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You are here: BAILII >> Databases >> European Court of Human Rights >> MATEESCU v. ROMANIA - 1944/10 - Chamber Judgment [2014] ECHR 37 (14 January 2014) URL: http://www.bailii.org/eu/cases/ECHR/2014/37.html Cite as: [2014] ECHR 37 |
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THIRD SECTION
CASE OF MATEESCU v. ROMANIA
(Application no. 1944/10)
JUDGMENT
STRASBOURG
14 January 2014
This judgment will become final in the circumstances set out in Article 44 § 2 of the Convention. It may be subject to editorial revision.
In the case of Mateescu v. Romania,
The European Court of Human Rights (Third Section), sitting as a Chamber composed of:
Josep Casadevall, President,
Alvina Gyulumyan,
Corneliu Bîrsan,
Luis López Guerra,
Nona Tsotsoria,
Johannes Silvis,
Valeriu Griţco, judges,
and Santiago Quesada, Section Registrar,
Having deliberated in private on 10 December 2013,
Delivers the following judgment, which was adopted on that date:
PROCEDURE
THE FACTS
I. THE CIRCUMSTANCES OF THE CASE
On 20 March 2008, applying section 14 (b) and section 53 (2) (e) of Law no. 51/1995, the Bucharest Bar rejected the applicant’s request. In its decision the Bar held:
“the applicant’s request to practise simultaneously as a lawyer and as a doctor is dismissed, and the applicant must consequently opt for one of the two professions.”
On 18 June 2008 the National Bar Association upheld the Bucharest Bar’s decision, this time on the basis of section 15 of Law no. 51/1995, which enumerated “exhaustively” the professions that were compatible with the profession of lawyer (see “Relevant domestic law” below). As the practice of medicine was not specified among those professions, the applicant’s request was dismissed.
In its reply to the applicant’s submissions, the respondent argued, firstly, that the combined interpretation of sections 14 and 15 of the Law led to the conclusion that no other profession could be practised in parallel with that of a lawyer, except for those restrictively enumerated under section 15; furthermore, the practice of two liberal professions at the same time was not permitted by the law, nor was it desirable, in view of the fact that each liberal profession required 100% dedication on the part of the person practising it.
Furthermore, the prohibition on practising as a lawyer while also practising as a doctor was not included in the text of section 14 (b) of Law no. 51/1995, which referred only to professions that infringed the dignity and the independence of the legal profession or were contra bonos mores.
The court further held that section 15 of the Law did not contain an exhaustive list of the professions compatible with the profession of lawyer, in spite of the National Bar Association’s interpretation of that provision to the effect that if the medical profession was not included in the text among the compatible professions, this meant, by converse implication, that it was not compatible with the profession of lawyer. The incompatible professions were enumerated exhaustively in section 14, and the profession of doctor was not among them.
The assertion that practising a liberal profession required total dedication and implicitly a lot of time on the part of the practitioner could not be taken into consideration for the assessment of the lawfulness of the decisions taken by the local and national Bars; not having enough time to devote to clients’ cases had nothing to do with the independence of the legal profession. The court thus confirmed the applicant’s right to practise both professions simultaneously, annulling the Bars’ decisions.
II. RELEVANT DOMESTIC LAW AND PRACTICE
16. The applicable domestic legislation is presented below.
1. The Romanian Constitution
The relevant provisions of the Romanian Constitution read as follows:
Article 41
“(1) The right to work shall not be restricted. Everyone has the free choice of his or her profession, trade or occupation, and workplace.”
Article 53
“(1) The exercise of certain rights or freedoms may only be restricted by law, and only if necessary, as the case may be, for: the defence of national security, of public order, health or morals, or of citizens’ rights and freedoms; the conduct of a criminal investigation; or prevention of the consequences of a natural calamity, disaster or extremely severe catastrophe.
(2) Such restriction shall be ordered only if necessary in a democratic society. The measure shall be proportionate to the situation that caused it, shall apply without discrimination, and shall not impair the existence of such right or freedom.”
2. Law no. 51/1995 regulating the legal profession
The relevant provisions of Law no. 51/1995 read as follows:
Section 11
“(1) A person who meets the following conditions may be a member of a Bar in Romania:
(a) he or she is a Romanian citizen and a holder of civil and political rights;
(b) he or she is a law faculty graduate or a doctor of law (Ph.D.);
(c) he or she is not in one of the categories of ineligibility specified by this Law;
(d) he or she is medically fit to practise as a lawyer.
(2) Compliance with the condition in point (d) of subsection (1) above shall be proved by means of a medical certificate attesting that the person is in good health, issued on the basis of findings by a medical board constituted under the terms specified in the Rules governing the legal profession.”
Section 14
“Practising the profession of lawyer shall be incompatible with:
(a) a salaried activity within a profession other than the legal profession;
(b) occupations affecting the dignity and independence of the legal profession or good morals;
(c) direct involvement in trading activities.”
Section 15
“Practising the profession of lawyer shall be compatible with:
(a) the position of member of parliament or senator, or member of a local or county council;
(b) teaching activities, and offices in higher legal education;
(c) literary and publishing activities;
(d) the function of arbitrator, mediator, conciliator or negotiator, tax adviser, adviser on intellectual property, adviser on industrial property, licensed translator, administrator or liquidator in procedures of judicial reorganisation or liquidation, in accordance with the law.”
Section 16
“(1) Admission to the profession shall be obtained on the basis of an examination organised by the Bar, under the provisions of this Law and the Rules governing the profession. (...)”
Section 17
“(...)
(2) The conditions for completing the traineeship and the rights and obligations of lawyers on probation, and of supervising lawyers and the Bar towards them, shall be regulated by the Rules governing the profession.
(3) The training term shall be suspended if the lawyer performs military service or is conscripted, if he or she is absent from the profession for good reasons, or if the professional guidance is terminated through no fault of the lawyer on probation. The training already completed shall be taken into consideration when calculating the completion of the term.
(4) After the training term is completed, the lawyer on probation shall take the examination to become a permanent lawyer.”
Section 53
“(1) A Bar Council shall be composed of five to fifteen members, elected for a four-year term of office. The President and Vice-President of the Bar shall be included in that number.
(2) The powers of the Bar Council shall be as follows:
(...)
(e) to check and establish that the lawful requirements have been met as regards applications for admission to the profession, and to approve admission to the profession on the basis of an examination or an exemption from the examination; (...)”
Section 63
“The Council of National Bar Associations shall have the following powers:
(...)
(o) it shall check, at the request of the persons concerned, that the decisions of the Bar Councils on admission to the profession are lawful and based on good grounds;
(p) it shall annul decisions by the Bar on grounds of unlawfulness, and settle complaints and legal disputes brought against decisions adopted by Bar Councils, in the circumstances specified by law and the Rules governing the profession; (...)”
3. Rules governing the Legal Profession
The relevant parts of the Rules governing the Legal Profession read as follows:
Rule 28
“In order to be registered and to practise this profession, the lawyer must not be in one of the situations of incompatibility referred to in the law.”
Rule 30
“(1) The following are incompatible with the practice of the profession of lawyer, unless declared otherwise by a lex specialis:
(a) personal trading activities, performed with or without a licence;
(b) the status of associate in private companies such as a general partnership (societate în nume colectiv), a limited partnership or a partnership limited with shares (societate comercială în comandită simplă sau în comandită pe acțiuni).
(c) the status of manager of a limited partnership with shares private company (societate în comandită pe acțiuni);
(d) the status of CEO, sole manager or member of the board of directors of a private company such as limited liability or a joint-stock company (societate comercială cu răspundere limitată sau pe acțiuni).
(2) The lawyer may be an associate or partner in a limited liability or a joint- stock private company (societate comercială cu răspundere limitată sau pe acțiuni)
(3) The lawyer may be a member of the Board of a limited liability or a joint-stock private company, on condition that he/she brings this information to the Dean of the Bar [...]
THE LAW
I. ALLEGED VIOLATION OF ARTICLE 8 OF THE CONVENTION
As the Court is master of the characterisation to be given in law to the facts of the case, it does not consider itself bound by the characterisation given by the parties. A complaint is characterised by the facts alleged in it and not merely by the legal grounds or arguments relied on (see Powell and Rayner v. the United Kingdom, 21 February 1990, § 29, Series A no. 172). Therefore, in the present case the Court considers that the applicant’s complaints are to be examined under Article 8 of the Convention which reads as follows:
“1. Everyone has the right to respect for his private and family life, his home and his correspondence.
2. There shall be no interference by a public authority with the exercise of this right except such as is in accordance with the law and is necessary in a democratic society in the interests of national security, public safety or the economic well-being of the country, for the prevention of disorder or crime, for the protection of health or morals, or for the protection of the rights and freedoms of others.”
A. Admissibility
The Court has further held that restrictions on registration as a member of certain professions (for instance, lawyer or notary) which could to a certain degree affect the applicant’s ability to develop relationships with the outside world undoubtedly fall within the sphere of his or her private life (see Campagnano v. Italy, no. 77955/01, § 54, ECHR 2006-IV). In its more recent case of Bigaeva v. Greece, cited above, the Court held that Article 8 can also cover employment, including the right of access to a profession, namely that of lawyer (§ 24).
In view of the above, the Court considers that the impugned measure impaired the applicant’s chances of carrying on the profession of lawyer, and thus had particular repercussions on his enjoyment of his right to respect for his private life (see again Bigaeva, cited above, § 25) which attracted the applicability of Article 8 of the Convention.
B. Merits
1. The parties’ submissions
He further contended that the legal provisions relevant to his situation did not support the High Court’s decision to refuse his registration as a lawyer. At the same time, the applicant considered that in so far as the Health Law Act did not refer to any incompatibility between the medical and legal professions, symmetrically, the law on the legal profession could not be interpreted as including such an incompatibility either.
No arguments were put forward to prove that were he to practise both professions at the same time, the dignity and the independence of either would be affected in any way. On the contrary, he alleged that his expertise as a medical practitioner would effectively complement his career as a lawyer specialised in malpractice cases. He further submitted a document from the National Health Insurance, attesting that a doctor was not an employee of the House, the contract between the House and the medical practice being one of provision of medical care.
The Government further contended that the High Court’s interpretation of the relevant texts was predictable and reasonable, in accordance with the principle exceptio strictissimae interpretationis est.
The Government underlined that the corresponding legislation in certain countries generally excluded the concurrent exercise of a different profession with that of a lawyer.
2. The Court’s assessment
In view of the above, the Court considers that the authorities’ decision to condition the applicant’s practising as a lawyer on his giving up his medical career, when he had already been accepted in the Bar after passing the admission exam, constitutes an interference with his right to respect for his private life.
While section 15 establishes cases of compatibility with some precision, section 14 defines cases of incompatibility in more general terms, referring to “occupations affecting the dignity and independence of the profession or good morals”. This section does not refer at all to medical practice as included in those occupations, nor gives any indication thereof; moreover, the Romanian court did not reasonably establish why the dignity and independence of the lawyer would be affected by the exercise of the medical profession.
The Court further observes that the domestic authorities’ views on which text was relevant, and on its implication for the applicant’s request, diverged; in fact, the courts applied the same legal texts in a contrasting manner, reaching totally opposite conclusions.
It considers that in such circumstances, it is unlikely that the applicant could reasonably have foreseen that - in spite of the fact that he was admitted to the Bar and registered as a trainee lawyer, and that the law governing the legal profession did not explicitly mention that the practice of medicine was incompatible with the profession of lawyer, together with the general principle according to which everything which is not forbidden is allowed - he would, in the end, not be allowed to practise as a doctor and also as a lawyer.
There has accordingly been a violation of Article 8 of the Convention.
II. OTHER ALLEGED VIOLATIONS OF THE CONVENTION
It follows that this part of the application must be rejected as being manifestly ill-founded, pursuant to Article 35 §§ 3 (a) and 4 of the Convention.
III. APPLICATION OF ARTICLE 41 OF THE CONVENTION
“If the Court finds that there has been a violation of the Convention or the Protocols thereto, and if the internal law of the High Contracting Party concerned allows only partial reparation to be made, the Court shall, if necessary, afford just satisfaction to the injured party.”
A. Damage
Relying on the fact that the ban imposed on him affected both his professional and his personal life and subjected him to considerable humiliation, the applicant requested EUR 1 in respect of non-pecuniary damage.
They further maintained that a finding of a violation should constitute sufficient compensation in the present case.
Having regard to the nature of the violation found, the Court considers that this must have caused the first applicant frustration which cannot be compensated solely by the finding of a violation. The Court, taking into account the principle ne ultra petita, awards the applicant EUR 1 in respect of non-pecuniary damage.
B. Costs and expenses
C. Default interest
FOR THESE REASONS, THE COURT, UNANIMOUSLY,
1. Declares the complaint concerning the applicant’s right to practise as a lawyer admissible and the remainder of the application inadmissible;
2. Holds that there has been a violation of Article 8 of the Convention;
3. Holds
(a) that the respondent State is to pay the applicant, within three months from the date on which the judgment becomes final in accordance with Article 44 § 2 of the Convention, the following amounts, to be converted into the respondent State’s national currency at the rate applicable at the date of settlement:
(i) EUR 1 (one euro), plus any tax that may be chargeable, in respect of non-pecuniary damage;
(ii) EUR 2,000 (two thousand euros), plus any tax that may be chargeable to the applicant, in respect of costs and expenses;
(b) that from the expiry of the above-mentioned three months until settlement simple interest shall be payable on the above amounts at a rate equal to the marginal lending rate of the European Central Bank during the default period plus three percentage points;
4. Dismisses the remainder of the applicant’s claim for just satisfaction.
Done in English, and notified in writing on 14 January 2014, pursuant to Rule 77 §§ 2 and 3 of the Rules of Court.
Santiago Quesada Josep
Casadevall
Registrar President