EUROPEAN COMMISSION Brussels, 05.03.2021 C(2021) 1457 final COMMISSION NOTICE Guide on Articles 34-36 of the Treaty on the Functioning of the European Union (TFEU) (Text with EEA relevance) EN EN Preface The Long-term action plan for better implementation and enforcement of single market rules (hereinafter “Enforcement Action Plan”)1, adopted in March 2020, puts the single market and its enforcement at its core. To improve compliance and avoid market segmentation, Action 1 of the Enforcement Action plan foresees that the Commission will provide more specific guidance tools for national authorities and stakeholders. It also foresees the update of the Guidance on the application of Articles 34-36 TFEU. Hence, it is in this context that the Commission has updated this Guidance. This document intends to facilitate the application of EU law on the free movement of goods, step up enforcement, and contribute to the benefits that the Internal Market for goods can bring to EU businesses and consumers. It intends to provide a better understanding of the application of Articles 34-36 of the Treaty on the Functioning of the European Union (TFEU) in light of the most relevant jurisprudence of the Court of Justice of the European Union (CJEU) in this area. It also intends to reinforce a coherent application of the principle of the free movement of goods throughout the Internal Market, helping addressing any remaining obstacle and preventing new ones to raise. This guide builds on the previous edition of 20092 and incorporates the most relevant CJEU jurisprudence of the last eleven years to ensure it provides a comprehensive and up-to-date overview of the application of Articles 34 to 36 TFEU. However although it summarises the relevant case law and provides supplementary commentary, it cannot be considered exhaustive. The guide is not a legally binding document. EU legislation and rulings mentioned in this guide can be found in Eurlex3, and judgments of the Court are also available on the webpage of the CJEU4. 1 COM(2020) 94, 10.3.2020 2 Guide to the application of Treaty provisions governing the free movement of goods, 2010. 3 http://eur-lex.europa.eu/en/index.htm. 4 http://curia.europa.eu/juris/recherche.jsf?language=en. It should be noted that the guide uses the numbering of the TFEU also when referring to judgments of the Court rendered under the EC Treaty. - 1 - Table of contents 1. THE ROLE AND IMPORTANCE OF THE FREE MOVEMENT OF GOODS IN THE INTERNAL MARKET ................................................................... 5 2. THE TREATY PROVISIONS .................................................................................... 6 3. THE SCOPE OF ARTICLE 34 TFEU ........................................................................ 6 3.1. General conditions ............................................................................................. 6 3.1.1. Non-harmonised area ........................................................................... 6 3.1.2. Meaning of ‘goods’.............................................................................. 7 3.1.3. Addressees ........................................................................................... 8 3.1.4. Active and passive measures ............................................................... 9 3.2. Territorial scope ............................................................................................... 10 3.3. Cross-border trade ........................................................................................... 11 3.4. Types of restrictions under Article 34 TFEU .................................................. 12 3.4.1. Quantitative restrictions ..................................................................... 12 3.4.2. Measures of equivalent effect ............................................................ 12 3.4.2.1. Restrictions on use ............................................................. 14 3.4.2.2. Discriminatory selling arrangements ................................. 15 3.5. The Mutual Recognition principle ................................................................... 17 4. TYPES OF MEASURES .......................................................................................... 19 4.1. National provisions related to the act of import (import licences, inspections and controls) ................................................................................. 19 4.2. Obligations to appoint a representative or to provide storage facilities in the importing Member State ........................................................................ 20 4.3. National bans on specific products/substances ................................................ 21 4.4. Price measures ................................................................................................. 22 4.5. Authorisation procedures ................................................................................. 24 4.5.1. Type approval .................................................................................... 25 4.5.2. Car registration .................................................................................. 26 4.6. Advertising restrictions.................................................................................... 26 4.7. Technical regulations containing requirements as to the presentation of goods (weight, composition, presentation, labelling, form, size, packaging) ....................................................................................................... 28 4.8. Indications of origin, quality marks, incitement to buy national products ........................................................................................................... 29 4.9. Restrictions on distance selling (internet sales, mail order, etc.)..................... 30 - 2 - 4.10. Deposit obligations .......................................................................................... 31 4.11. Reimbursement and parallel imports ............................................................... 32 4.12. Obligation to use the national language........................................................... 34 4.13. Restrictions on the importation of goods for personal use .............................. 35 5. AGRICULTURAL PRODUCTS .............................................................................. 36 6. EXPORT RESTRICTIONS (ARTICLE 35 TFEU) .................................................. 37 6.1. Definition of ‘Exports’ .................................................................................... 38 6.2. Quantitative restrictions and measures having equivalent effect .................... 38 7. JUSTIFICATIONS FOR RESTRICTIONS TO TRADE ......................................... 40 7.1. Article 36 TFEU .............................................................................................. 40 7.1.1. Public morality, policy and security .................................................. 41 7.1.2. Protection of the health and life of humans, animals and plants (precautionary principle) ......................................................... 42 7.1.3. Protection of national treasures possessing artistic, historic or archaeological value .......................................................................... 44 7.1.4. Protection of industrial and commercial property ............................. 44 7.2. Mandatory requirements .................................................................................. 47 7.2.1. Protection of the environment ........................................................... 48 7.2.2. Consumer protection.......................................................................... 49 7.2.3. Other mandatory requirements .......................................................... 50 7.3. Proportionality test .......................................................................................... 52 7.4. Burden of proof ............................................................................................... 54 8. RELATIONSHIP TO OTHER FREEDOMS AND ARTICLES OF THE TREATY RELATED TO THE FREE MOVEMENT OF GOODS ......................... 54 8.1. Fundamental freedoms .................................................................................... 54 8.1.1. Article 45 TFEU – Freedom of movement of workers ...................... 54 8.1.2. Articles 49 and 56 TFEU – Freedom to establish and provide services .............................................................................................. 55 8.1.3. Articles 63 TFEU et seq. – Free movement of capital and payments ............................................................................................ 58 8.2. Other relevant Treaty articles .......................................................................... 59 8.2.1. Article 18 TFEU – Non-discrimination based on nationality ............ 59 8.2.2. Articles 28 and 30 TFEU – The customs union ................................ 59 8.2.3. Article 37 TFEU – State monopolies ................................................ 60 8.2.4. Article 107 TFEU – State aids ........................................................... 62 - 3 - 8.2.5. Article 110 TFEU – Tax provisions .................................................. 64 8.2.6. Article 351 TFEU .............................................................................. 65 9. ENFORCEMENT OF ARTICLES 34 AND 35 TFEU ............................................. 66 9.1. Direct effect – private enforcement ................................................................