta EU... ki nameravajo imeti
  zavezujoc ucinek
• ... C-57/95, Francija v. Kom
• tudi obvestilo (soft law), ce je po svoji vsebini
  mandatorne narave / vsebuje dolocbe z zavezujocim
  pravnim ucinkom

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legal effects... drugace

• T-377/00 Philip Morris International in drugi v.
  Kom.
• ... the commenecement of legal proceedings is not
  without legal effects ... ampak tožba vseeno ni
  bila dopustna.
• sploh akta ni bilo... samo dejanje tudi to se
  lahko šteje za akt

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Razlicnost obravnave tožnikov

• DC, EP, Svet EU, Kom... so skupina privilegiranih
  tožnikov
• ...abstraktni in konkretni nadzor
• Pravne in fizicne osebe pa so neprivilegirani
  tožniki (dalec od tega, da bi bila to ao
  popularis)
• to so kaže v aktih, ki jih lahko izpodbijajo in
• v pogojih
• zadevanje mora biti neposredno in posamicno
• slednje je razlicno pri gospodarskih in klasicnih
  postopkih
• dokazati je potrebno pravni interes
• pri privilegiranih tožnikih je to preasumtio
  iuris et de iure

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Pravne in fizicne osebe...

• ...lahko izpodbijajo
• odlocbe naslovljene nanje
• odlocbe, ki jih neposredno in posamicno zadevajo,
  ceprav so sprejete v obliki uredbe
• odlocbe, ki jih neposredno in posamicno zadevajo,
  ceprav so naslovljene na drugo osebo

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Vprašanje akta kdaj gre za odlocbo, kdaj za
uredbo?

• - THE ESSENTIAL CHARACTERISTICS OF A DECISION
  ARISE FROM THE LIMITATION OF THE PERSONS TO WHOM
  IT IS ADDRESSED, WHEREAS A REGULATION, BEING
  ESSENTIALLY OF A LEGISLATIVE NATURE, IS
  APPLICABLE NOT TO A LIMITED NUMBER OF PERSONS,
  DEFINED OR IDENTIFIABLE, BUT TO CATEGORIES OF
  PERSONS VIEWED ABSTRACTLY AND IN THEIR ENTIRETY.
  (Confederation17/62)
• - lahko pa gre za uredbo, pa je znotraj nje
  (skrita) odlocba (hybrid theory)

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• Bundle of individual decisions je lahko disguised
  decision
• Fruit Company zadeva 41-44/70
• A PROVISION OF A REGULATION CONCERNING A GROUP OF
  REQUESTS FOR IMPORT LICENCES AFTER THE TIME-LIMIT
  FOR SUBMISSION OF REQUESTS HAS EXPIRED, SO THAT
  NO OTHER REQUESTS CAN BE MADE, IS NOT IN THE
  NATURE OF A REGULATION IN THE SENSE OF THE SECOND
  PARAGRAPH OF ARTICLE 189 OF THE EEC TREATY BUT
  MUST BE REGARDED AS A CONGLOMERATION OF
  INDIVIDUAL DECISIONS, EACH OF WHICH IS SUCH AS TO
  BE OF INDIVIDUAL CONCERN, WITHIN THE MEANING OF
  THE SECOND PARAGRAPH OF ARTICLE 173 OF THE
  TREATY, TO THE PERSON OR PERSONS MAKING EACH
  REQUEST.
• - nekaj drugace v zadevi C-309/89, Codorníu

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Vprašanje neposrednega zadevanja procesna
predpostavka

• akt mora imeti neposredne pravne ucinke na
  tožnika
• implementacija akta lahko to prepreci
• ce ima država genuine discretion pri prenosu
  akta, neposrednega zadevanja ni, ce pa bo šlo le
  za purely automatic izvršitev, bo neposredno
  zadevanje podano
• npr. T-96/92, Nestlé/Perrier (odlocba o dovolitvi
  koncentracije ne zadeva neposredno predstavnike
  delavcev)

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Vprašanje posamicnega zadevanja (1)

• Gre za vprašanje, ali tožnika akt zadeva drugace
  od vseh drugih
• Plaumannova formula PERSONS OTHER THAN THOSE TO
  WHOM A DECISION IS ADDRESSED MAY ONLY CLAIM TO BE
  INDIVIDUALLY CONCERNED IF THAT DECISION AFFECTS
  THEM BY REASON OF CERTAIN ATTRIBUTES WHICH ARE
  PECULIAR TO THEM OR BY REASON OF CIRCUMSTANCES IN
  WHICH THEY ARE DIFFERENTIATED FROM ALL OTHER
  PERSONS AND BY VIRTUE OF THESE FACTORS
  DISTINGUISHES THEM INDIVIDUALLY JUST AS IN THE
  CASE OF THE PERSON ADDRESSED (Plaumann 25/62)

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Posamicno zadevanje (2)

• Plaumanova formula nudi splošno izhodišce
  tožnik mora dokazati, da ga odlocba zadeva tako,
  kot da bi bila naslovljena nanj.
• Obstaja pa tudi skupina posebnih primerov t.i.
  special cases
• 1- closed class (zaprt razred)
• skupina ljudi, ki jih akt zadeva v trenutku
  izdaje drugace kot vse druge ni pomembno, kako
  velika je ta skupina ljudi ali so imenovani ali
  ne (npr. 106/63, Töpfer, 11/82, Piraiki
  Patraiki).
• 2 - special rights (posebne pravice)
• znotraj akta tožnik izstopa kot oseba s posebnimi
  pravicami in akt zanj pomeni drugacne posledice
  kot za vse ostale (C-309/89, Codorniou)
• 3 - tožniki, ki so sodelovali v postopku
  sprejemanja akta
• za posebne, gospodarske zadeve, vendar zadeva
  T-60/96, Merck to omejuje

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So pa primeri...

• ... ko tudi vsi ti pristopi odpovedo
• npr. uredba ES, ki je država ne sme izvesti in ki
  poseže v pravice posameznikov, ki posamicnega
  zadevanja ne morejo dokazati
• Prvi primer neka pravica je odvzeta
• Unión de Pequeños Agricultores (C-50/00 P)
• drugega pravnega sredstva sploh ni
• Drugi primer naložena je nova obveznost
• Jégo Quéré (T-177/01)
• obstaja 234. clen (PO), a stranka je za njegovo
  uporabo prisiljena kršiti pravo
• poleg tega, PO je v domeni sodišca, ne strank

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• Jégo Quéré (T-177/01)
• 50 In those circumstances, and having regard to
  the fact that the EC Treaty established a
  complete system of legal remedies and procedures
  designed to permit the Community judicature to
  review the legality of measures adopted by the
  institutions.., the strict interpretation,
  applied until now, of the notion of a person
  individually concerned according to the fourth
  paragraph of Article 230 EC, must be
  reconsidered.

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51 In the light of the foregoing, and in order to
ensure effective judicial protection for
individuals, a natural or legal person is to be
regarded as individually concerned by a Community
measure of general application that concerns him
directly if the measure in question affects his
legal position, in a manner which is both
definite and immediate, by restricting his rights
or by imposing obligations on him. The number and
position of other persons who are likewise
affected by the measure, or who may be so, are of
no relevance in that regard.
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52 In the present case, obligations are indeed
imposed on Jégo-Quéré by the contested
provisions. The applicant, whose vessels are
covered by the scope of the regulation, carries
on fishing operations in one of the areas in
which, by virtue of the contested provisions,
such operations are subjected to detailed
obligations governing the mesh size of the nets
to be used. 53 It follows that the contested
provisions are of individual concern to the
applicant. ampak
20
C-50/00 P, Unión de Pequeños Agricultores
41 Thus it is for the Member States to establish
a system of legal remedies and procedures which
ensure respect for the right to effective
judicial protection. 42 In that context, in
accordance with the principle of sincere
cooperation laid down in Article 5 of the Treaty,
national courts are required, so far as possible,
to interpret and apply national procedural rules
governing the exercise of rights of action in a
way that enables natural and legal persons to
challenge before the courts the legality of any
decision or other national measure relative to
the application to them of a Community act of
general application, by pleading the invalidity
of such an act. !!!! 45 While it is,
admittedly, possible to envisage a system of
judicial review of the legality of Community
measures of general application different from
that established by the founding Treaty and never
amended as to its principles, it is for the
Member States, if necessary, in accordance with
Article 48 EU, to reform the system currently in
force.
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posledicno...

• ... Komisija se pritoži v zadevi Jégo-Quéré
  (C-263/02 P), SES ostro kritizira SPS in zavrne
  njegovo argumentacijo
• tocka 38
• Such an interpretation has the effect of
  removing all meaning from the requirement of
  individual concern set out in the fourth
  paragraph of Article 230 EC.

22
Ekskurz...

• ..., ki je vrnil pristop SES kot izhaja iz zadeve
  Plaumann posebni primeri
• ki pa je vseeno vplival na spremembo clena 230 po
  Lizbonski pogodbi
• ki je zahteval sklicevanje na EKCP
• ki je opozoril na legal certainty

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Po Lizbonski pogodbi Article 263 (ex Article
230 TEC)

• V prvem odstavku It shall also review the
  legality of acts of bodies, offices or agencies
  of the Union intended to produce legal effects
  vis-à-vis third parties.
• V tretjem odstavku The Court shall have
  jurisdiction under the same conditions in actions
  brought by the Court of Auditors, by the European
  Central Bank and by the Committee of the Regions
  for the purpose of protecting their prerogatives.
• V cetrtem odstavku Any natural or legal person
  may, under the conditions laid down in the first
  and second paragraphs, institute proceedings
  against an act addressed to that person or which
  is of direct and individual concern to them, and
  against a regulatory act which is of direct
  concern to them and does not entail implementing
  measures. Acts setting up bodies, offices and
  agencies of the Union may lay down specific
  conditions and arrangements concerning actions
  brought by natural or legal persons against acts
  of these bodies, offices or agencies intended to
  produce legal effects in relation to them.

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Po Lizbonski pogodbi Article 265 (ex Article
232 TEC)

• K prvem odstavku This Article shall apply, under
  the same conditions, to bodies, offices and
  agencies of the Union which fail to act.
• K drugem odstavku The action shall be admissible
  only if the institution, body, office or agency
  concerned has first been called upon to act. If,
  within two months of being so called upon, the
  institution, body, office or agency concerned has
  not defined its position, the action may be
  brought within a further period of two months.
• K tretjem odstavku Any natural or legal person
  may, under the conditions laid down in the
  preceding paragraphs, complain to the Court that
  an institution, body, office or agency of the
  Union has failed to address to that person any
  act other than a recommendation or an opinion.
• Cetrti odstavek je v celoti crtan.

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• Vpliv ozke razlage na domace postopke
• primer U-I-74/03
• Ustavno sodišce se je odlocilo pri razlagi
  dolocbe drugega odstavka 24. clena ZUstS dati nov
  pomen besedi "neposredno". Presojalo bo, ali
  izpodbijani zakonski dolocbi neposredno že
  posegata v pobudnicin pravni položaj ali ne. S
  tem spreminja Ustavno sodišce dosedanje stališce,
  na podlagi katerega je široko priznavalo pravni
  interes za izpodbijanje zakonske dolocbe že na
  podlagi tega, da je pobudnik izkazal uvedbo
  postopka, v katerem naj bi bili izpodbijani
  zakonski dolocbi uporabljeni. V primerih, v
  katerih lahko pobudnik namen, ki ga zasleduje s
  pobudo, zavaruje v posamicnem postopku pred
  pristojnim sodišcem in nato z ustavno pritožbo
  pred Ustavnim sodišcem, ne izkazuje pravnega
  interesa za vložitev pobude.