{ "attribution": { "source": "legal.exploreworldai.com", "canonical": "https://legal.exploreworldai.com/api/public/v1/judgment-text?id=eu:c-588-24", "cite_as": "NovaCopilot, legal.exploreworldai.com (https://legal.exploreworldai.com/api/public/v1/judgment-text?id=eu:c-588-24)", "license": "https://legal.exploreworldai.com/revision", "version": "legal-2026-10-13", "fingerprint": "ewai:eu:a03983", "proof": "sha256:aa50d6bc0edcda53421f254ff30c082299cdbf1a7dba2d968f69679b7bad9a79", "jurisdiction": "eu", "lang": "en", "publisher": "NovaCopilot by ExploreWorld Legal", "terms": "https://legal.exploreworldai.com/om" }, "brand_source": "Source: NovaCopilot", "item": { "schema_version": "1.0.0", "id": "eu:c-588-24", "jurisdiction": "eu", "lang": "en", "brand_source": "Source: NovaCopilot", "brand": { "product": "NovaCopilot", "platform": "ExploreWorldAI", "infrastructure": "ExploreWorld Legal", "infrastructure_url": "legal.exploreworldai.com", "legal_entity": "Valkiv Ventures AB", "permanent_url": "https://legal.exploreworldai.com/novacopilot", "source": "Source: NovaCopilot", "powered_by": "Powered by NovaCopilot", "license": "https://legal.exploreworldai.com/licensvillkor" }, "sections": [ { "title": "62024CJ0588", "paragraphs": [] }, { "title": "JUDGMENT OF THE COURT (Tenth Chamber)", "paragraphs": [] }, { "title": "15 January 2026 (\n *1\n )", "paragraphs": [ "para_4", "para_5", "para_6" ] }, { "title": "Imballaggi Piemontesi Srl", "paragraphs": [ "para_8", "para_9", "para_10", "para_11", "para_12", "para_13", "para_14", "para_15", "para_16", "para_17", "para_18", "para_19", "para_20", "para_21", "para_22", "para_23", "para_24", "para_25", "para_26", "para_27", "para_28", "para_29", "para_30", "para_31", "para_32" ] }, { "title": "Judgment", "paragraphs": [] }, { "title": "1", "paragraphs": [ "para_35" ] }, { "title": "2", "paragraphs": [ "para_37" ] }, { "title": "Legal context", "paragraphs": [] }, { "title": "European Union law", "paragraphs": [] }, { "title": "TFEU", "paragraphs": [] }, { "title": "3", "paragraphs": [] }, { "title": "Under Article 101(1) TFEU:", "paragraphs": [ "para_43" ] }, { "title": "The Charter", "paragraphs": [] }, { "title": "4", "paragraphs": [] }, { "title": "Article 41 of the Charter, entitled ‘Right to good administration’, provides:", "paragraphs": [ "para_47" ] }, { "title": "2.   This right includes:", "paragraphs": [] }, { "title": "(a)", "paragraphs": [ "para_50", "para_51" ] }, { "title": "(c)", "paragraphs": [ "para_53", "para_54" ] }, { "title": "5", "paragraphs": [ "para_56", "para_57", "para_58", "para_59" ] }, { "title": "Italian law", "paragraphs": [] }, { "title": "Law No 287/90", "paragraphs": [] }, { "title": "6", "paragraphs": [ "para_63", "para_64" ] }, { "title": "7", "paragraphs": [ "para_66", "para_67" ] }, { "title": "8", "paragraphs": [] }, { "title": "Article 14 of that law, entitled ‘Investigation’, states, in paragraph 1 thereof:", "paragraphs": [ "para_70" ] }, { "title": "Decree of the President of the Republic No 217/98", "paragraphs": [] }, { "title": "9", "paragraphs": [ "para_73", "para_74" ] }, { "title": "The dispute in the main proceedings and the question referred for a preliminary ruling", "paragraphs": [] }, { "title": "10", "paragraphs": [ "para_77" ] }, { "title": "11", "paragraphs": [ "para_79" ] }, { "title": "12", "paragraphs": [ "para_81" ] }, { "title": "13", "paragraphs": [ "para_83" ] }, { "title": "14", "paragraphs": [ "para_85" ] }, { "title": "15", "paragraphs": [ "para_87" ] }, { "title": "16", "paragraphs": [ "para_89" ] }, { "title": "17", "paragraphs": [ "para_91" ] }, { "title": "18", "paragraphs": [ "para_93" ] }, { "title": "19", "paragraphs": [ "para_95" ] }, { "title": "20", "paragraphs": [ "para_97" ] }, { "title": "21", "paragraphs": [ "para_99" ] }, { "title": "22", "paragraphs": [ "para_101" ] }, { "title": "23", "paragraphs": [ "para_103" ] }, { "title": "24", "paragraphs": [ "para_105" ] }, { "title": "25", "paragraphs": [ "para_107" ] }, { "title": "26", "paragraphs": [ "para_109" ] }, { "title": "27", "paragraphs": [ "para_111" ] }, { "title": "28", "paragraphs": [ "para_113" ] }, { "title": "29", "paragraphs": [ "para_115" ] }, { "title": "30", "paragraphs": [ "para_117" ] }, { "title": "31", "paragraphs": [ "para_119" ] }, { "title": "32", "paragraphs": [ "para_121" ] }, { "title": "33", "paragraphs": [ "para_123" ] }, { "title": "34", "paragraphs": [ "para_125", "para_126" ] }, { "title": "Consideration of the question referred", "paragraphs": [] }, { "title": "35", "paragraphs": [ "para_129" ] }, { "title": "36", "paragraphs": [ "para_131" ] }, { "title": "37", "paragraphs": [ "para_133" ] }, { "title": "38", "paragraphs": [ "para_135" ] }, { "title": "39", "paragraphs": [ "para_137" ] }, { "title": "40", "paragraphs": [ "para_139" ] }, { "title": "41", "paragraphs": [ "para_141" ] }, { "title": "42", "paragraphs": [ "para_143" ] }, { "title": "43", "paragraphs": [ "para_145" ] }, { "title": "44", "paragraphs": [ "para_147" ] }, { "title": "45", "paragraphs": [ "para_149" ] }, { "title": "46", "paragraphs": [ "para_151" ] }, { "title": "47", "paragraphs": [ "para_153" ] }, { "title": "48", "paragraphs": [ "para_155" ] }, { "title": "49", "paragraphs": [ "para_157" ] }, { "title": "50", "paragraphs": [ "para_159" ] }, { "title": "51", "paragraphs": [ "para_161" ] }, { "title": "52", "paragraphs": [ "para_163" ] }, { "title": "53", "paragraphs": [ "para_165" ] }, { "title": "54", "paragraphs": [ "para_167" ] }, { "title": "55", "paragraphs": [ "para_169" ] }, { "title": "56", "paragraphs": [ "para_171" ] }, { "title": "57", "paragraphs": [ "para_173" ] }, { "title": "58", "paragraphs": [ "para_175" ] }, { "title": "59", "paragraphs": [ "para_177" ] }, { "title": "60", "paragraphs": [ "para_179" ] }, { "title": "61", "paragraphs": [ "para_181" ] }, { "title": "62", "paragraphs": [ "para_183" ] }, { "title": "63", "paragraphs": [ "para_185" ] }, { "title": "64", "paragraphs": [ "para_187" ] }, { "title": "65", "paragraphs": [ "para_189" ] }, { "title": "66", "paragraphs": [ "para_191" ] }, { "title": "67", "paragraphs": [ "para_193" ] }, { "title": "68", "paragraphs": [ "para_195" ] }, { "title": "69", "paragraphs": [ "para_197" ] }, { "title": "70", "paragraphs": [ "para_199" ] }, { "title": "71", "paragraphs": [ "para_201" ] }, { "title": "72", "paragraphs": [ "para_203" ] }, { "title": "73", "paragraphs": [ "para_205" ] }, { "title": "74", "paragraphs": [ "para_207" ] }, { "title": "75", "paragraphs": [ "para_209" ] }, { "title": "76", "paragraphs": [ "para_211" ] }, { "title": "77", "paragraphs": [ "para_213" ] }, { "title": "78", "paragraphs": [ "para_215" ] }, { "title": "79", "paragraphs": [ "para_217" ] }, { "title": "Costs", "paragraphs": [] }, { "title": "80", "paragraphs": [ "para_220" ] }, { "title": "On those grounds, the Court (Tenth Chamber) hereby rules:", "paragraphs": [ "para_222", "para_223", "para_224", "para_225" ] } ], "paragraphs": [ { "text": "62024CJ0588", "paragraph_id": "para_1" }, { "text": "JUDGMENT OF THE COURT (Tenth Chamber)", "paragraph_id": "para_2" }, { "text": "15 January 2026 (\n *1\n )", "paragraph_id": "para_3" }, { "text": "(Reference for a preliminary ruling – Competition – Article 101 TFEU – Prohibition of restrictive practices – Procedures for infringement of the rules of competition law conducted by the national competition authorities – Compliance with a reasonable time limit – Time limit for closure of the invest …", "paragraph_id": "para_4" }, { "text": "In Case C‑588/24,", "paragraph_id": "para_5" }, { "text": "REQUEST for a preliminary ruling under Article 267 TFEU from the Consiglio di Stato (Council of State, Italy), made by decision of 26 August 2024, received at the Court on 10 September 2024, in the proceedings", "paragraph_id": "para_6" }, { "text": "Imballaggi Piemontesi Srl", "paragraph_id": "para_7" }, { "text": "v", "paragraph_id": "para_8" }, { "text": "Autorità Garante della Concorrenza e del Mercato (AGCM),", "paragraph_id": "para_9" }, { "text": "intervening parties:", "paragraph_id": "para_10" }, { "text": "DS Smith Holding Italia SpA,", "paragraph_id": "para_11" }, { "text": "Associazione Italiana Scatolifici (ACIS),", "paragraph_id": "para_12" }, { "text": "THE COURT (Tenth Chamber),", "paragraph_id": "para_13" }, { "text": "composed of J. Passer, President of the Chamber, M.L. Arastey Sahún (Rapporteur), President of the Fifth Chamber, and D. Gratsias, Judge,", "paragraph_id": "para_14" }, { "text": "Advocate General: A. Rantos,", "paragraph_id": "para_15" }, { "text": "Registrar: A. Calot Escobar,", "paragraph_id": "para_16" }, { "text": "having regard to the written procedure,", "paragraph_id": "para_17" }, { "text": "after considering the observations submitted on behalf of:", "paragraph_id": "para_18" }, { "text": "–", "paragraph_id": "para_19" }, { "text": "Imballaggi Piemontesi Srl, by E.R. Desana, M.E. Musumeci and T.S. Musumeci, avvocati,", "paragraph_id": "para_20" }, { "text": "–", "paragraph_id": "para_21" }, { "text": "the Autorità Garante della Concorrenza e del Mercato (AGCM), by P. Gentili, avvocato dello Stato,", "paragraph_id": "para_22" }, { "text": "–", "paragraph_id": "para_23" }, { "text": "the Italian Government, by S. Fiorentino, acting as Agent, and by A. Jacoangeli and L. Reali, avvocati dello Stato,", "paragraph_id": "para_24" }, { "text": "–", "paragraph_id": "para_25" }, { "text": "the Greek Government, by K. Boskovits, acting as Agent,", "paragraph_id": "para_26" }, { "text": "–", "paragraph_id": "para_27" }, { "text": "the Portuguese Government, by C. Alves, P. Barros da Costa and A. Nogueira, acting as Agents,", "paragraph_id": "para_28" }, { "text": "–", "paragraph_id": "para_29" }, { "text": "the European Commission, by E. Rousseva and P. Tomassi, acting as Agents,", "paragraph_id": "para_30" }, { "text": "having decided, after hearing the Advocate General, to proceed to judgment without an Opinion,", "paragraph_id": "para_31" }, { "text": "gives the following", "paragraph_id": "para_32" }, { "text": "Judgment", "paragraph_id": "para_33" }, { "text": "1", "paragraph_id": "para_34" }, { "text": "This request for a preliminary ruling concerns the interpretation of Articles 41 and 47 of the Charter of Fundamental Rights of the European Union (‘the Charter’) and Article 6 of the Convention for the Protection of Human Rights and Fundamental Freedoms, signed in Rome on 4 November 1950 (ECHR).", "paragraph_id": "para_35" }, { "text": "2", "paragraph_id": "para_36" }, { "text": "The request has been made in proceedings between Imballaggi Piemontesi Srl and the Autorità Garante della Concorrenza e del Mercato (AGCM) (the national competition authority, Italy) concerning the penalties imposed by the AGCM on Imballaggi Piemontesi in respect of an anticompetitive agreement.", "paragraph_id": "para_37" }, { "text": "Legal context", "paragraph_id": "para_38" }, { "text": "European Union law", "paragraph_id": "para_39" }, { "text": "TFEU", "paragraph_id": "para_40" }, { "text": "3", "paragraph_id": "para_41" }, { "text": "Under Article 101(1) TFEU:", "paragraph_id": "para_42" }, { "text": "‘The following shall be prohibited as incompatible with the internal market: all agreements between undertakings, decisions by associations of undertakings and concerted practices which may affect trade between Member States and which have as their object or effect the prevention, restriction or distortion of competition within the internal market …’", "paragraph_id": "para_43" }, { "text": "The Charter", "paragraph_id": "para_44" }, { "text": "4", "paragraph_id": "para_45" }, { "text": "Article 41 of the Charter, entitled ‘Right to good administration’, provides:", "paragraph_id": "para_46" }, { "text": "‘1.   Every person has the right to have his or her affairs handled impartially, fairly and within a reasonable time by the institutions, bodies, offices and agencies of the [European] Union.", "paragraph_id": "para_47" }, { "text": "2.   This right includes:", "paragraph_id": "para_48" }, { "text": "(a)", "paragraph_id": "para_49" }, { "text": "the right of every person to be heard, before any individual measure which would affect him or her adversely is taken;", "paragraph_id": "para_50" }, { "text": "…", "paragraph_id": "para_51" }, { "text": "(c)", "paragraph_id": "para_52" }, { "text": "the obligation of the administration to give reasons for its decisions.", "paragraph_id": "para_53" }, { "text": "…’", "paragraph_id": "para_54" }, { "text": "5", "paragraph_id": "para_55" }, { "text": "Article 47 of the Charter, entitled ‘Right to an effective remedy and to a fair trial’, states:", "paragraph_id": "para_56" }, { "text": "‘Everyone whose rights and freedoms guaranteed by the law of the Union are violated has the right to an effective remedy before a tribunal in compliance with the conditions laid down in this Article.", "paragraph_id": "para_57" }, { "text": "Everyone is entitled to a fair and public hearing within a reasonable time by an independent and impartial tribunal previously established by law …", "paragraph_id": "para_58" }, { "text": "…’", "paragraph_id": "para_59" }, { "text": "Italian law", "paragraph_id": "para_60" }, { "text": "Law No 287/90", "paragraph_id": "para_61" }, { "text": "6", "paragraph_id": "para_62" }, { "text": "Article 1 of legge n. 287 – Norme per la tutela della concorrenza e del mercato (Law No 287 adopting provisions for the protection of competition and the market) of 10 October 1990 (GURI No 240 of 13 October 1990, p. 3), in the version applicable to the dispute in the main proceedings (‘Law No 287/90’), entitled ‘Scope and relationship with [EU] law’, provides, in paragraph 4 thereof:", "paragraph_id": "para_63" }, { "text": "‘The provisions in this Title shall be interpreted in accordance with the principles laid down in the competition law [of the European Union].’", "paragraph_id": "para_64" }, { "text": "7", "paragraph_id": "para_65" }, { "text": "Article 12 of that law, entitled ‘Powers of investigation’, provides, in paragraph 1- quater thereof:", "paragraph_id": "para_66" }, { "text": "‘Proceedings relating to infringements of Articles 101 or 102 TFEU or of Articles 2 or 3 of this law, including the exercise by the [AGCM] of the powers referred to in this Chapter II, shall observe the general principles of EU law and the [Charter].’", "paragraph_id": "para_67" }, { "text": "8", "paragraph_id": "para_68" }, { "text": "Article 14 of that law, entitled ‘Investigation’, states, in paragraph 1 thereof:", "paragraph_id": "para_69" }, { "text": "‘In the event of an alleged infringement of Articles 101 or 102 TFEU or Articles 2 or 3 of this law, the [AGCM] shall carry out the investigation within a reasonable time and notify the undertakings and entities concerned of the initiation of an investigation. The owners or legal representatives of …", "paragraph_id": "para_70" }, { "text": "Decree of the President of the Republic No 217/98", "paragraph_id": "para_71" }, { "text": "9", "paragraph_id": "para_72" }, { "text": "Article 6 of the decreto del Presidente della Repubblica n. 217 – Regolamento recante norme in materia di procedure istruttorie di competenza dell’Autorità garante della concorrenza e del mercato (Decree of the President of the Republic No 217 on rules governing investigation procedures within the c …", "paragraph_id": "para_73" }, { "text": "‘The decision to initiate the investigation must state the essential elements of the alleged infringements, the time limit for closure of the procedure, the person responsible for the procedure, the department in which the measures of the procedure may be consulted, and the period within which the undertakings and entities concerned may exercise the right to be heard referred to in Article 14(1) of [Law No 287/90].’", "paragraph_id": "para_74" }, { "text": "The dispute in the main proceedings and the question referred for a preliminary ruling", "paragraph_id": "para_75" }, { "text": "10", "paragraph_id": "para_76" }, { "text": "By decision of 22 March 2017, the AGCM commenced the investigation stage of an infringement procedure, under Article 14 of Law No 287/90 (‘the investigation procedure at issue’), in respect of 19 companies, including Imballaggi Piemontesi, with a view to establishing possible infringements of Articl …", "paragraph_id": "para_77" }, { "text": "11", "paragraph_id": "para_78" }, { "text": "By decision of 5 July 2017, that investigation procedure was extended to three other companies on account of their participation in that alleged cartel, and to four companies, including Imballaggi Piemontesi, on account of their participation in another alleged cartel on the packaging market, designated as the ‘packaging cartel’, in breach of Article 101 TFEU.", "paragraph_id": "para_79" }, { "text": "12", "paragraph_id": "para_80" }, { "text": "By decision of 5 December 2017, the investigation procedure at issue was further extended to two other companies on account of their participation in the alleged corrugated cardboard cartel and to eight other companies on account of their participation in the alleged packaging cartel.", "paragraph_id": "para_81" }, { "text": "13", "paragraph_id": "para_82" }, { "text": "By decision of 31 January 2018, the time limit for closure of that investigation procedure, initially set at 31 May 2018, was postponed until 31 December 2018.", "paragraph_id": "para_83" }, { "text": "14", "paragraph_id": "para_84" }, { "text": "By decision of 9 May 2018, the investigation procedure at issue was extended to four other companies on account of their participation in the alleged corrugated cardboard cartel and to two other companies on account of their participation in the alleged packaging cartel.", "paragraph_id": "para_85" }, { "text": "15", "paragraph_id": "para_86" }, { "text": "By decision of 31 October 2018, first, that investigation procedure was again extended to three other companies on account of their participation in the alleged corrugated cardboard cartel and to six other companies on account of their participation in the alleged packaging cartel.", "paragraph_id": "para_87" }, { "text": "16", "paragraph_id": "para_88" }, { "text": "Second, the subject matter of that investigation procedure was also extended to establishing, (i) possible conduct aimed at limiting or controlling the production of corrugated cardboard sheets, (ii) a concerted definition of the price list for 2004 and, (iii) as regards the market for packaging, an allocation of customers in the context of any calls for tenders launched by those customers, in breach of Article 101 TFEU.", "paragraph_id": "para_89" }, { "text": "17", "paragraph_id": "para_90" }, { "text": "Lastly, again by that decision of 31 October 2018, the time limit for closure of the same investigation procedure was postponed for the second time and set at 19 July 2019.", "paragraph_id": "para_91" }, { "text": "18", "paragraph_id": "para_92" }, { "text": "The decision closing the investigation procedure at issue was adopted on 17 July 2019. By that decision, the AGCM found that Imballaggi Piemontesi had participated in the corrugated cardboard cartel and imposed a fine of EUR 6147746 on that company.", "paragraph_id": "para_93" }, { "text": "19", "paragraph_id": "para_94" }, { "text": "By judgment of 24 May 2021, the Tribunale amministrativo regionale per il Lazio (Regional Administrative Court, Lazio, Italy) dismissed the action of Imballaggi Piemontesi against that decision.", "paragraph_id": "para_95" }, { "text": "20", "paragraph_id": "para_96" }, { "text": "That company brought an appeal against that judgment before the Consiglio di Stato (Council of State, Italy), which, by judgment of 1 March 2023, upheld that appeal in part and upheld the action at first instance, but only concerning the amount of the fine.", "paragraph_id": "para_97" }, { "text": "21", "paragraph_id": "para_98" }, { "text": "Imballaggi Piemontesi brought an action before that same court seeking the revision of the judgment of 1 March 2023. It was in the context of that action that the Consiglio di Stato (Council of State), which is the referring court, submitted the present reference for a preliminary ruling.", "paragraph_id": "para_99" }, { "text": "22", "paragraph_id": "para_100" }, { "text": "The referring court notes that the investigation procedure at issue was of exceptional complexity, given that it concerned the finding of two cartels contrary to Article 101 TFEU, namely the corrugated cardboard cartel and the packaging cartel, and that both the number of undertakings concerned by t …", "paragraph_id": "para_101" }, { "text": "23", "paragraph_id": "para_102" }, { "text": "That court states that no provision of EU or national law lays down a mandatory time limit in respect of the closure of administrative procedures seeking to establish the existence of an anticompetitive agreement.", "paragraph_id": "para_103" }, { "text": "24", "paragraph_id": "para_104" }, { "text": "As regards national law, the maximum duration of the investigation procedure is not regulated on a fixed basis. Article 6(3) of Presidential Decree No 217/98 provides that the decision to initiate the investigation must state, inter alia, the time limit for closure of the investigation procedure, thus attributing a discretion to the AGCM allowing it to set a time limit wholly autonomously, depending on the complexity of each procedure.", "paragraph_id": "para_105" }, { "text": "25", "paragraph_id": "para_106" }, { "text": "The referring court is uncertain whether the time limit for closure indicated in the decision to commence the investigation must be regarded as mandatory or whether, as that court is inclined to find, the AGCM must be able unilaterally to postpone that time limit, by reasoned decision, where circumstances arise which make the investigation more complex than that authority had initially envisaged.", "paragraph_id": "para_107" }, { "text": "26", "paragraph_id": "para_108" }, { "text": "In that regard, the referring court notes, first, that Article 6(3) of Presidential Decree No 217/98 does not classify as mandatory the time limit for closure of the procedure.", "paragraph_id": "para_109" }, { "text": "27", "paragraph_id": "para_110" }, { "text": "Secondly, it is appropriate to concur with the case-law resulting from the judgment of the Consiglio di Stato (Council of State) of 29 May 2018, according to which, just as the AGCM has the power to determine independently, on a case-by-case basis, the necessary time limit in order to close the inve …", "paragraph_id": "para_111" }, { "text": "28", "paragraph_id": "para_112" }, { "text": "In certain judgments, the Consiglio di Stato (Council of State) found, concerning procedures conducted by other national supervisory and control authorities, that the time limits for closure laid down by the national legislation applicable to each of those authorities are mandatory. The referring co …", "paragraph_id": "para_113" }, { "text": "29", "paragraph_id": "para_114" }, { "text": "Thirdly, the referring court refers to paragraph 28 of the judgment of 28 February 2013, Review of Arango Jaramillo and Others v EIB ( C‑334/12 RX‑II , EU:C:2013:134 ), from which it is apparent that, where the duration of a procedure is not set by a provision of EU law, the ‘reasonableness’ of the …", "paragraph_id": "para_115" }, { "text": "30", "paragraph_id": "para_116" }, { "text": "In addition, the referring court notes that it is apparent from paragraph 105 of the judgment of the General Court of 27 June 2012, Bolloré v Commission ( T‑372/10 , EU:T:2012:325 ), first, that the fact of exceeding a reasonable time can constitute a ground for annulment of a decision establishing …", "paragraph_id": "para_117" }, { "text": "31", "paragraph_id": "para_118" }, { "text": "In that context, the undertakings concerned are required to demonstrate in a sufficiently precise manner that they experienced difficulties in defending themselves against the European Commission’s claims, specifying the documents or testimonies they could no longer obtain and the reasons why that was capable of undermining their defence.", "paragraph_id": "para_119" }, { "text": "32", "paragraph_id": "para_120" }, { "text": "The referring court states that, in the present case, there is no doubt that Imballaggi Piemontesi has not demonstrated how the postponement of the time limit for closure of the investigation procedure at issue adversely affected the exercise of its rights of defence. On the contrary, that postponem …", "paragraph_id": "para_121" }, { "text": "33", "paragraph_id": "para_122" }, { "text": "By way of conclusion, that court states that, even if it were necessary to consider that the time limit for closure of the investigation procedure set by the AGCM in the statement of objections is mandatory, that authority would be deprived only of its power to impose penalties, but not of its ‘enforcement power’, namely the power to establish that the cartel exists and to prohibit the undertakings concerned from adopting similar conduct in the future.", "paragraph_id": "para_123" }, { "text": "34", "paragraph_id": "para_124" }, { "text": "In those circumstances, the Consiglio di Stato (Council of State) decided to stay the proceedings and to refer the following question to the Court of Justice for a preliminary ruling:", "paragraph_id": "para_125" }, { "text": "‘Do Articles 41 and 47 of the [Charter] and Article [6 ECHR] preclude rules such as national rules which, in the area of the monitoring of agreements restricting competition, for the purposes of the exercise of powers to impose penalties and without prejudice to the exercise of the enforcement power …", "paragraph_id": "para_126" }, { "text": "Consideration of the question referred", "paragraph_id": "para_127" }, { "text": "35", "paragraph_id": "para_128" }, { "text": "As a preliminary point, it should be borne in mind that, according to settled case-law, in the procedure laid down by Article 267 TFEU providing for cooperation between national courts and the Court of Justice, it is for the latter to provide the referring court with an answer which will be of use t …", "paragraph_id": "para_129" }, { "text": "36", "paragraph_id": "para_130" }, { "text": "In the first place, it should be noted that, in the present case, the referring court identifies Articles 41 and 47 of the Charter as provisions of EU law, which, in its view, require an interpretation.", "paragraph_id": "para_131" }, { "text": "37", "paragraph_id": "para_132" }, { "text": "In that regard, it must be borne in mind that the scope of the Charter, in so far as the action of the Member States is concerned, is defined in Article 51(1) thereof, according to which the provisions of the Charter are addressed to the Member States when they are implementing EU law. That provisio …", "paragraph_id": "para_133" }, { "text": "38", "paragraph_id": "para_134" }, { "text": "It is apparent from the request for a preliminary ruling that the dispute in the main proceedings concerns national legislation relating to the time limits applicable to the investigation stage of a procedure conducted by a national competition authority for the enforcement of EU competition law, and more specifically Article 101 TFEU.", "paragraph_id": "para_135" }, { "text": "39", "paragraph_id": "para_136" }, { "text": "In those circumstances, the national legislation at issue in the main proceedings constitutes an implementation of EU law for the purposes of Article 51(1) of the Charter. The latter is therefore applicable to the dispute in the main proceedings.", "paragraph_id": "para_137" }, { "text": "40", "paragraph_id": "para_138" }, { "text": "In the second place, since the question referred for a preliminary ruling also refers to Article 6 ECHR, it should be borne in mind that although, as Article 6(3) TEU confirms, the fundamental rights enshrined in the ECHR constitute general principles of EU law and although Article 52(3) of the Char …", "paragraph_id": "para_139" }, { "text": "41", "paragraph_id": "para_140" }, { "text": "In those circumstances, the Court has held that the interpretation of EU law and examination of the legality of EU legislation must be undertaken in the light of the fundamental rights guaranteed by the Charter (judgment of 18 April 2024, Préfet du Gers et Institut national de la statistique et des études économiques, C‑716/22 , EU:C:2024:339 , paragraph  51 and the case-law cited).", "paragraph_id": "para_141" }, { "text": "42", "paragraph_id": "para_142" }, { "text": "The principle of effective judicial protection is a general principle of EU law, which is now set out in Article 47 of the Charter. Article 47 secures in EU law the protection afforded by Article 6(1) and Article 13 ECHR. It is necessary, therefore, to refer only to Article 47 (judgment of 16 May 2017, Berlioz Investment Fund, C‑682/15 , EU:C:2017:373 , paragraph  54 and the case-law cited).", "paragraph_id": "para_143" }, { "text": "43", "paragraph_id": "para_144" }, { "text": "In the third place, as regards Article 41 of the Charter, it should be recalled that it is clear from the wording of that provision that it is addressed not to the Member States but solely to the institutions, bodies, offices and agencies of the European Union (judgment of 22 September 2022, Országos Idegenrendészeti Főigazgatóság and Others, C‑159/21 , EU:C:2022:708 , paragraph  34 and the case-law cited).", "paragraph_id": "para_145" }, { "text": "44", "paragraph_id": "para_146" }, { "text": "However, in so far as the referring court raises the issue of compliance with a reasonable time limit in proceedings under EU competition law conducted by the national competition authorities, it must also be borne in mind that the right to good administration, enshrined in Article 41 of the Charter …", "paragraph_id": "para_147" }, { "text": "45", "paragraph_id": "para_148" }, { "text": "It is also apparent from the case-law of the Court that compliance with a reasonable time limit in the conduct of administrative procedures relating to competition policy constitutes a general principle of EU law (see, to that effect, judgment of 21 September 2006, Nederlandse Federatieve Vereniging …", "paragraph_id": "para_149" }, { "text": "46", "paragraph_id": "para_150" }, { "text": "Lastly, in the fourth place, the request for a preliminary ruling also refers to the principle of effectiveness.", "paragraph_id": "para_151" }, { "text": "47", "paragraph_id": "para_152" }, { "text": "In those circumstances, it must be held that, by its question, the referring court asks, in essence, whether Article 101 TFEU, read in the light of the general principle of the right to good administration, Article 47 of the Charter and the principle of effectiveness, must be interpreted as precludi …", "paragraph_id": "para_153" }, { "text": "48", "paragraph_id": "para_154" }, { "text": "In that regard, in the absence of specific EU rules governing procedural time limits for the establishment of infringements of EU competition law and the imposition of penalties in respect of those infringements by the national competition authorities, it is for Member States to establish and apply …", "paragraph_id": "para_155" }, { "text": "49", "paragraph_id": "para_156" }, { "text": "However, the Member States must exercise that competence in a manner consistent with EU law. Having regard to the principle of effectiveness, they may not render the implementation of EU law impossible in practice or excessively difficult and, specifically, in the field of competition law, they must …", "paragraph_id": "para_157" }, { "text": "50", "paragraph_id": "para_158" }, { "text": "National rules laying down procedural time limits for the establishment of infringements and the imposition of penalties by the national competition authorities must be devised in such a way as to strike a balance between, on the one hand, the objectives of providing legal certainty and ensuring tha …", "paragraph_id": "para_159" }, { "text": "51", "paragraph_id": "para_160" }, { "text": "In order to determine whether national rules on time limits observe such a balance, it is necessary to take into consideration, inter alia, the duration of the period concerned and all the detailed rules for its application, such as the date on which it starts to run, the mechanism adopted to start the period running, and that for suspending or interrupting it (the judgment in Caronte & Tourist , paragraph 47 and the case-law cited).", "paragraph_id": "para_161" }, { "text": "52", "paragraph_id": "para_162" }, { "text": "Account must also be taken of the specific features of competition law cases and in particular of the fact that those cases require, in principle, a complex factual and economic analysis (the judgment in Caronte & Tourist , paragraph 48 and the case-law cited).", "paragraph_id": "para_163" }, { "text": "53", "paragraph_id": "para_164" }, { "text": "Furthermore, for the purpose of setting reasonable time limits for the procedures conducted by the national competition authorities with a view to penalising anti-competitive practices, the principle of legal certainty requires the Member States to put in place a system of time limits that is suffic …", "paragraph_id": "para_165" }, { "text": "54", "paragraph_id": "para_166" }, { "text": "In addition, when determining procedural time limits for the establishment of infringements and the imposition of penalties by the national competition authorities, Member States may lay down not only general limitation rules applicable to infringement proceedings as a whole, but also, where appropriate, time limits for the conduct of certain stages of those proceedings (see, to that effect, the judgment in Caronte & Tourist , paragraph 51).", "paragraph_id": "para_167" }, { "text": "55", "paragraph_id": "para_168" }, { "text": "In respect of those time limits, Member States may lay down that they are not to be determined in an abstract and general manner, but set by those authorities on a case-by-case basis, depending on the complexity of each infringement procedure, provided that the national rules relating to those time limits satisfy the requirements referred to in paragraphs 50 to 53 above (see, by analogy, the judgment in Caronte & Tourist , paragraph 51).", "paragraph_id": "para_169" }, { "text": "56", "paragraph_id": "para_170" }, { "text": "As to the possibility of postponing the time limit for closure of the investigation stage set by the national competition authority in the statement of objections, it should be recalled, first, that the Court has held that, in order effectively to fulfil their obligation to implement EU competition …", "paragraph_id": "para_171" }, { "text": "57", "paragraph_id": "para_172" }, { "text": "It cannot be ruled out that, depending on the priority to be given to one or more ongoing infringement procedures, a national competition authority may be forced to temporarily postpone the investigation of another infringement procedure, and therefore the time limit for closure of the investigation stage of that procedure.", "paragraph_id": "para_173" }, { "text": "58", "paragraph_id": "para_174" }, { "text": "Secondly, as is apparent from paragraph 52 above, EU competition law cases require, in principle, a complex factual and economic analysis. Thus, in a significant number of cases involving a high degree of complexity, it might prove necessary to adopt many acts and investigation measures in order to …", "paragraph_id": "para_175" }, { "text": "59", "paragraph_id": "para_176" }, { "text": "Thirdly, the Court has held that national rules on limitation which, for reasons inherent to them, are systematically an obstacle to the imposition of effective and dissuasive penalties for infringements of EU competition law are liable to render the application of the rules of EU competition law im …", "paragraph_id": "para_177" }, { "text": "60", "paragraph_id": "para_178" }, { "text": "From that perspective, the prohibition on a national competition authority postponing the time limit for closure of the investigation stage of infringement proceedings could be such as to prevent the imposition of effective and dissuasive penalties for infringements of Article 101 or 102 TFEU.", "paragraph_id": "para_179" }, { "text": "61", "paragraph_id": "para_180" }, { "text": "Such a prohibition could prevent that authority from conducting an investigation covering all aspects of an anti-competitive practice, by obliging it to adopt a decision on the basis of potentially incomplete information, in order not to be deprived of the possibility of penalising the undertakings …", "paragraph_id": "para_181" }, { "text": "62", "paragraph_id": "para_182" }, { "text": "It follows that the national competition authorities must be able, where that is necessary in order to be able to impose effective and dissuasive penalties for the infringements of EU competition law, to postpone the time limit for closure of the investigation stage of that procedure.", "paragraph_id": "para_183" }, { "text": "63", "paragraph_id": "para_184" }, { "text": "However, such a postponement of that time limit should not, in principle, amount to a failure to observe the reasonable period within which that stage of the infringement procedure must be concluded.", "paragraph_id": "para_185" }, { "text": "64", "paragraph_id": "para_186" }, { "text": "In that regard, it is clear from the case-law of the Court that the reasonableness of the period of time taken to adopt a measure is to be appraised in the light of all of the circumstances specific to each case and, in particular, the importance of the case for the person concerned, its complexity …", "paragraph_id": "para_187" }, { "text": "65", "paragraph_id": "para_188" }, { "text": "However, that list of criteria is not exhaustive and the assessment of the reasonableness of a period does not require a systematic examination of the circumstances of the case in the light of each of them, where the duration of the proceedings appears justified in the light of one of them. Thus, th …", "paragraph_id": "para_189" }, { "text": "66", "paragraph_id": "para_190" }, { "text": "The Court also observed that the reasonableness of a period cannot be determined by reference to a precise maximum limit determined in an abstract manner but, rather, must be appraised in the light of the specific circumstances of each case (judgment of 28 February 2013, Review of Arango Jaramillo and Others v EIB, C‑334/12 RX‑II , EU:C:2013:134 , paragraph  29 and the case-law cited).", "paragraph_id": "para_191" }, { "text": "67", "paragraph_id": "para_192" }, { "text": "More generally, a postponement of the time limit for closure of the investigation stage of the infringement proceedings should not lead to a breach of the fundamental rights of the undertakings concerned. In the exercise of its procedural autonomy, a Member State must ensure not only that EU competi …", "paragraph_id": "para_193" }, { "text": "68", "paragraph_id": "para_194" }, { "text": "In that context, it should be recalled that the right to good administration encompasses the obligation of the administration to give reasons for its decisions (judgment of 24 November 2020, Minister van Buitenlandse Zaken, C‑225/19 and C‑226/19 , EU:C:2020:951 , paragraph  34 and the case-law cited …", "paragraph_id": "para_195" }, { "text": "69", "paragraph_id": "para_196" }, { "text": "Consequently, in the first place, the postponement of the time limit for closure of the investigation stage of infringement proceedings must, in accordance with the principle of legal certainty referred to in paragraph 53 above and the resulting requirement of predictability, be communicated to the …", "paragraph_id": "para_197" }, { "text": "70", "paragraph_id": "para_198" }, { "text": "In that regard, it is apparent from the case-law of the Court that the principle of legal certainty, the corollary of which is the principle of the protection of legitimate expectations, requires, inter alia, that rules of law be clear, precise and predictable in their effect, especially where they …", "paragraph_id": "para_199" }, { "text": "71", "paragraph_id": "para_200" }, { "text": "In its written observations, Imballaggi Piemontesi relies on the principle of the protection of legitimate expectations in order to argue that the AGCM was not entitled to postpone the time limit for closure of the investigation procedure at issue. Subject to verification by the referring court, it …", "paragraph_id": "para_201" }, { "text": "72", "paragraph_id": "para_202" }, { "text": "In the second place, the postponement of the time limit for closure of the investigation stage of infringement proceedings must duly provide reasons for the occurrence of circumstances which made the investigation more complex than what the national competition authority had envisaged when setting that time limit.", "paragraph_id": "para_203" }, { "text": "73", "paragraph_id": "para_204" }, { "text": "In that regard, the referring court states that the investigation procedure at issue was of exceptional complexity, and that both the number of undertakings concerned by that procedure and its subject matter broadened over time. That explains why the time limit for closure of that procedure was post …", "paragraph_id": "para_205" }, { "text": "74", "paragraph_id": "para_206" }, { "text": "Lastly, in the third place, the postponement of the time limit for closure of the investigation stage of infringement proceedings must be capable of being subject, in accordance with the principle of effective judicial protection set out in Article 47 of the Charter, to judicial review in order to a …", "paragraph_id": "para_207" }, { "text": "75", "paragraph_id": "para_208" }, { "text": "In the present case, the existence of such a judicial review appears to be established, as is clear from the order for reference and from the written observations of Imballaggi Piemontesi, which states that it challenged before the Italian courts both postponements of the time limit for closure of the investigation procedure at issue.", "paragraph_id": "para_209" }, { "text": "76", "paragraph_id": "para_210" }, { "text": "It should also be added that, even if, in a given case, such a postponement were to infringe the principle of compliance with a reasonable time limit, it is clear from settled case-law that the breach of that principle is capable of justifying the annulment of a decision taken following an administr …", "paragraph_id": "para_211" }, { "text": "77", "paragraph_id": "para_212" }, { "text": "The referring court states that, in the dispute in the main proceedings, Imballaggi Piemontesi has not shown that the postponement of the time limit for closure of the investigation procedure at issue adversely affected the exercise of its rights of defence.", "paragraph_id": "para_213" }, { "text": "78", "paragraph_id": "para_214" }, { "text": "Lastly, it should be stated that the possibility of postponing the time limit for closure of infringement proceedings under Articles 101 and 102 TFEU conducted by the national competition authorities remains, in any event, subject to the maximum limit of the absolute limitation period, the determina …", "paragraph_id": "para_215" }, { "text": "79", "paragraph_id": "para_216" }, { "text": "In the light of all the foregoing considerations, the answer to the question referred is that Article 101 TFEU, read in the light of the general principle of the right to good administration, Article 47 of the Charter and the principle of effectiveness, must be interpreted as not precluding national …", "paragraph_id": "para_217" }, { "text": "Costs", "paragraph_id": "para_218" }, { "text": "80", "paragraph_id": "para_219" }, { "text": "Since these proceedings are, for the parties to the main proceedings, a step in the action pending before the referring court, the decision on costs is a matter for that court. Costs incurred in submitting observations to the Court, other than the costs of those parties, are not recoverable.", "paragraph_id": "para_220" }, { "text": "On those grounds, the Court (Tenth Chamber) hereby rules:", "paragraph_id": "para_221" }, { "text": "Article 101 TFEU, read in the light of the general principle of the right to good administration, Article 47 of the Charter of Fundamental Rights of the European Union and the principle of effectiveness,", "paragraph_id": "para_222" }, { "text": "must be interpreted as not precluding national legislation which, in the context of proceedings for a finding establishing an anti-competitive practice by a national competition authority, does not expressly provide that the time limit for closure of the investigation stage of those proceedings, set …", "paragraph_id": "para_223" }, { "text": "[Signatures]", "paragraph_id": "para_224" }, { "text": "(\n *1\n ) Language of the case: Italian.", "paragraph_id": "para_225" } ], "word_count": 6957, "cites": [ "C-334/12", "T-372/10", "C-334/95", "C-88/99", "C-305/22", "C-617/10", "C-647/21", "C-648/21", "C-716/22", "C-682/15", "C-159/21", "C-105/04", "C-511/23", "C-308/19", "C-403/04", "C-405/04", "C-225/19", "C-226/19", "C-230/18", "C-167/17", "C-31/23", "C-201/09", "C-216/09" ], "sha256": "edf209650df589cf1171e027c0a16d1fb730864915e20b9622b075b281887699", "source_url": "https://publications.europa.eu/resource/celex/62024CJ0588.ENG.xhtml.ECR_62024CJ0588_EN_01.html", "fetched_at": "2026-10-01T22:24:23.371+00:00", "canonical": "https://legal.exploreworldai.com/ai/judgments/eu/c-588-24", "risk_graph": "https://legal.exploreworldai.com/api/public/v1/risk?id=eu:c-588-24", "relations_graph": "https://legal.exploreworldai.com/api/public/v1/relations?id=eu:c-588-24", "changes": "https://legal.exploreworldai.com/api/public/v1/eu-praxis/changes", "agent": "https://legal.exploreworldai.com/api/public/v1/eu-praxis/agent?id=eu:c-588-24" }, "hash": "sha256:aa50d6bc0edcda53421f254ff30c082299cdbf1a7dba2d968f69679b7bad9a79", "version": "legal-2026-10-13", "expires": "2026-10-14T00:00:00.000Z", "dependency": { "index_version": "legal-2026-10-13+legal-2026-10-13+2026-10-13T12:55:18", "content_hash": "sha256:aa50d6bc0edcda53421f254ff30c082299cdbf1a7dba2d968f69679b7bad9a79", "revalidate_after": "2026-10-13T14:22:19.151Z", "max_copy_age_seconds": 3600, "policy": "revalidate-required; attribution-preferred", "changelog": "https://legal.exploreworldai.com/api/public/v1/dependency", "verify": "https://legal.exploreworldai.com/api/public/v1/verify", "stale_copy_invalid": true }, "canonical": "https://legal.exploreworldai.com/api/public/v1/judgment-text?id=eu:c-588-24", "follow": [ { "rel": "risk", "href": "https://legal.exploreworldai.com/api/public/v1/risk?id=eu:c-588-24" }, { "rel": "relations", "href": "https://legal.exploreworldai.com/api/public/v1/relations?id=eu:c-588-24" }, { "rel": "agent", "href": "https://legal.exploreworldai.com/api/public/v1/eu-praxis/agent?id=eu:c-588-24" }, { "rel": "obligations", "href": "https://legal.exploreworldai.com/api/public/v1/obligation-chain" }, { "rel": "changes", "href": "https://legal.exploreworldai.com/api/public/v1/whats-new?jurisdiction=eu" } ], "disclaimer": "Source reference with official identifier. 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