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Language of document : ECLI:EU:T:2014:946

Judgment of the General Court (Seventh Chamber) of 13 November 2014 —
Hamcho and Hamcho International v Council

(Case T‑43/12)

Common foreign and security policy — Restrictive measures adopted against Syria — Freezing of funds — Action for annulment — Period for bringing proceedings — Partial inadmissibility — Locus standi — Burden of proof — Adjustment of temporal effects of annulment

1. Actions for annulment — Time-limit — Point from which time starts to run — Measure entailing restrictive measures against a person or body — Measure published and notified to the addressees — Date of notification of the measure — Notification to the person concerned by means of a publication in the Official Journal of the European Union — Lawfulness — Conditions — Council unable to effect notification (Art. 263, sixth para., TFEU; Rules of Procedure of the General Court, Art. 102(1) and (2); Council Decisions 2011/273/CFSP, 2011/302/CFSP, 2011/367/CFSP and 2011/782/CFSP; Council Regulations No 442/2011, No 504/2011 and No 611/2011) (see paras 43-45, 52-55)

2. Judicial proceedings — Time-limit for instituting proceedings — Claim barred by lapse of time — Unforeseeable circumstances or force majeure (Art. 263, sixth para., TFEU; Statute of the Court of Justice, Art. 45, second para.) (see para. 54)

3. Actions for annulment — Interest in bringing proceedings — Definition — Need for an actual and current interest — Action capable of securing a benefit for the applicant — Interest having to subsist until the delivery of the court decision — Act repealing and replacing the contested measure during the proceedings — Applicant’s interest in bringing proceedings not demonstrated — No need to adjudicate (Art. 263, fourth para., TFEU; Council Decisions 2011/782/CFSP, 2012/172/CFSP, 2012/739/CFSP and 2013/185/CFSP) (see paras 58-61, 69-74)

4. Actions for annulment — Actionable measures — Concept — Measures producing binding legal effects — Informal act — Included — Letter from an EU institution — Purely informative measure — Not included (Art. 263 TFEU) (see paras 75-78)

5. Judicial proceedings — Producing evidence — Time-limit — Evidence lodged out of time — Conditions (Rules of Procedure of the General Court, Arts 44(1), and 48(1)) (see para. 91)

6. European Union — Judicial review of the legality of the acts of the institutions — Restrictive measures against Syria — Ambit of the review (Charter of Fundamental Rights of the European Union, Art. 47; Council Decision 2013/255/CFSP; Council Regulations No 36/2012, No 266/2012 and No 363/2013) (see paras 95, 96, 100, 101)

7. Actions for annulment — Judgment annulling a measure — Effects — Limitation by the Court — Restrictive measures against certain persons and entities in view of the situation in Syria — Risk of serious and irreversible undermining being caused to the effectiveness of any asset-freezing likely to be, in future, decided by the Council against the persons concerned by the annulled measure — Maintenance of the effects of the annulled decisions and regulations until expiry of the time-limit for an appeal or the dismissal thereof (Arts 264, second para., TFEU and 266 TFEU; Statute of the Court of Justice, Arts 56, first para., and 60, second para.; Council Decision 2013/255/CFSP; Council Regulation No 36/2012, No 266/2012 and No 363/2013) (see paras 103-109)

Re:

APPLICATION for annulment of Council Decision 2011/273/CFSP of 9 May 2011 concerning restrictive measures against Syria (OJ 2011 L 121, p. 11), Council Regulation (EU) No 442/2011 of 9 May 2011 concerning restrictive measures in view of the situation in Syria (OJ 2011 L 121, p. 1), Council Implementing Decision 2011/302/CFSP of 23 May 2011 implementing Decision 2011/273 (OJ 2011 L 136, p. 91), Council Implementing Regulation (EU) No 504/2011 of 23 May 2011 implementing Regulation No 442/2011 (OJ 2011 L 136, p. 45), Council Implementing Decision 2011/367/CFSP of 23 June 2011 implementing Decision 2011/273 (OJ 2011 L 164, p. 14), Council Implementing Regulation (EU) No 611/2011 of 23 June 2011 implementing Regulation No 442/2011 (OJ 2011 L 164, p. 1), Council Implementing Decision 2011/488/CFSP of 1 August 2011 implementing Decision 2011/273 (OJ L 199, p. 74), Council Implementing Regulation (EU) No 755/2011 of 1 August 2011 implementing Regulation No 442/2011 (OJ 2011 L 199, p. 33), Council Implementing Decision 2011/515/CFSP of 23 August 2011 implementing Decision 2011/273 (OJ L 218, p. 20), Council Implementing Regulation (EU) No 843/2011 of 23 August 2011 implementing Regulation No 442/2011 (OJ 2011 L 218, p. 1), Council Decision 2011/522/CFSP of 2 September 2011 amending Decision 2011/273 (OJ 2011 L 228, p. 16), Council Regulation (EU) No 878/2011 of 2 September 2011 amending Regulation No 442/2011 (OJ 2011 L 228, p. 1), Council Decision 2011/628/CFSP of 23 September 2011 amending Decision 2011/273 (OJ 2011 L 247, p. 17), Council Regulation (EU) No 950/2011 of 23 September 2011 amending Regulation No 442/2011 (OJ 2011 L 247, p. 3), Council Decision 2011/684/CFSP of 13 October 2011 amending Decision 2011/273 (OJ 2011 L 269, p. 33), Council Regulation (EU) No 1011/2011 of 13 October 2011 amending Regulation No 442/2011 (OJ 2011 L 269, p. 18), Council Decision 2011/735/CFSP of 14 November 2011 amending Decision 2011/273 (OJ 2011 L 296, p. 53), Council Implementing Decision 2011/736/CFSP of 14 November 2011 implementing Decision 2011/273 (OJ 2011 L 296, p. 55), Council Regulation (EU) No 1150/2011 of 14 November 2011 amending Regulation No 442/2011 (OJ 2011 L 296, p. 1), Council Implementing Regulation (EU) No 1151/2011 of 14 November 2011 implementing Regulation No 442/2011 (OJ 2011 L 296, p. 3), Council Decision 2011/782/CFSP of 1 December 2011 concerning restrictive measures against Syria and repealing Decision 2011/273 (OJ 2011 L 319, p. 56), Council Implementing Regulation (EU) No 1244/2011 of 1 December 2011 implementing Regulation No 442/2011 (OJ 2011 L 319, p. 8), Council Regulation (EU) No 36/2012 of 18 January 2012 concerning restrictive measures in view of the situation in Syria and repealing Regulation No 442/2011 (OJ 2012 L 16, p. 1), Council Implementing Decision 2012/37/CFSP of 23 January 2012 implementing Decision 2011/782 (OJ 2012 L 19, p. 33), Council Implementing Regulation (EU) No 55/2012 of 23 January 2012 implementing Article 33(1) of Regulation No 36/2012 (OJ 2012 L 19, p. 6), Council Implementing Decision 2012/172/CFSP of 23 March 2012 implementing Decision 2011/782 (OJ 2012 L 87, p. 103), Council Implementing Regulation (EU) No 266/2012 of 23 March 2012 implementing Article 32(1) of Regulation No 36/2012 (OJ 2012 L 87, p. 45) Council Decision 2012/206/CFSP of 23 April 2012 amending Decision 2011/782 (OJ 2012 L 110, p. 36), Council Implementing Decision 2012/256/CFSP of 14 May 2012 implementing Decision 2011/782 (OJ 2012 L 126, p. 9), Council Implementing Regulation (EU) No 410/2012 of 14 May 2012 implementing Article 32(1) of Regulation No 36/2012 (OJ 2012 L 126, p. 3), Council Regulation (EU) No 509/2012 of 15 June 2012 amending Regulation No 36/2012 (OJ 2012 L 156, p. 10), Council Decision 2012/322/CFSP of 20 June 2012 amending Decision 2011/782 (OJ 2012 L 165, p. 45), Council Implementing Decision 2012/335/CFSP of 25 June 2012 implementing Decision 2011/782 (OJ 2012 L 165, p. 80), Council Implementing Regulation (EU) No 544/2012 of 25 June 2012 implementing Article 32(1) of Regulation No 36/2012 (OJ 2012 L 165, p. 20), Council Regulation (EU) No 545/2012 of 25 June 2012 amending Regulation No 36/2012 (OJ 2012 L 165, p. 23), Council Decision 2012/420/CFSP of 23 July 2012 amending Decision 2011/782 (OJ 2012 L 196, p. 59), Council Implementing Decision 2012/424/CFSP of 23 July 2012 implementing Decision 2011/782 (OJ 2012 L 196, p. 81), Council Implementing Regulation (EU) No 673/2012 of 23 July 2012 implementing Article 32(1) of Regulation No 36/2012 (OJ 2012 L 196, p. 8), Council Decision 2012/739/CFSP of 29 November 2012 concerning restrictive measures against Syria and repealing Decision 2011/782 (OJ 2012 L 330, p. 21), Council Implementing Decision 2013/185/CFSP of 22 April 2013 implementing Decision 2012/739 (OJ 2013 L 111, p. 77), Council Implementing Regulation (EU) No 363/2013 of 22 April 2013 implementing Regulation No 36/2012 (OJ 2013 L 111, p. 1), and Council Decision 2013/255/CFSP of 31 May 2013 concerning restrictive measures against Syria (OJ 2013 L 147, p. 14), in so far as those acts concern the applicants.

Operative part

The Court:

Dismisses the action as being inadmissible, because out of time, in so far as it seeks the annulment of Council Implementing Decision 2011/302/CFSP of 23 May 2011 implementing Decision 2011/273/CFSP concerning restrictive measures against Syria, Council Implementing Decision 2011/367/CFSP of 23 June 2011 implementing Decision 2011/273/CFSP concerning restrictive measures against Syria, Council Implementing Regulation (EU) No 504/2011 of 23 May 2011 implementing Regulation (EU) No 442/2011 concerning restrictive measures in view of the situation in Syria, and Council Implementing Regulation (EU) No 611/2011 of 23 June 2011 implementing Regulation (EU) No 442/2011 concerning restrictive measures in view of the situation in Syria;

Dismisses the action as being inadmissible in so far as it seeks the annulment of Council Decision 2011/273/CFSP of 9 May 2011 concerning restrictive measures against Syria, Council Regulation (EU) No 442/2011 of 9 May 2011 concerning restrictive measures in view of the situation in Syria, Council Implementing Decision 2011/488/CFSP of 1 August 2011 implementing Decision 2011/273, Council Implementing Regulation (EU) No 755/2011 of 1 August 2011 implementing Regulation No 442/2011, Council Implementing Decision 2011/515/CFSP of 23 August 2011 implementing Decision 2011/273, Council Implementing Regulation (EU) No 843/2011 of 23 August 2011 implementing Regulation No 442/2011, Council Decision 2011/522/CFSP of 2 September 2011 amending Decision 2011/273, Council Regulation (EU) No 878/2011 of 2 September 2011 amending Regulation No 442/2011, Council Decision 2011/628/CFSP of 23 September 2011 amending Decision 2011/273, Council Regulation (EU) No 950/2011 of 23 September 2011 amending Regulation No 442/2011, Council Decision 2011/684/CFSP of 13 October 2011 amending Decision 2011/273, Council Regulation (EU) No 1011/2011 of 13 October 2011 amending Regulation No 442/2011, Council Decision 2011/735/CFSP of 14 November 2011 amending Decision 2011/273, Council Implementing Decision 2011/736/CFSP of 14 November 2011 implementing Decision 2011/273, Council Regulation (EU) No 1150/2011 of 14 November 2011 amending Regulation No 442/2011, Council Implementing Regulation (EU) No 1151/2011 of 14 November 2011 implementing Regulation No 442/2011, Council Implementing Regulation (EU) No 1244/2011 of 1 December 2011 implementing Regulation No 442/2011, Council Implementing Decision 2012/37/CFSP of 23 January 2012 implementing Decision 2011/782/CFSP concerning restrictive measures against Syria, Council Implementing Regulation (EU) No 55/2012 of 23 January 2012 implementing Article 33(1) of Regulation (EU) No 36/2012 concerning restrictive measures in view of the situation in Syria, Council Decision 2012/206/CFSP of 23 April 2012 amending Decision 2011/782/CFSP concerning restrictive measures against Syria, Council Implementing Decision 2012/256/CFSP of 14 May 2012 implementing Decision 2011/782/CFSP concerning restrictive measures against Syria, Council Implementing Regulation (EU) No 410/2012 of 14 May 2012 implementing Article 32(1) of Regulation (EU) No 36/2012 concerning restrictive measures in view of the situation in Syria, Council Regulation (EU) No 509/2012 of 15 June 2012 amending Regulation (EU) No 36/2012 concerning restrictive measures in view of the situation in Syria, Council Decision 2012/322/CFSP of 20 June 2012 amending Decision 2011/782/CFSP concerning restrictive measures against Syria, Council Implementing Decision 2012/335/CFSP of 25 June 2012 implementing Decision 2011/782/CFSP concerning restrictive measures against Syria, Council Implementing Regulation (EU) No 544/2012 of 25 June 2012 implementing Article 32(1) of Regulation (EU) No 36/2012 concerning restrictive measures in view of the situation in Syria, Council Regulation (EU) No 545/2012 of 25 June 2012 amending Regulation (EU) No 36/2012 concerning restrictive measures in view of the situation in Syria, Council Decision 2012/420/CFSP of 23 July 2012 amending Decision 2011/782/CFSP concerning restrictive measures against Syria, Council Implementing Decision 2012/424/CFSP of 23 July 2012 implementing Decision 2011/782/CFSP concerning restrictive measures against Syria and Council Implementing Regulation (EU) No 673/2012 of 23 July 2012 implementing Article 32(1) of Regulation (EU) No 36/2012 concerning restrictive measures in view of the situation in Syria, since those acts do not concern Mr Hamcho and Hamcho International;

Dismisses the action as being inadmissible in so far as it is directed against the letter of the Council of the European Union dated 21 December 2011 sent to Mr Hamcho and Hamcho International;

Declares that there is no need to adjudicate on the action in so far as it seeks the annulment of Council Decision 2011/782/CFSP of 1 December 2011 concerning restrictive measures against Syria and repealing Decision 2011/273, Council Implementing Decision 2012/172/CFSP of 23 March 2012 implementing Decision 2011/782, Council Decision 2012/739/CFSP of 29 November 2012 concerning restrictive measures against Syria and repealing Decision 2011/782, and Council Implementing Decision 2013/185/CFSP of 22 April 2013 implementing Decision 2012/739, since those acts have been repealed and replaced;

Annuls, in so far as the following acts concern Mr Hamcho and Hamcho International:

– Council Regulation (EU) No 36/2012 of 18 January 2012 concerning restrictive measures in view of the situation in Syria and repealing Regulation No 442/2011;

– Council Implementing Regulation (EU) No 266/2012 of 23 March 2012 implementing Article 32(1) of Regulation No 36/2012;

– Council Implementing Regulation (EU) No 363/2013 of 22 April 2013 implementing Regulation No 36/2012;

– Council Decision 2013/255/CFSP of 31 May 2013 concerning restrictive measures against Syria;

Orders the effects of the annulled decisions and regulations to be maintained with respect to Mr Hamcho and Hamcho International, until the date of expiry of the period for bringing an appeal or, if an appeal is brought within that period, until any dismissal of that appeal;

Orders the Council to bear its own costs and to pay one third of the costs incurred by Mr Hamcho and by Hamcho International;

Orders Mr Hamcho and Hamcho International to bear two thirds of their own costs.