F I F T H S E C T I O N C A S E O F Z H E C H E V v. B U L G A R I A ( A ppl i c at i on no. 57045/ 00) J U D G M E N T ST R A SB O U R G 2 1 J u n e 2 0 0 7 Th i s j u d g m en t wi l l b eco m e f i n a l i n t h e ci r cu m s t a n ces s et o u t i n A r t i cl e 4 4 § 2 o f t h e Co n ven t i o n . It m a y b e s u b j ect t o ed i t o r i a l r evi s i o n .

Z H E C H E V v . B U L G A R I A J U D G M E N T 1 I n t h e c as e of Z h e c h e v v. B u l gar i a, T he E ur ope a n C our t o f H um a n R i ght s ( F i f t h S e c t i on) , s i t t i ng a s a C ha m be r c om pos e d of : M r P . LO RE N Z E N , P r e s i de nt , M r s S . BO T O U C H A R O V A , M r K . JU N G W IE R T , M r V . BU T K E V Y CH , M r s M . TS A T S A -NIK O L O V S K A , M r R . MARU S T E , M r M . VIL L IG E R , j udge s , a nd M r s C . WE S T E RD IE K , Se c t i on R e gi s t r ar , H a vi ng de l i be r a t e d i n p r i va t e on 29 M a y 2007, D e l i ve r s t he f ol l ow i ng j udgm e nt , w hi c h w a s a dopt e d on t ha t da t e : P R O C E D U R E 1. T he c a s e or i gi na t e d i n a n a ppl i c a t i on ( no . 57045/ 00) a ga i ns t t he R e publ i c of B ul ga r i a l odge d w i t h t he C our t unde r A r t i c l e 34 of t he C onve nt i on f or t he P r ot e c t i on o f H um a n R i ght s a nd F unda m e nt a l F r e e dom s ( “ t he C onve nt i on” ) by M r P e t a r Z he c he v Z he c h e v, a B ul ga r i a n na t i ona l w ho w a s bor n i n 1928 a nd l i ve s i n P l ov di v. 2. T he a ppl i c a nt w a s r e pr e s e nt e d by M r by M r M . E ki m dz hi e v, a l a w ye r pr a c t i s i ng i n P l ovdi v. T he B ul ga r i a n G ove r n m e nt ( “ t he G ove r nm e nt ” ) w e r e r e pr e s e nt e d by t he i r A ge nt , M s M . K o t s e va , of t he M i ni s t r y o f J us t i c e . 3. T he a ppl i c a nt c om pl a i ne d, i n pa r t i c ul a r , a bo ut t he r e f us a l of t he dom e s t i c c our t s t o r e gi s t e r a n a s s oc i a t i on c ha i r e d b y hi m . 4. B y a de c i s i on of 2 M a y 2006 t he C our t de c l a r e d t he a ppl i c a t i on pa r t l y a dm i s s i bl e . 5. N e i t he r t he a ppl i c a nt , nor t he G ove r nm e nt f i l e d w r i t t e n obs e r va t i ons on t he m e r i t s . T H E F A C T S I . T H E C I R C U M S T A N C E S O F T H E C A S E 6. T he a ppl i c a nt i s t he c ha i r m a n of t he a s s oc i a t i on “ C i vi l S oc i e t y f or B ul ga r i a n I nt e r e s t s , N a t i ona l D i gni t y , U ni on a nd I nt e gr a t i on – f or B ul ga r i a ” ( „ Г ра ж д а н с к о об щ е с т в о з а б ъ л г а рс к и и н т е ре с и , н а ц и о н а л н о д ос т ой н с т в о, е д и н е н и е и об е д и н е н и е – з а Б ъ л г а ри я “ – “ t he a s s oc i a t i on” ) .

2 Z H E C H E V v . B U L G A R I A J U D G M E N T 7. T he a s s oc i a t i on w a s f ounde d on 19 D e c e m be r 1996 i n P l ovdi v . A t a m e e t i ng on t ha t da t e t he f ounde r s a dopt e d i t s a r t i c l e s a nd e l e c t e d i t s m a na ge m e nt bodi e s . T he a ppl i c a nt w a s e l e c t e d a s i t s c ha i r m a n. 8. T he a s s oc i a t i on’s a r t i c l e s r e a d, a s r e l e va nt : “ 1 . [ T h e a s s o c i a t i o n ] i s a B u l g a r i a n p a t r i o t i c n o n -p r o f i t o r g a n i s a t i o n . I t s h a l l b e D E M O C R A T I C i n f o r m a n d N A T I O N A L i n c o n t e n t . O B J E C T : m a s s , h i s t o r i c a l l y a n d m o r a l l y e n l i g h t e n i n g , s o c i e t a l a n d p o l i t i c a l , c u l t u r a l a n d e d u c a t i o n a l , s c i e n t i f i c a n d r e s e a r c h , s p o r t a n d t e c h n i c a l , p u b l i s h i n g , a d v e r t i s i n g , c h a r i t a b l e a n d a l l o t h e r t y p e s o f a c t i v i t i e s a n d s e r v i c e s w h i c h a r e a l l o w e d ( n o t p r o h i b i t e d ) u n d e r t h e [ P e r s o n s a n d F a m i l y A c t o f 1 9 4 9 ] i n r e s p e c t o f n o n -p r o f i t a s s o c i a t i o n s . 2 . [ T h e a s s o c i a t i o n ] i s f o u n d e d w i t h t h e a i m s o f : u p l i f t i n g t h e B u l g a r i a n s p i r i t ; p r o t e c t i n g t h e B u l g a r i a n i n t e r e s t s a n d c r e a t i n g a w e a l t h y , p r o s p e r o u s a n d p a t r i o t i c n a t i o n ; e l e v a t i n g , d e v e l o p i n g a n d p r e s e r v i n g t h e B u l g a r i a n n a t i o n a l d i g n i t y ; u n i t i n g t h e B u l g a r i a n i d e n t i t y w i t h i n a n d o u t s i d e t h e b o u n d a r i e s o f t h e p r o m i s e d B u l g a r i a n l a n d , u n d e r t h e f l a g o f h i s t o r i c a l t r u t h ; p r o t e c t i n g a n d r e s t o r i n g t h e c o a t o f a r m s o f t h e B u l g a r i a n K i n g d o m a s a c o a t o f a r m s o f B u l g a r i a . 3 . [ T h e a s s o c i a t i o n ] i s f o r t h e c r e a t i o n o f a p e o p l e ‘s c o u r t t o j u d g e t h o s e r e s p o n s i b l e f o r t h e g r a v e s t e c o n o m i c , s p i r i t u a l , m o r a l a n d d e m o g r a p h i c c r i s i s o f t h e B u l g a r i a n s o c i e t y , B u l g a r i a n b a n k i n g a n d B u l g a r i a n s t a t e h o o d s i n c e 9 S e p t e m b e r 1 9 4 4 , i n p a r t i c u l a r t h e p e r i o d 1 9 9 4 , 1 9 9 5 , 1 9 9 6 a n d t h e f o l l o w i n g y e a r s . . .. 4 . [ T h e a s s o c i a t i o n ] i s f o r a w i d e d i s c u s s i o n … o f t h e i l l e g a l t r a m p l i n g a n d r e p e a l i n g o f o u r f i r s t c o n s t i t u t i o n a f t e r o u r l i b e r a t i o n i n 1 8 7 8 , t h e m o s t d e m o c r a t i c C o n s t i t u t i o n o f T a r n o v o a n d t h e i m p o s i t i o n o f t h e p r e s e n t [ C o n s t i t u t i o n ] … [ T h e a s s o c i a t i o n ] i s f o r t h e r e i n s t a t e m e n t ( p o s s i b l y w i t h a m e n d m e n t s ) o f t h e u n l a w f u l l y a b o l i s h e d ‘C O N S T I T U T I O N O F T A R N O V O ‘.. . [ T h e a s s o c i a t i o n ] i s f o r .. . c h a n g i n g t h e f o r m o f g o v e r n m e n t o f B u l g a r i a , f o r t h e r e t u r n i n g o f H . M . K I N G S I M E O N I I t o t h e m o t h e r l a n d a n d t h e t h r o n e . . .. 8 . . .. T h e c o r e o f t h e [ a s s o c i a t i o n ‘s ] a c t i v i t y s h a l l b e t h e s p i r i t u a l u n i f i c a t i o n o f a l l B u l g a r i a n s , c o n t a c t s w i t h a n d c o n s o l i d a t i o n o f t h e B u l g a r i a n D i a s p o r a , e s t a b l i s h m e n t o f s i n c e r e r e l a t i o n s w i t h . .. a l l B u l g a r i a n s o u t s i d e B u l g a r i a , a n d , i n t h e i n t e r n a t i o n a l r e l a t i o n s – p o i n t o n e s h a l l b e : a b o l i t i o n ( o p e n i n g ) o f t h e b o r d e r b e t w e e n B u l g a r i a a n d M a c e d o n i a . .. ” 9. O n a n uns pe c i f i e d l a t e r da t e t he a s s oc i a t i on s u bm i t t e d t o t he P l ovdi v R e gi ona l C our t a n a ppl i c a t i on f or r e gi s t r a t i on. 10. T he P l ovd i v R e gi ona l C our t r e f us e d t he a ppl i c a t i on i n a j udgm e nt o f 6 J une 1997. I t he l d: “ [ A c c o r d i n g t o ] c l a u s e 2 o f [ i t s a r t i c l e s ] , [ t h e a s s o c i a t i o n ] i n t e n d s t o p r o t e c t a n d r e s t o r e t h e c o a t o f a r m s o f t h e B u l g a r i a n K i n g d o m a s a c o a t o f a r m s o f B u l g a r i a . A c c o r d i n g t o c l a u s e 3 o f t h e a r t i c l e s , t h e a s s o c i a t i o n i s f o r t h e e s t a b l i s h m e n t o f a ‘p e o p l e ‘s c o u r t t o j u d g e t h o s e r e s p o n s i b l e f o r t h e g r a v e s t e c o n o m i c , s p i r i t u a l , m o r a l a n d d e m o g r a p h i c c r i s i s o f t h e B u l g a r i a n s o c i e t y , B u l g a r i a n b a n k i n g a n d B u l g a r i a n

Z H E C H E V v . B U L G A R I A J U D G M E N T 3 s t a t e h o o d s i n c e 9 S e p t e m b e r 1 9 4 4 , i n p a r t i c u l a r t h e p e r i o d 1 9 9 4 , 1 9 9 5 , 1 9 9 6 a n d t h e f o l l o w i n g y e a r s ‘. C l a u s e 4 o f t h e a r t i c l e s p r o v i d e s f o r a d e b a t e o n t h e r e p e a l i n g o f t h e C o n s t i t u t i o n o f T a r n o v o a n d t h e a d o p t i o n o f t h e [ C ] o n s t i t u t i o n [ o f 1 9 9 1 ] w h i c h i s p r e s e n t l y i n f o r c e . T h e g o a l s w h i c h h a v e b e e n e n u m e r a t e d t h u s f a r a r e s u f f i c i e n t t o r e f u s e t h e a s s o c i a t i o n ‘s r e g i s t r a t i o n . T h e y a r e c l e a r l y p o l i t i c a l i n n a t u r e a n d a r e c h a r a c t e r i s t i c o f a p o l i t i c a l p a r t y , w h o s e r e g i s t r a t i o n i s t o b e c a r r i e d o u t u n d e r t h e P o l i t i c a l P a r t i e s A c t [ o f 1 9 9 0 ] .” 11. T he a ppl i c a nt , a c t i ng i n hi s c a pa c i t y of c ha i r m a n of t he a s s o c i a t i on, a ppe a l e d t o t he S upr e m e C our t of C a s s a t i on. H e a r gue d, i nt e r al i a , t ha t t h e a s s oc i a t i on’ s a i m s w e r e not pol i t i c a l , but goa l s w hi c h c oul d be pur s ue d b y e ve r y c i t i z e n. 12. F ol l ow i ng a n a m e ndm e nt t o t he C ode of C i vi l P r oc e dur e of 1952 pr ovi di ng t ha t t he j udgm e nt s of t he r e gi ona l c our t s w e r e no l onge r a ppe a l a bl e be f or e t he S up r e m e C our t o f C a s s a t i on, but be f or e t he ne w l y e s t a bl i s he d c our t s of a ppe a l s , on 1 A pr i l 199 8 t he S upr e m e C our t of C a s s a t i on f or w a r de d t he a ppl i c a nt ‘s a ppe a l t o t h e ne w l y c r e a t e d P l ovdi v C our t of A ppe a l s . 13. O n 10 M a r c h 1999 t he P l ovdi v C our t of A p pe a l s uphe l d t he l ow e r c our t ‘s j udgm e nt . I t he l d a s f ol l ow s : “ T h e a r t i c l e s o f [ t h e a s s o c i a t i o n ] c o n t a i n p r o v i s i o n s w h i c h a r e c o n t r a r y t o t h e .. . C o n s t i t u t i o n o f t h e R e p u b l i c o f B u l g a r i a . F o r i n s t a n c e , c l a u s e 2 o f t h e a r t i c l e s p r o v i d e s f o r t h e r e s t o r a t i o n o f t h e c o a t o f a r m s o f t h e B u l g a r i a n K i n g d o m a s t h e c o u n t r y ‘s c o a t o f a r m s . C l a u s e 4 p r o v i d e s f o r a c h a n g e o f t h e f o r m o f g o v e r n m e n t f r o m r e p u b l i c t o m o n a r c h y a n d f o r t h e r e s t o r a t i o n o f t h e C o n s t i t u t i o n o f T a r n o v o [ o f 1 8 7 9 ] . C l a u s e 8 o f t h e a r t i c l e s – a b o l i t i o n o f t h e b o r d e r b e t w e e n B u l g a r i a a n d [ t h e f o r m e r Y u g o s l a v R e p u b l i c o f ] M a c e d o n i a . T h e s e g o a l s , a s f o r m u l a t e d i n t h e a b o v e -c i t e d c l a u s e s , r u n c o u n t e r t o A r t i c l e s 1 , 2 § 2 a n d 1 6 4 o f t h e C o n s t i t u t i o n . M o r e o v e r , t h e a s s o c i a t i o n i n d e e d h a s p o l i t i c a l g o a l s , w h e r e a s b y A r t i c l e 1 2 § 2 o f t h e C o n s t i t u t i o n a s s o c i a t i o n s m a y n o t p u r s u e p o l i t i c a l g o a l s a n d c a r r y o u t p o l i t i c a l a c t i v i t i e s t h a t a r e c h a r a c t e r i s t i c s o l e l y o f p o l i t i c a l p a r t i e s .” 14. T he a p pl i c a nt a ppe a l e d on poi nt s of l a w t o t he S upr e m e C our t o f C a s s a t i on. H e a r gue d t ha t t he l ow e r c our t ha d i nc or r e c t l y he l d t ha t t he a s s oc i a t i on’ s a i m s w e r e c ont r a r y t o t he C ons t i t ut i on. F ur t he r m or e , t he a s s oc i a t i on di d not pur s ue pol i t i c a l a i m s , be c a us e i t w a s not a s pi r i ng t o a c c e de t o pow e r . T he c our t s ‘ r e f us a l t o r e gi s t e r i t w a s a n i nf r i nge m e nt of i t s f ounde r s ‘ f r e e dom o f e xpr e s s i on. 15. O n 17 M a y 1999 t he S upr e m e C our t of C a s s a t i on di r e c t e d t h e a ppl i c a nt t o s pe c i f y t he g r ounds on w hi c h he s o ught t he qua s hi ng of t he j udgm e nt be l ow . I n l i ne w i t h t he s e i ns t r uc t i ons , t he a ppl i c a nt s ubm i t t e d a ddi t i ona l obs e r va t i ons . H e r e i t e r a t e d hi s c ont e nt i on t ha t t he a s s oc i a t i on’s a i m s w e r e not pol i t i c a l , be c a u s e i t w a s not s e e ki ng t o a c c e d e t o pow e r t hr ough e l e c t i ons or ot he r w i s e , or e xe r c i s e i t . I t s a i m s w e r e c ha r a c t e r i s t i c of t he c i vi l s oc i e t y a nd w e r e t o be a c hi e ve d t hr ough ot he r , non -pol i t i c a l m e a ns . F ur t he r m or e , t he a s s oc i a t i on’ s a r t i c l e s di d not pr o vi de f or t he c r e a t i on of a

4 Z H E C H E V v . B U L G A R I A J U D G M E N T pe opl e ‘s c our t , i t di d not i n f a c t obj e c t t o t he ne w c oa t of a r m s of B ul ga r i a a nd w a s not s e e ki ng t o c ha nge t he f o r m of gov e r nm e nt f r om r e publ i c t o m ona r c hy. T he s e w e r e e r r one ous f i ndi ngs o f t he l ow e r c our t . F i na l l y, t he a s s oc i a t i on w a s s e e ki ng t o a c hi e ve t he s pi r i t ua l uni o n of a l l B ul ga r i a ns , not t he a bol i t i on of t he bor de r be t w e e n B ul ga r i a a nd t he f or m e r Y ugos l a v R e publ i c of M a c e doni a . 16. O n 11 O c t obe r 1999 t he S upr e m e C our t o f C a s s a t i on uphe l d t h e P l ovdi v C our t of A ppe a l s ‘ j udgm e nt i n t he f ol l o w i ng t e r m s : “ T h e [ l o w e r c o u r t ] c o r r e c t l y f o u n d t h a t t h e g o a l s s e t o u t i n c l a u s e s 2 , 3 a n d 4 o f t h e a s s o c i a t i o n ‘s a r t i c l e s h a v e a c e r t a i n p o l i t i c a l t e n o r a n d a r e c h a r a c t e r i s t i c o f a p o l i t i c a l p a r t y , w h o s e r e g i s t r a t i o n i s t o b e c a r r i e d o u t u n d e r t h e P o l i t i c a l P a r t i e s A c t [ o f 1 9 9 0 ] . T h e s e g o a l s a r e c o n t r a r y t o A r t i c l e s 1 , 2 § 2 a n d 1 2 § 2 [ o f t h e C o n s t i t u t i o n o f 1 9 9 1 ] . ” I I . R E L E V A N T D O M E S T I C L A W A N D P R A C T I C E A . T h e C on s t i t u t i on o f 1991 17. T he r e l e va nt pr ovi s i ons of t he C ons t i t ut i o n of 1991 r e a d a s f ol l ow s : A r t i c l e 1 § 1 “ B u l g a r i a i s a r e p u b l i c w i t h a p a r l i a m e n t a r y f o r m o f g o v e r n m e n t .” A r t i c l e 2 § 2 “ T h e t e r r i t o r i a l i n t e g r i t y o f t h e R e p u b l i c o f B u l g a r i a s h a l l b e i n v i o l a b l e . ” A r t i c l e 1 1 “.. . 3 . P a r t i e s s h a l l f a c i l i t a t e t h e f o r m a t i o n o f t h e c i t i z e n s ‘ p o l i t i c a l w i l l . T h e m a n n e r o f f o r m i n g a n d d i s s o l v i n g p o l i t i c a l p a r t i e s , a s w e l l a s t h e c o n d i t i o n s p e r t a i n i n g t o t h e i r a c t i v i t y , s h a l l b e e s t a b l i s h e d b y l a w . 4 . N o p o l i t i c a l p a r t i e s s h a l l b e f o r m e d o n e t h n i c , r a c i a l , o r r e l i g i o u s b a s i s , n o r p a r t i e s w h i c h s e e k t o a c c e d e t o p o w e r b y f o r c e . ” A r t i c l e 1 2 “ 1 . T h e c i t i z e n s ‘ a s s o c i a t i o n s s h a l l s e r v e t o f u r t h e r a n d s a f e g u a r d t h e i r i n t e r e s t s . 2 . A s s o c i a t i o n s … m a y n o t p u r s u e p o l i t i c a l g o a l s o r c a r r y o u t p o l i t i c a l a c t i v i t i e s t h a t a r e c h a r a c t e r i s t i c s o l e l y o f p o l i t i c a l p a r t i e s . ”

Z H E C H E V v . B U L G A R I A J U D G M E N T 5 A r t i c l e 4 4 “ 1 . C i t i z e n s m a y f r e e l y a s s o c i a t e . 2 . O r g a n i s a t i o n s w h o s e a c t i v i t y i s d i r e c t e d a g a i n s t t h e s o v e r e i g n t y [ o r ] t h e t e r r i t o r i a l i n t e g r i t y o f t h e c o u n t r y a n d t h e u n i t y o f t h e n a t i o n , t o w a r d s t h e i n c i t e m e n t o f r a c i a l , n a t i o n a l , e t h n i c a l o r r e l i g i o u s e n m i t y … a s w e l l a s o r g a n i s a t i o n s w h i c h s e e k t o a c h i e v e t h e i r g o a l s t h r o u g h v i o l e n c e a r e p r o h i b i t e d . 3 . T h e l a w s h a l l s p e c i f y t h e o r g a n i s a t i o n s w h i c h a r e s u b j e c t t o r e g i s t r a t i o n , t h e m a n n e r o f t h e i r d i s s o l u t i o n , a s w e l l a s t h e i r r e l a t i o n s w i t h t h e S t a t e . ” A r t i c l e 1 6 4 “ T h e C o a t o f A r m s o f t h e R e p u b l i c o f B u l g a r i a s h a l l d e p i c t a g o l d l i o n r a m p a n t o n a d a r k g u l e s s h i e l d .” B . T h e P e r s on s an d F am i l y A c t o f 1949 18. A t t he m a t e r i a l t i m e t hi s A c t ( „ З а к он з а л и ц а т а и с е м е й с т в о т о “ ) , t he r e l e va nt pr ovi s i ons of w hi c h w e r e s upe r s e de d by ne w l e gi s l a t i on i n 2001, r e gul a t e d t he f or m a t i on , s t a t us a nd di s s ol ut i on of non -pr o f i t l e ga l e nt i t i e s , i . e . a s s oc i a t i ons a nd f ounda t i ons . I t s pe r t i n e nt pr ovi s i ons w e r e : S e c t i o n 1 3 4 “ A n a s s o c i a t i o n s h a l l a c q u i r e l e g a l p e r s o n a l i t y a f t e r i t s e n t r y i n t h e r e g i s t e r [ k e p t b y ] t h e R e g i o n a l C o u r t . ” S e c t i o n 1 3 6 ( 1 ) “ A n a s s o c i a t i o n s h a l l b e r e g i s t e r e d p u r s u a n t t o a n a p p l i c a t i o n b y [ i t s ] m a n a g e m e n t c o m m i t t e e [ t o w h i c h s h a l l b e e n c l o s e d ] a r e s o l u t i o n f o r i t s f o u n d i n g a n d i t s a r t i c l e s o f a s s o c i a t i o n , s i g n e d b y t h e f o u n d e r s .. .” S e c t i o n 1 3 8 “ A s s o c i a t i o n s s h a l l b e m a n a g e d i n a c c o r d a n c e w i t h [ t h e i r ] a r t i c l e s o f a s s o c i a t i o n , w h i c h m u s t c o n t a i n p r o v i s i o n s i n r e s p e c t o f [ t h e i r ] n a m e , a i m s , m e a n s . . . ” C . T h e P ol i t i c al P ar t i e s A c t o f 1990 19. A t t he m a t e r i a l t i m e t hi s A c t ( „ З а к он з а п ол и т и ч е с к и т е п а рт и и “ ) , w hi c h w a s s upe r s e de d by n e w l e gi s l a t i on i n 2001 , r e gul a t e d t he f or m a t i on , r e gi s t r a t i on, f unc t i oni ng a nd di s s ol ut i on of pol i t i c a l pa r t i e s . I t s r e l e va nt pr ovi s i ons r e a d a s f ol l ow s :

6 Z H E C H E V v . B U L G A R I A J U D G M E N T S e c t i o n 1 “ 1 . C i t i z e n s m a y f r e e l y a s s o c i a t e i n p o l i t i c a l p a r t i e s t o i n f l u e n c e t h e f o r m a t i o n a n d e x p r e s s i o n o f t h e p o l i t i c a l w i l l o f t h e p e o p l e t h r o u g h e l e c t i o n s o r o t h e r d e m o c r a t i c m e a n s . … 3 . O t h e r o r g a n i s a t i o n s a n d m o v e m e n t s m a y a l s o c a r r y o u t p o l i t i c a l a c t i v i t i e s w i t h i n t h e b o u n d s s e t b y t h e C o n s t i t u t i o n a n d t h e l a w s . ” S e c t i o n 7 “ A p o l i t i c a l p a r t y m a y b e f o r m e d [ b y ] n o t l e s s t h a n f i f t y e n f r a n c h i s e d c i t i z e n s .” S e c t i o n 1 3 “ 1 . A p u b l i c o r g a n i s a t i o n w h i c h h a s n o t b e e n r e g i s t e r e d a s a p o l i t i c a l p a r t y m a y n o t c a r r y o u t t h e a c t i v i t y o f a p o l i t i c a l p a r t y . 2 . A [ p u b l i c o r g a n i s a t i o n ] w h i c h h a s n o t b e e n r e g i s t e r e d a s a p o l i t i c a l p a r t y m a y n o t c a r r y o u t o r g a n i s e d p o l i t i c a l a c t i v i t i e s [ o n t h e p r e m i s e s o f ] e n t e r p r i s e s , g o v e r n m e n t a g e n c i e s a n d o r g a n i s a t i o n s . 3 . ‘O r g a n i s e d p o l i t i c a l a c t i v i t i e s ‘ s h a l l m e a n t h e h o l d i n g o f m e e t i n g s , d e m o n s t r a t i o n s , a s s e m b l i e s a n d o t h e r f o r m s o f c a m p a i g n i n g i n f a v o u r o f o r a g a i n s t a p o l i t i c a l p a r t y o r a n e l e c t i o n c a n d i d a t e . 4 . I f a p u b l i c o r g a n i s a t i o n … c l e a r l y c a r r i e s o u t t h e a c t i v i t y o f a p o l i t i c a l p a r t y , t h e r e g i o n a l p r o s e c u t o r s h a l l p r o p o s e t h a t i t b e d i s s o l v e d o r [ r e -] r e g i s t e r a s a p o l i t i c a l p a r t y w i t h i n o n e m o n t h . 5 . I f t h e o r g a n i s a t i o n u n d e r t h e f o r e g o i n g s u b s e c t i o n d o e s n o t c e a s e i t s p o l i t i c a l a c t i v i t y o r [ r e -] r e g i s t e r a s a p o l i t i c a l p a r t y , i t s h a l l b e d i s s o l v e d .. .” 20. T he A c t a l s o r e gul a t e d t he m a nne r i n w hi c h pol i t i c a l pa r t i e s w e r e f i na nc e d, pr ovi di ng f o r c e r t a i n uppe r l i m i t s on t he dona t i ons t ha t t he y c oul d r e c e i ve a nd pr ohi bi t i ng t he i r r e c e i vi ng a nonym ou s dona t i ons a nd dona t i ons f r om f or e i gn s t a t e s a nd o r ga ni s a t i ons ( s e c t i on 17) . D . O t h e r r e l e van t s t at u t or y p r ovi s i on s 21. O nl y pol i t i c a l pa r t i e s ( a nd c oa l i t i on s of s uc h pa r t i e s ) , a nd no t a s s oc i a t i on s , m a y pa r t i c i pa t e i n pa r l i a m e nt a r y, pr e s i de nt i a l , l oc a l a nd E ur ope a n e l e c t i ons a nd nom i na t e c a ndi da t e s ( s e c t i on 41( 2) , ( 3) a nd ( 4) of t he E l e c t i ng o f M e m be r s of P a r l i a m e nt , M uni c i pa l C ounc i l l or s a nd M a yor s A c t of 199 1 ( „ З а к он з а и з б и ра н е н а н а род н и п ре д с т а в и т е л и , об щ и н с к и с ъ в е т н и ц и и к м е т ов е “ ) , s e c t i on 43( 1) of t he E l e c t i ng of M e m be r s of P a r l i a m e nt A c t of 2001 ( „ З а к он з а и з б и ра н е н а н а род н и п ре д с т а в и т е л и “ ) ,

Z H E C H E V v . B U L G A R I A J U D G M E N T 7 s e c t i on 3( 1) a nd ( 2) of t he E l e c t i ng of a P r e s i de n t a nd a V i c e-P r e s i de nt o f t he R e publ i c A c t of 1991 ( „ З а к он з а и з б и ра н е н а п ре з и д е н т и в и ц е п ре з и д е н т н а ре п уб л и к а т а “ ) , s e c t i on 35( 1 ) of t he L oc a l E l e c t i ons A c t of 1995 ( „ З а к он з а м е с т н и т е и з б ори “ ) , a nd s e c t i on 48( 1) a nd ( 3) of t he E l e c t i ng of M e m be r s of t he E ur ope a n P a r l i a m e nt A c t f r om t he R e publ i c of B ul ga r i a of 2007 ( „ З а к он з а и з б и ра н е н а ч л е н ов е н а Е в роп е й с к и я п а рл а м е н т от Р е п уб л и к а Б ъ л г а ри я “ ) ) . E . R e l e van t c as e -l aw of t h e C on s t i t u t i on al C ou r t 22. I n a j udgm e nt of 21 A pr i l 1992 ( ре ш . № 4 о т 21 а п ри л 1992 г . п о к . д . № 1 от 1991 г . , об н . , Д В , б р. 35 от 28 а п ри л 1992 г . ) t he C ons t i t ut i ona l C our t s t a t e d, i nt e r al i a , t ha t “ po l i t i c a l a c t i vi t i e s t ha t a r e c ha r a c t e r i s t i c s ol e l y of pol i t i c a l pa r t i e s ” , w i t hi n t he m e a ni ng of A r t i c l e 12 § 2 of t he C ons t i t ut i on of 1991, w e r e de f i ne d by A r t i c l e 11 § 3 t he r e of a s t hos e w hi c h f a c i l i t a t e “ t he f o r m a t i on of t he c i t i z e ns ‘ pol i t i c a l w i l l ” t h r ough “ e l e c t i ons or ot he r de m oc r a t i c m e a ns ” , a s s pe c i f i e d by s e c t i on 1( 1) of t he P ol i t i c a l P a r t i e s A c t of 1990. T he c our t a l s o s t a t e d t ha t “ w ha t w a s e s s e nt i a l f or t hi s t ype of pol i t i c a l a c t i vi t y [ w a s ] t he di r e c t p a r t i c i pa t i on i n t he pr oc e s s of f or m i ng t he bodi e s t hr ough w hi c h, a c c or di ng t o t he C ons t i t ut i on, t he pe opl e e xe r c i s e [ d] i t s pow e r ” . O f c our s e , t he a c t i vi t i e s of a pa r t y i n c onne c t i on w i t h upc om i ng e l e c t i ons e m br a c e d t he hol di ng of m e e t i ng s , a s s e m bl i e s a nd ot he r f or m s o f publ i c c a m pa i gni n g i n s uppor t o f t he pa r t y a nd t he c a ndi da t e s nom i na t e d by i t , w hi c h w e r e a l s o a c t i vi t i e s a i m e d a t “ f or m i ng” t he c i t i z e ns ‘ pol i t i c a l w i l l . F . T h e C on s t i t u t i on of 1879 23. T he C ons t i t ut i on of 1879 w a s t he f i r s t w r i t t e n c ons t i t ut i on of B ul ga r i a , a dopt e d by a C ons t i t ue nt N a t i ona l A s s e m bl y on 16 A pr i l 1879, s hor t l y a f t e r t he c r e a t i on of B ul ga r i a a s a n i nde pe n de nt S t a t e i n 1878. I t w a s r e pe a l e d i n 1947. I t p r ovi de d f or c ons t i t ut i ona l m ona r c hy ( A r t i c l e s 4, 5, 9, 10 a nd 12) , w i t h a di r e c t l y e l e c t e d pa r l i a m e nt a nd uni ve r s a l s uf f r a ge ( A r t i c l e 86) , a gove r nm e nt a c c ount a bl e t o t he pa r l i a m e nt ( A r t i c l e 153 ) , a nd s e pa r a t i on of pow e r s ( A r t i c l e s 9, 12 a nd 13) . I t pr o hi bi t e d t or t ur e ( A r t i c l e 75 § 2) a nd puni s hm e nt w i t hout l a w a nd due pr oc e s s ( A r t i c l e s 73 a nd 75 § 1) , e ns hr i ne d t he r i ght t o pr ope r t y ( A r t i c l e s 67 a nd 6 8) , t he r i ght t o r e s pe c t f or one ‘s hom e a nd c or r e s ponde nc e ( A r t i c l e s 74 a nd 77) , a nd t he f r e e dom s of t he pr e s s a nd of a s s e m bl y a nd a s s oc i a t i on ( A r t i c l e s 79, 81, 82 a nd 83 ) .

8 Z H E C H E V v . B U L G A R I A J U D G M E N T T H E L A W I . A L L E G E D V I O L A T I O N S O F A R T I C L E S 10 A N D 11 O F T H E C O N V E N T I O N 24. T he a ppl i c a nt c om pl a i ne d a bout t he r e f us a l of t he c our t s t o r e gi s t e r t he a s s oc i a t i on c ha i r e d by hi m . I n hi s i ni t i a l a ppl i c a t i on he a l l e ge d a br e a c h of A r t i c l e 10 of t he C onve nt i on, w he r e a s i n h i s obs e r va t i ons i n r e pl y t o t hos e of t he G ove r nm e nt he a ddi t i ona l l y r e l i e d on i t s A r t i c l e 11. 25. A r t i c l e 10 pr ovi de s , a s r e l e va nt : “ 1 . E v e r y o n e h a s t h e r i g h t t o f r e e d o m o f e x p r e s s i o n . T h i s r i g h t s h a l l i n c l u d e f r e e d o m t o h o l d o p i n i o n s a n d t o r e c e i v e a n d i m p a r t i n f o r m a t i o n a n d i d e a s w i t h o u t i n t e r f e r e n c e b y p u b l i c a u t h o r i t y a n d r e g a r d l e s s o f f r o n t i e r s . . . . 2 . T h e e x e r c i s e o f t h e s e f r e e d o m s , s i n c e i t c a r r i e s w i t h i t d u t i e s a n d r e s p o n s i b i l i t i e s , m a y b e s u b j e c t t o s u c h f o r m a l i t i e s , c o n d i t i o n s , r e s t r i c t i o n s o r p e n a l t i e s a s a r e p r e s c r i b e d b y l a w a n d a r e n e c e s s a r y i n a d e m o c r a t i c s o c i e t y , i n t h e i n t e r e s t s o f n a t i o n a l s e c u r i t y , t e r r i t o r i a l i n t e g r i t y o r p u b l i c s a f e t y , f o r t h e p r e v e n t i o n o f d i s o r d e r o r c r i m e , f o r t h e p r o t e c t i o n o f h e a l t h o r m o r a l s , f o r t h e p r o t e c t i o n o f t h e r e p u t a t i o n o r r i g h t s o f o t h e r s , f o r p r e v e n t i n g t h e d i s c l o s u r e o f i n f o r m a t i o n r e c e i v e d i n c o n f i d e n c e , o r f o r m a i n t a i n i n g t h e a u t h o r i t y a n d i m p a r t i a l i t y o f t h e j u d i c i a r y .” 26. A r t i c l e 11 pr ovi de s , a s r e l e va nt : “1 . E v e r y o n e h a s t h e r i g h t t o .. . f r e e d o m o f a s s o c i a t i o n w i t h o t h e r s . .. 2 . N o r e s t r i c t i o n s s h a l l b e p l a c e d o n t h e e x e r c i s e o f [ t h i s r i g h t ] o t h e r t h a n s u c h a s a r e p r e s c r i b e d b y l a w a n d a r e n e c e s s a r y i n a d e m o c r a t i c s o c i e t y i n t h e i n t e r e s t s o f n a t i o n a l s e c u r i t y o r p u b l i c s a f e t y , f o r t h e p r e v e n t i o n o f d i s o r d e r o r c r i m e , f o r t h e p r o t e c t i o n o f h e a l t h o r m o r a l s o r f o r t h e p r o t e c t i o n o f t h e r i g h t s a n d f r e e d o m s o f o t h e r s . .. .” A . T h e p ar t i e s ‘ s u b m i s s i on s 27. T he a ppl i c a nt s ubm i t t e d t ha t a s t he a s s oc i a t i on’s r e gi s t r a t i on ha d be e n de ni e d on a c c ount of t he c ont e nt s of i t s a r t i c l e s , w hi c h ha d i n a w a y c ons t i t ut e d a “ pe na l t y” f or t he vi e w s e xpr e s s e d t he r e i n, t he c om pl a i nt f e l l t o be e xa m i ne d unde r bot h A r t i c l e s 10 a nd 11 o f t he C onve nt i on. 28. H e f ur t he r a r gue d t ha t t he i nt e r f e r e nc e w i t h hi s r i ght s ha d not b e e n pr e s c r i be d by l a w . T he P l ovdi v R e gi ona l C our t h a d not r e l i e d on a s p e c i f i c pr ovi s i on of t he P ol i t i c a l P a r t i e s A c t of 1990 t o j u s t i f y i t s r e f us a l t o r e gi s t e r t he a s s oc i a t i on, w hi c h w a s onl y n a t ur a l i n vi e w of t he t e xt of s e c t i on 1( 3) of t ha t A c t . T ha t c our t ‘s pr opos i t i on t ha t onl y pol i t i c a l pa r t i e s c oul d pur s ue pol i t i c a l goa l s s how e d a f unda m e nt a l l a c k of unde r s t a ndi ng of t he r ol e of non-gove r nm e nt a l or ga ni s a t i ons i n a de m oc r a t i c s oc i e t y. T he s e w e r e f r e que nt l y f ounde d i n or de r t o pr om ot e va r i ous c a us e s a nd i nf l ue nc e publ i c

Z H E C H E V v . B U L G A R I A J U D G M E N T 9 pol i c i e s . T he i r goa l s w e r e t hus of t e n pol i t i c a l . T h e f unda m e nt a l di f f e r e nc e be t w e e n t he m a nd pol i t i c a l pa r t i e s , how e ve r , w e r e not t he s e goa l s , but t he m e a ns t o a c hi e ve t he m . P ol i t i c a l pa r t i e s pa r t i c i pa t e d i n e l e c t i ons a nd i n t h e gove r nm e nt , w he r e a s a s s oc i a t i ons di d not . T he y m e r e l y i nf l ue nc e d publ i c opi ni on on va r i ous i s s ue s , t hus i ndi r e c t l y s ha pi ng t he gove r nm e nt ‘s pol i c i e s . L i ke w i s e , t he P l ovdi v C our t of A ppe a l s ‘ hol di ng t ha t t he a s s oc i a t i on’s a i m s f e l l unde r t he pr os c r i pt i on of A r t i c l e 12 § 2 of t he C ons t i t ut i on of 1991 w a s e r r one ous . T he a s s oc i a t i on’s a i m s , a s w a s a ppa r e n t f r om t he w or di ng of i t s a r t i c l e s , c ons i s t e d of va r i ous r e f or m i de a s , but di d not a m ount t o a c onc r e t e a nd c ohe r e nt pol i t i c a l pr ogr a m m e a nd i d e ol ogy. T he r e w a s no r e a s on w h y s uc h i de a s c oul d not be ba c ke d by va r i ous e nt i t i e s i n a pl ur a l i s t i c s oc i e t y. I t w a s i m por t a nt t o unde r s c or e t ha t t he a s s oc i a t i o n’s a r t i c l e s c ont a i n e d no l a ngua ge poi nt i ng t o a n i nt e nt i on t o pa r t i c i pa t e i n e l e c t i ons or i n t he gove r nm e nt , w hi c h w e r e i nde e d goa l s s ol e l y c ha r a c t e r i s t i c of pol i t i c a l pa r t i e s . O n t he ot he r h a nd, A r t i c l e 12 § 2 of t he C ons t i t ut i on of 1991 w a s not f r a m e d w i t h s uf f i c i e nt pr e c i s i on, a s i t c oul d be r e a d a s pr ohi bi t i ng t o a s s oc i a t i on s a l l t ype s of pol i t i c a l goa l s . N or di d i t m a ke c l e a r w ha t w a s e xa c t l y pr ohi bi t e d: pol i t i c a l goa l s or a l s o pol i t i c a l a c t i vi t i e s . T he i nt e r f e r e nc e ha d a l s o b e e n a r bi t r a r y, a s e vi de nc e d by t he l a c k of ge nui ne r e a s ons f or t he S upr e m e C our t o f C a s s a t i on’s j udg m e nt , w hos e hol di ng w a s pa c ke d i n j us t f our l i ne s . 29. T he a ppl i c a nt a ddi t i ona l l y s ubm i t t e d t ha t t h e i nt e r f e r e nc e ha d not be e n ne c e s s a r y i n a de m oc r a t i c s oc i e t y. H e r e f e r r e d t o t he pr i nc i pl e s de ve l ope d i n C our t ‘s c a s e -l a w on t hi s i s s u e a nd a r gue d t ha t he ha d be e n pe na l i s e d s ol e l y f or t he i de a s e xpr e s s e d i n t he a s s oc i a t i on’ s a r t i c l e s . T he a s s oc i a t i on h a d not e nga ge d i n a ny a c t i on w hi c h c oul d c ha r a c t e r i s e i t a s pr opa ga t i ng vi ol e nc e or unde m oc r a t i c pr i nc i pl e s . T he i de a o f a m ona r c hy a nd t he r e l a t e d i ns i gni a w e r e not unde m oc r a t i c o r vi ol e nt , a s e vi de nc e d i n pa r t i c ul a r by t he f a c t t ha t t he na m e of t he c oa l i t i on w hi c h ha d r ul e d t he c ount r y a s be t w e e n 2001 a nd 2005 ha d be e n “ N a t i ona l M ove m e nt S i m e on I I ” , a f t e r t he f or m e r he i r t o t he t hr one S i m e on S a xe -C obur ggot s ki , w ho ha d be c om e pr i m e m i ni s t e r . E ve n be f or e hi s s t a r t i ng i nt o of f i c e i n 2001 B ul ga r i a ‘s c oa t of a r m s ha d f e a t ur e d a c r ow n, w he r e a s t he publ i c de ba t e ove r t he f or m of gove r nm e nt – r e publ i c o r m ona r c hy – c ont i nue d. W hi l e t he C ons t i t ut i on i nde e d ne e de d s t a bi l i t y, i t w a s by no m e a ns c a r ve d i nt o s t one . I t s a m e ndm e nt c oul d be e nvi s a ge d f or t he pur pos e of br i ngi ng i t i n l i ne w i t h t he dom i na nt publ i c vi e w s on t he f or m of gove r n m e nt , w he r e a s s uppr e s s i n g a ny i de a s i n t hi s r e s pe c t c oul d ha r m de m oc r a c y a nd c ons t i t ut e d unf e t t e r e d m a j or i t y r u l e . 30. T he G ove r nm e nt a r gue d t ha t t he a ppl i c a nt ‘s c om pl a i nt w a s s ol e l y unde r A r t i c l e 10 of t he C onve nt i on. H e ha d not r e l i e d on A r t i c l e 11 t he r e of i n hi s i ni t i a l a ppl i c a t i on a nd t hi s c om pl a i nt w a s t h e r e f or e out of t he s c ope of t he c a s e a nd w a s not t o be e xa m i ne d by t he C our t .

1 0 Z H E C H E V v . B U L G A R I A J U D G M E N T 31. T he G ove r nm e nt w e r e f ur t he r of t he vi e w t ha t t he i nt e r f e r e nc e w i t h t he a ppl i c a nt ‘s r i ght s ha d be e n pr e s c r i be d by l a w , n a m e l y t he C ons t i t ut i on of 1991, t he P e r s ons a nd F a m i l y A c t of 1949 a nd t he P ol i t i c a l P a r t i e s A c t of 1990. I t ha d be e n i nt e nde d t o s a f e gua r d a w i de r a n ge of publ i c i nt e r e s t s . A l l t hr e e l e ve l s of c our t ha d l a w f ul l y a nd j us t i f i a bl y r e f us e d t o r e gi s t e r t he a s s oc i a t i on. 32. I n t he G ove r nm e nt ‘s s ubm i s s i on, t he f ounde r s of a n a s s oc i a t i on w e r e i n pr i nc i pl e f r e e t o de t e r m i ne t he c ont e nt s of i t s a r t i c l e s , but a l w a ys s ubj e c t t o t he r e qui r e m e nt s of t he l a w . U nde r B ul ga r i a n l a w , a s s oc i a t i ons a nd t r a d e uni ons w e r e f or m e d w i t h a vi e w t o vi ndi c a t i n g n on -pol i t i c a l i nt e r e s t s . A l l t hr e e l e ve l s of c our t ha d f ound t ha t c e r t a i n c l a us e s i n t he a s s oc i a t i on’ s a r t i c l e s , w hi c h c oul d not be c ons t r ue d ot he r w i s e , ha d be e n c ont r a r y t o t he C ons t i t ut i on of 1991 ( A r t i c l e s 1, 2 § 2 a nd 164) a nd t he l a w s of B ul ga r i a , and t ha t i t s a i m s ha d be e n pol i t i c a l , c ont r a r y t o t h e pr i nc i pl e s pe l l e d out i n A r t i c l e 12 § 2 of t he C ons t i t ut i on of 1991. T he y w e r e a t odd s w i t h B ul ga r i a ‘s c ur r e nt f or m of gove r nm e nt a nd t hu s i r r e c onc i l a bl e w i t h t he pr i nc i pl e s of de m oc r a c y a nd t he c om m a nds of t he C ons t i t ut i on of 1991. T he a s s oc i a t i on’ s f ounde r s c oul d a l w a y s a m e nd t he c ont e nt i ous c l a u s e s i n i t s a r t i c l e s a nd r e a ppl y f o r r e gi s t r a t i on. B . T h e C ou r t ‘ s as s e s s m e n t 1. L e gal c har ac t e r i s at i on of t he appl i c ant ‘ s c om pl ai nt 33. T he C our t not e s t ha t i t i s f r e e t o a t t r i but e t o t he f a c t s of t he c a s e a c ha r a c t e r i s a t i on i n l a w di f f e r e nt f r om t ha t gi ve n b y t he pa r t i e s ( s e e , a m ong m a ny ot he r a ut hor i t i e s , F ot i and O t he r s v . I t al y , j udgm e nt of 10 D e c e m be r 1982, S e r i e s A no. 56, pp. 15 -16, § 44; C am e nz i nd v . Sw i t z e r l and , j udgm e nt of 16 D e c e m be r 1997, R e por t s of J udgm e nt s a nd D e c i s i ons 1997 -V I I I , pp. 2895-96 , § 50; a nd K . -H . W v . G e r m any [ G C ] , no. 37201/ 97 , § 107, E C H R 2001 -I I ( e xt r a c t s ) ) . I t not e s t ha t i t ha s c ons i s t e nt l y s t r e s s e d i n i t s c a s e -l a w t ha t t he pr ot e c t i on of opi ni ons a nd t he f r e e dom t o e xpr e s s t he m i s one of t he obj e c t i ve s of t he f r e e dom of a s s oc i a t i on ( s e e , a m ong m a ny ot he r a ut hor i t i e s , G or z e l i k and O t he r s v . P ol and [ G C ] , no. 44158/ 98, § 91, E C H R 2004-I ; P ar t i dul C om uni s t i l or ( N e pe c e r i s t i ) and U ngur e anu v . R om ani a , no. 46626/ 99 , § 44, 3 F e br ua r y 2005; T he U ni t e d M ac e doni an O r gani s at i on I l i nde n and O t he r s v . B u l gar i a , no . 59491/ 00 , § 59, 19 J a nua r y 2006; a nd T s one v v . B ul gar i a , no. 45963/ 99, § 49, 13 A pr i l 2 006 ) . T he C our t t he r e f o r e c ons i de r s t ha t t he a ppl i c a nt ‘s c om pl a i nt s hou l d be e xa m i ne d unde r A r t i c l e 11 c ons i de r e d i n t he l i ght o f A r t i c l e 10 ( s e e A P E H Ü l döz öt t e i ne k Sz öv e t s é g e and O t he r s v . H ungar y ( de c . ) , no. 32367/ 96, 31 A ugus t 1999; a nd, m ut at i s m ut andi s , M ae s t r i v . I t al y [ G C ] , no. 39748/ 98, §§ 23 a nd 24, E C H R 2004 -I ; a nd T he M os c ow B r anc h of t he S al v at i on A r m y v . R us s i a , no. 72881/ 01 , §§ 71 -75 , E C H R 2006 -. . . ) .

Z H E C H E V v . B U L G A R I A J U D G M E N T 1 1 2. G e ne r al pr i nc i pl e s i n t he C ou r t ‘ s c a s e -l aw on f r e e dom o f as s oc i at i on 34. T he r i ght t o f or m a n a s s oc i a t i on i s a n i nhe r e nt pa r t of t he r i ght s e t f or t h i n A r t i c l e 11 of t he C onve nt i on. T he a bi l i t y t o f o r m a l e ga l e nt i t y i n or de r t o a c t c ol l e c t i ve l y i n a f i e l d of m ut ua l i nt e r e s t i s one of t he m os t i m por t a nt a s pe c t s of t he r i ght t o f r e e dom of a s s oc i a t i on, w i t hout w hi c h t ha t r i ght w oul d be de pr i ve d of a ny m e a ni ng. T he w a y i n w hi c h na t i ona l l e gi s l a t i on e ns hr i ne s t hi s f r e e dom a nd i t s pr a c t i c a l a ppl i c a t i on by t he a ut hor i t i e s r e ve a l t he s t a t e of de m oc r a c y i n t he c ount r y c onc e r ne d. C e r t a i nl y S t a t e s h a ve a r i ght t o s a t i s f y t he m s e l ve s t ha t a n a s s oc i a t i on’s a i m a n d a c t i vi t i e s a r e i n c onf or m i t y w i t h t he r ul e s l a i d do w n i n l e gi s l a t i on, bu t t he y m us t do s o i n a m a nne r c om pa t i bl e w i t h t he i r obl i ga t i ons unde r t he C onve nt i on a nd s ubj e c t t o r e vi e w by t he C on ve n t i on i ns t i t ut i ons ( s e e Si di r opoul os and O t he r s v . G r e e c e , j udgm e nt of 10 J ul y 1998, R e por t s of J udgm e nt s and D e c i s i on s 1998 -I V , pp. 1614 -15, § 40; T he U ni t e d M ac e doni an O r gani s at i on I l i nde n and O t he r s , c i t e d a bove , § 57; T he M os c ow B r anc h of t he Sal v at i on A r m y , c i t e d a bov e , § 59 ; a nd R am az anov a and O t he r s v . A z e r bai j an , no . 44363/ 02 , § 54 , 1 F e br ua r y 2007 ) . 35. W hi l e i n t he c ont e xt of A r t i c l e 11 t he C our t ha s of t e n r e f e r r e d t o t he e s s e nt i a l r ol e pl a ye d by pol i t i c a l pa r t i e s i n e ns u r i ng pl ur a l i s m a nd de m oc r a c y, a s s oc i a t i ons f or m e d f or ot he r pur pos e s a r e a l s o i m por t a nt t o t he pr ope r f unc t i oni ng of de m oc r a c y . F or pl u r a l i s m i s a l s o bui l t on t he ge nui ne r e c ogni t i on of , a nd r e s pe c t f or , di ve r s i t y a nd t he dyna m i c s of c ul t ur a l t r a di t i ons , e t hni c a nd c ul t ur a l i de nt i t i e s , r e l i gi ou s be l i e f s , a r t i s t i c , l i t e r a r y a nd s oc i o -e c onom i c i de a s a nd c onc e pt s . T he h a r m oni ous i nt e r a c t i on of pe r s ons a nd gr oups w i t h va r i e d i de nt i t i e s i s e s s e nt i a l f or a c hi e vi ng s oc i a l c ohe s i on. I t i s onl y na t ur a l t ha t , w he r e a c i vi l s oc i e t y f unc t i ons i n a he a l t hy m a nne r , t he pa r t i c i pa t i on of c i t i z e ns i n t he de m oc r a t i c pr oc e s s i s t o a l a r ge e xt e nt a c hi e ve d t hr ough be l ongi ng t o a s s oc i a t i ons i n w hi c h t he y m a y i nt e gr a t e w i t h e a c h ot he r a nd pur s ue c om m on o bj e c t i ve s c ol l e c t i ve l y ( s e e G or z e l i k and O t he r s , § 92; a nd T he M os c ow B r anc h of t he Sal v at i on A r m y , § 61, bot h c i t e d a bove ) . 36. G i ve n t ha t t he i m pl e m e nt a t i on of t he pr i n c i pl e of pl ur a l i s m i s i m pos s i bl e w i t hout a n a s s oc i a t i on be i ng a bl e t o e xpr e s s f r e e l y i t s i de a s a nd opi ni ons , t he C our t ha s a l s o r e c ogni s e d t ha t t he p r ot e c t i on of opi ni ons a nd t he f r e e dom of e xpr e s s i on w i t hi n t he m e a ni n g of A r t i c l e 10 of t he C onve nt i on i s one of t he obj e c t i ve s of t he f r e e dom of a s s oc i a t i on ( s e e pa r a gr a ph 33 a bove a nd G or z e l i k and O t he r s , c i t e d a bove , § 91, w i t h f ur t he r r e f e r e nc e s ) . S uc h a l i nk i s pa r t i c ul a r l y r e l e va nt w he r e – a s he r e – t h e a ut hor i t i e s ‘ s t a nc e t ow a r ds a n a s s oc i a t i on w a s i n r e a c t i on t o i t s vi e w s a nd s t a t e m e nt s ( s e e T he U ni t e d M ac e doni an O r gani s at i on I l i nde n and O t he r s , c i t e d a bove , § 59 , c i t i ng St ank ov and t he U ni t e d M ac e doni an O r gani s at i on I l i nde n v . B ul gar i a , nos . 29221/ 95 a nd 29225/ 95, § 85 i n f i ne , E C H R 2001-I X ) .

1 2 Z H E C H E V v . B U L G A R I A J U D G M E N T 2. W as t he r e an i nt e r f e r e nc e ? 37. T he C our t c ons i de r s t ha t t he dom e s t i c c our t s ‘ r e f us a l t o r e gi s t e r t he a s s oc i a t i on c ha i r e d by t he a ppl i c a nt a m ount e d t o a n i nt e r f e r e nc e w i t h t he e xe r c i s e of hi s r i ght t o f r e e dom of a s s oc i a t i on ( s e e Si di r opoul os and O t he r s , p. 1612, § 3 1; G or z e l i k and O t he r s, § 52; P ar t i dul C om uni s t i l or ( N e pe c e r i s t i ) and U ngur e anu , § 27; T he U ni t e d M ac e doni an O r gani s at i o n I l i nde n and O t he r s , § 53; T s one v , § 43; T he M os c ow B r anc h of t he Sal v at i on A r m y , § 71; a nd R am az anov a and O t he r s , § 60 , a l l c i t e d a bove ) . 38. T he C our t m us t t he r e f or e e xa m i ne w he t he r t he i nt e r f e r e nc e w a s “ pr e s c r i be d by l a w ” , pur s ue d one or m or e of t he l e gi t i m a t e a i m s s e t out i n pa r a gr a ph 2 of A r t i c l e 11 a nd w a s “ ne c e s s a r y i n a de m oc r a t i c s oc i e t y” f or t he a c hi e ve m e nt of t hos e a i m s . 3. W as t he i n t e r f e r e nc e “ pr e s c r i be d by l aw ” ? 39. O n t hi s poi nt , t he C our t not e s t ha t t o r e f us e r e gi s t r a t i on t he dom e s t i c c our t s r e l i e d on s e ve r a l a r t i c l e s of t he C ons t i t ut i o n of 1991 ( s e e pa r a gr a phs 10, 13 a nd 16 a bove ) . T he a ppl i c a nt a r gue d t ha t t h e s e c our t s ha d e r r e d i n t he i nt e r pr e t a t i on a nd a ppl i c a t i on of t he s e l e ga l pr ovi s i ons . H ow e ve r , t he C our t not e s t ha t i t i s pr i m a r i l y f o r t he na t i ona l c our t s t o i nt e r pr e t a nd a ppl y dom e s t i c l a w ( s e e T he U ni t e d M ac e doni an O r gani s at i on I l i nde n and O t he r s , § 55; a nd T s one v , § 45, bot h c i t e d a bove ) . F i r s t l y, i t i s pr e pa r e d t o a c c e pt t ha t t he i r hol di ng t ha t t he a i m s of t he a s s oc i a t i on w e r e c ont r a r y t o t he C ons t i t ut i on of 1991 di d not go s o f a r a s t o be c om e a r bi t r a r y. S e c ondl y, i t i s t r ue t ha t t he i r c a t e gor i z a t i on of t he s e a i m s a s “ pol i t i c a l ” w i t hi n t he m e a ni ng of A r t i c l e 12 § 2 of t he C ons t i t ut i on of 1991 a nd t he i r hol di ng t h a t t he a s s oc i a t i on c oul d not pur s ue t he m w i t hout be i ng a pol i t i c a l pa r t y m a y a ppe a r que s t i ona bl e i n vi e w of t he c ons t r uc t i o n of t hi s A r t i c l e by t he C ons t i t ut i ona l C our t a nd t he t e nor of t he ot he r r e l e va nt pr ovi s i ons of dom e s t i c l a w ( s e e p a r a gr a phs 17, 19 a nd 22 a bov e ) . H ow e ve r , t he C our t i s m i ndf ul t ha t l e ga l opi ni ons on t he e xa c t pu r por t o f s uc h a w i de not i on ope n t o l a r ge l y di ve r s e i nt e r pr e t a t i ons – “ pol i t i c a l ” – m a y di f f e r . I t i s t he r e f or e l i ke w i s e pr e pa r e d t o a c c e pt t ha t t he s e hol di n gs w e r e not a s p a t e nt l y unr e a s ona bl e a s t o be c om e a r bi t r a r y. M or e ove r , w hi l e t he r e a s oni ng of t he na t i ona l c our t s , a nd e s pe c i a l l y t ha t of t he S upr e m e C our t of C a s s a t i on, w a s inde e d ve r y s c a nt , i t w a s not a l t oge t he r l a c ki ng, a s c l a i m e d by t he a ppl i c a nt . 40. T he C our t doe s not f ur t he r m o r e pe r c e i ve a pr obl e m i n t he a l l e ge d va gue ne s s of A r t i c l e 12 § 2 of t he C ons t i t ut i on of 1991. I t i s not pos s i bl e t o a t t a i n a bs ol ut e r i gi di t y i n t he f r a m i ng of l a w s , a nd m a ny of t he m – e s pe c i a l l y a na t i ona l c ons t i t ut i on – a r e i ne vi t a bl y c ouc he d i n t e r m s w hi c h, t o a gr e a t e r o r l e s s e r e xt e nt , a r e va gue . T he l e ve l of p r e c i s i on r e qui r e d o f dom e s t i c l e gi s l a t i on de pe nds t o a c ons i de r a bl e de gr e e on t he c ont e nt o f t he i ns t r um e nt i n que s t i on a nd t he f i e l d i t i s de s i gne d t o c ove r ( s e e M ae s t r i , c i t e d a bove , § 30 i n f i ne ) . I t m us t a l s o be bor n e i n m i nd t ha t , how e ve r

Z H E C H E V v . B U L G A R I A J U D G M E N T 1 3 c l e a r l y dr a f t e d a l e ga l pr ov i s i on m a y be , i t s a ppl i c a t i on i nvol ve s a n ine vi t a bl e e l e m e nt of j udi c i a l i nt e r p r e t a t i on, s i nc e t he r e w i l l a l w a ys be a ne e d f or c l a r i f i c a t i on of doubt f ul poi nt s a nd f or a da pt a t i on t o pa r t i c ul a r c i r c um s t a nc e s . T he m e r e f a c t t ha t s uc h a pr ovi s i on i s c a pa bl e of m or e t ha n one c ons t r uc t i on doe s not m e a n t ha t i t f a i l s t o m e e t t he r e qui r e m e nt of “ f or e s e e a bi l i t y” f or t he pu r pos e s of t he C onve nt i o n. T he r ol e o f a dj udi c a t i on ve s t e d i n t he c our t s i s pr e c i s e l y t o di s s i pa t e s uc h i nt e r pr e t a t i ona l doubt s a s r e m a i n, t a ki ng i nt o a c c ount t he c ha nge s i n e ve r yda y pr a c t i c e ( s e e G or z e l i k and O t he r s , c i t e d a bove , § 65) . 41. T he C our t i s t hus s a t i s f i e d t ha t t he i nt e r f e r e n c e w a s “ pr e s c r i be d b y l a w ” . 4. D i d t he i nt e r f e r e nc e pur s u e a l e gi t i m at e ai m ? 42. W hi l e t he G ove r nm e nt w e r e not s pe c i f i c on t hi s poi nt , t he C our t i s pr e pa r e d t o a c c e pt t ha t t he i nt e r f e r e nc e a i m e d a t pr ot e c t i ng na t i ona l s e c ur i t y, pr e ve nt i ng di s or de r a nd pr ot e c t i ng t he r i ght s a nd f r e e dom s of ot he r s . 5. W as t he i n t e r f e r e nc e “ ne c e s s ar y i n a de m oc r at i c s oc i e t y ” ? ( a ) G e n e r a l p r i n c i p l e s i n t h e C o u r t ‘ s c a s e -l a w 43. T he e xc e pt i ons s e t out i n A r t i c l e 11 a r e t o be c ons t r ue d s t r i c t l y; onl y c onvi nc i ng a nd c om pe l l i ng r e a s ons c a n j us t i f y r e s t r i c t i ons on f r e e dom of a s s oc i a t i on. I n de t e r m i ni ng w he t he r a n e c e s s i t y w i t hi n t he m e a ni ng of A r t i c l e 11 § 2 e xi s t s , t he S t a t e s ha ve onl y a l i m i t e d m a r gi n of a ppr e c i a t i on, w hi c h goe s ha nd i n ha nd w i t h r i gor ous E ur ope a n s upe r vi s i on e m br a c i ng bot h t he l a w a nd t he de c i s i ons a ppl yi ng i t , i nc l udi ng t hos e gi ve n by i nde pe nde nt c our t s ( s e e , a m ong m a ny ot he r a ut h or i t i e s , Si di r opoul os and O t he r s , c i t e d a bove , pp. 1614 -15, § 40; T he U ni t e d M ac e doni an O r gani s at i on I l i nde n and O t he r s , § 61; T s one v , § 51; a nd T he M os c o w B r anc h of t he Sal v at i on A r m y , § 76 , a l l c i t e d a bove ) . 44. W he n t he C our t c a r r i e s out i t s s c r ut i ny, i t s t a s k i s not t o s ub s t i t ut e i t s ow n vi e w f or t ha t of t he r e l e va nt na t i ona l a ut hor i t i e s , but r a t he r t o r e vi e w unde r A r t i c l e 11 t he de c i s i ons t he y de l i ve r e d i n t he e xe r c i s e of t he i r di s c r e t i on. T hi s doe s not m e a n t ha t i t ha s t o c on f i ne i t s e l f t o a s c e r t a i ni ng w he t he r t he r e s ponde nt S t a t e e xe r c i s e d i t s di s c r e t i on r e a s ona bl y, c a r e f ul l y a nd i n good f a i t h; i t m us t l ook a t t he i nt e r f e r e nc e c om pl a i ne d of i n t he l i ght of t he c a s e a s a w hol e a n d de t e r m i ne w he t he r i t w a s “ pr opor t i ona t e t o t he l e gi t i m a t e a i m pur s ue d” a nd w h e t he r t he r e a s ons a dduc e d by t he n a t i ona l a ut hor i t i e s t o j us t i f y i t w e r e “ r e l e va nt a nd s uf f i c i e nt ” . I n s o doi ng, t he C our t ha s t o s a t i s f y i t s e l f t ha t t he s e a ut hor i t i e s a ppl i e d s t a nda r ds w hi c h w e r e i n c onf or m i t y w i t h t he pr i nc i pl e s e m bodi e d i n A r t i c l e 11 a nd, m or e ove r , t ha t t he y ba s e d t he i r de c i s i ons on a n a c c e pt a bl e a s s e s s m e nt of t he r e l e va nt f a c t s

1 4 Z H E C H E V v . B U L G A R I A J U D G M E N T ( s e e Si di r opoul os and O t he r s , pp. 1614 -15, § 4 0; P ar t i dul C om uni s t i l or ( N e pe c e r i s t i ) and U ngur e anu , § 49; T he U ni t e d M ac e doni an O r gani s at i o n I l i nde n and O t he r s , § 62; T s one v , § 52; a nd T h e M os c ow B r anc h of t h e Sal v at i on A r m y , § 77, a l l c i t e d a bove ) . ( b ) A p p l i c a t i o n o f t h e s e p r i n c i p l e s t o t h e p r e s e n t c a s e 45. T he C our t m us t now , i n l i gh t of t he p r i n c i pl e s s e t out a bove , s c r ut i ni s e t he gr ounds r e l i e d on t o j us t i f y t he i nt e r f e r e nc e a nd t he s i gni f i c a nc e of t ha t i n t e r f e r e nc e . ( i ) G r o u n d s r e l i e d o n t o j u s t i f y t h e i n t e r f e r e n c e 46. T he C our t not e s t ha t t he dom e s t i c c our t s i n t he i r j udgm e nt s a nd t h e G ove r nm e nt i n t he i r pl e a di ngs r e l i e d on t w o gr oups of a r gum e nt s j us t i f yi ng t he i nt e r f e r e nc e ( s e e pa r a gr a phs 10, 13, 16 a nd 32 a bove ) . T ha t be i ng s o, t he C our t w i l l e xa m i ne t he s e gr oups i n t u r n. ( α ) A l l e g e d i n c o m p a t i b i l i t y o f t h e a s s o c i a t i o n ‘s a i m s w i t h t h e C o n s t i t u t i o n o f 1 9 9 1 47. R e ga r di ng t he a l l e ge d i nc om pa t i bi l i t y of t he a s s oc i a t i on’ s a i m s w i t h t he C ons t i t ut i on of 1991, t he C our t c ons i de r s t h a t e ve n i f i t m a y be a s s um e d t ha t w ha t t he a s s oc i a t i on w a s t r yi ng t o a c hi e ve – r e pe a l i ng t ha t C ons t i t ut i on, r e i ns t a t i ng t he C ons t i t ut i on of 1879, a nd r e s t or i ng t he a nc i e nt c oa t o f a r m s a nd t he m ona r c hy – w a s i nd e e d c ont r a r y t o A r t i c l e s 1 § 1 a nd 164 of t he C ons t i t ut i on of 1991, t ha t doe s not m e a n t ha t t he i nt e r f e r e nc e w a s j us t i f i e d. A n or ga ni s a t i on m a y c a m pa i gn f or a c ha nge i n t h e l e ga l a nd c ons t i t ut i ona l s t r uc t ur e s of t he S t a t e i f t he m e a ns us e d t o t ha t e nd a r e i n e ve r y r e s pe c t l e ga l a nd de m oc r a t i c a nd i f t he c ha nge p r opos e d i s i t s e l f c om pa t i bl e w i t h f unda m e nt a l de m oc r a t i c pr i nc i pl e s ( s e e Y az ar and O t he r s v . T ur k e y , nos . 22723/ 93, 22724/ 93 a nd 22725/ 93, § 49, E C H R 2002 -I I ; R e f ah P ar t i s i ( T he W e l f ar e P ar t y ) and O t he r s v . T ur k e y [ G C ] , nos . 41340/ 98, 41342/ 98, 41343/ 98 a nd 41344/ 98, § 98, E C H R 2003 -I I ; a nd T he U ni t e d M ac e doni an O r gani s at i on I l i nde n – P I R I N and O t he r s v . B ul g ar i a , no. 59489/ 00 , § 59 , 20 O c t obe r 2005 ) . T he r e i s no i ndi c a t i on t ha t t he s e c ondi t i ons w e r e no t pr e s e nt . M ona r c hy i s not i nc om pa t i bl e i n i t s e l f w i t h t he pr i nc i pl e s o f de m oc r a c y, a s s how n by t he e xa m pl e of a num be r of m e m be r S t a t e s of t he C ounc i l of E ur op e . N or ha s i t be e n a r gue d t ha t t he C ons t i t ut i on of 1879 w a s unde m oc r a t i c . I t p r ovi de d f o r a pa r l i a m e nt a r y m ona r c hy, s e pa r a t i on of pow e r s , uni ve r s a l s uf f r a ge , a nd e ns hr i ne d a num be r of f unda m e nt a l r i ght s ( s e e pa r a gr a ph 23 a bove ) . 48. M or e ove r , i t doe s not s e e m t ha t t he pr opos e d “ a bol i t i on” or “ ope ni ng” of t he bor de r be t w e e n t he f or m e r Y ugos l a v R e publ i c of M a c e doni a a nd B ul ga r i a , f ound t o be c ont r a r y t o A r t i c l e 2 § 2 of t h e C ons t i t ut i on of 1991, c oul d j e opa r di s e i n a ny c onc e i va bl e w a y t hos e c ount r i e s ‘ t e r r i t or i a l i nt e g r i t y or na t i ona l s e c ur i t y . F i r s t l y, i t doe s not a ppe a r

Z H E C H E V v . B U L G A R I A J U D G M E N T 1 5 t ha t i t t r ul y a m ount e d t o a r e que s t f or t e r r i t or i a l c ha nge s . S e c ondl y, e ve n i f i t w a s s o, t he m e r e f a c t t ha t a n o r ga ni s a t i on de m a nds s uc h c ha nge s c a nnot a ut om a t i c a l l y j us t i f y i nt e r f e r e nc e s w i t h i t s m e m be r s ‘ f r e e dom s of a s s oc i a t i on a nd a s s e m bl y ( s e e T he U ni t e d M ac e doni an O r gani s at i on I l i nde n – P I R I N and O t he r s , c i t e d a bove , § 61, c i t i ng St ank ov and t h e U ni t e d M ac e doni an O r gani s at i on I l i nd e n , c i t e d a bove , § 97 ) . 49. T he r e i s f u r t he r m or e no i ndi c a t i on, a nd i t ha s not be e n s ugge s t e d by t he dom e s t i c c our t s or t he G ov e r nm e nt , t ha t t he a s s oc i a t i on w oul d u s e vi ol e nt or unde m oc r a t i c m e a ns t o a c hi e ve i t s a i m s . 50. F i na l l y, i t doe s not a ppe a r t ha t t he a s s oc i a t i on ha d a ny r e a l c ha nc e o f br i ngi ng a bout c ha nge s w hi c h w oul d not m e e t w i t h t he a ppr ova l of e ve r yone on t he pol i t i c a l s t a ge ( s e e Y a z ar and O t h e r s , § 58 i n f i ne ; a nd T he U ni t e d M ac e doni an O r ga ni s at i on I l i nde n – P I R I N and O t he r s , § 61, bot h c i t e d a bove ) . I t a ppe a r s t ha t i t s pub l i c i nf l ue nc e w a s ne gl i gi bl e ( s e e , a s a n e xa m pl e t o t he c ont r a r y, R e f ah P ar t i s i ( T he W e l f ar e P ar t y ) and O t he r s , c i t e d a bove , §§ 107 -10) . 51. I n s um , t he C our t c ons i de r s t ha t t he a i m s of t he a s s oc i a t i on w e r e not a s s uc h a s uf f i c i e nt gr ound t o r e f us e i t s r e gi s t r a t i on . ( β ) A l l e g e d “ p o l i t i c a l ” c h a r a c t e r o f t h e a s s o c i a t i o n ‘s a i m s 52. T he na t i ona l c our t s f ound t ha t s om e of t h e a i m s of t he a s s o c i a t i on – t he r e s t or a t i on of t he C ons t i t ut i on of 1879 a nd of t he m ona r c hy – w e r e “ pol i t i c a l goa l s ” w i t hi n t he m e a ni ng of A r t i c l e 12 § 2 of t he C on s t i t ut i on of 1991 a nd c oul d he nc e be pur s ue d s ol e l y by a pol i t i c a l pa r t y. 53. T he C our t ha s a l r e a dy e xpr e s s e d c e r t a i n m i s gi vi ngs i n r e l a t i on t o t he s e hol di ngs ( s e e pa r a gr a ph 39 a bove ) . H ow e ve r , i t i s not f or i t t o gi ve a n a ut hor i t a t i ve opi ni on on t he c or r e c t i nt e r p r e t a t i on of dom e s t i c l a w , t ha t t a s k be i ng r e s e r ve d f or t he na t i ona l c our t s . I t w i l l t he r e f or e pr oc e e d on t he a s s um pt i on t ha t t hi s l a w w a s c ons t r ue d c or r e c t l y a nd w i l l e xa m i ne w he t he r i t s a ppl i c a t i on w i t h r e ga r d t o t he a ppl i c a nt l e d t o r e s ul t s c om p a t i bl e w i t h t h e C onve nt i o n ( s e e G or z e l i k and O t he r s , c i t e d a bove , § 100) . 54. T he C our t m us t t he r e f o r e ve r i f y w he t he r i t i s ne c e s s a r y i n a de m oc r a t i c s oc i e t y t o pr ohi bi t or ga ni s a t i ons , unl e s s r e gi s t e r e d a s pol i t i c a l pa r t i e s , f r om pur s ui ng “ pol i t i c a l goa l s ” . I n s o doi ng i t m us t e xa m i ne w he t he r t hi s ba n c or r e s ponds t o a “ pr e s s i ng s oc i a l ne e d” a nd w he t he r i t i s pr opor t i ona t e t o t he a i m s s ought t o be a c hi e ve d ( i b i d. , §§ 94 -10 5) . 55. T he f i r s t t hi ng w hi c h ne e ds t o be not e d i n t hi s c o nne c t i on i s t he unc e r t a i nt y s ur r oundi ng t he t e r m “ pol i t i c a l ” , a s us e d i n A r t i c l e 12 § 2 of t he C ons t i t ut i on of 1991 a nd a s i nt e r pr e t e d by t he dom e s t i c c our t s . F or i ns t a nc e , i n t he pr e s e nt c a s e t he s e c our t s de e m e d t ha t a c a m pa i gn f or c ha nge s i n t h e c ons t i t u t i on a nd t he f or m of gove r nm e nt f e l l w i t h i n t ha t c a t e gor y. I n a not he r r e c e nt c a s e t he s e s a m e c our t s ha d, m or e que s t i ona bl y, s t a t e d t ha t t he “ hol di ng of m e e t i ngs , de m on s t r a t i ons , a s s e m bl i e s a nd ot he r f or m s of publ i c c a m pa i gni ng” by a n a s s oc i a t i on c a m pa i gni n g f o r r e gi ona l a ut ono m y a nd

1 6 Z H E C H E V v . B U L G A R I A J U D G M E N T a l l e ge d m i nor i t y r i ght s a l s o a m ount e d t o pol i t i c a l goa l s a nd a c t i vi t i e s w i t hi n t he m e a ni ng of A r t i c l e 12 § 2 of t he C ons t i t ut i on of 1991. T he C our t f ound t hi s hol di ng unw a r r a nt e d ( s e e T he U ni t e d M ac e do ni an O r gani s at i on I l i nde n and O t he r s , c i t e d a bove , §§ 17, 19, 21 a nd 73 ) . T he C ons t i t ut i ona l C our t ha s , f or i t s pa r t , a dopt e d a di f f e r e nt de f i ni t i on of “ pol i t i c a l ” , w hi c h w a s c e nt r e d on “ pa r t i c i pa t i on i n t he pr oc e s s of f or m i ng t he bodi e s t hr ough w h i c h . . . t he pe opl e e xe r c i s e [ d] i t s pow e r ” ( s e e pa r a gr a p h 22 a bove ) . A ga i ns t t hi s ba c kgr ound a nd be a r i ng i n m i nd t ha t t hi s t e r m i s i nhe r e nt l y va gue a nd c oul d be s ubj e c t t o l a r ge l y di ve r s e i nt e r pr e t a t i ons , i t i s qui t e c onc e i va bl e t ha t t he B ul ga r i a n c o ur t s c oul d l a be l a ny goa l s w hi c h a r e i n s om e w a y r e l a t e d t o t he nor m a l f unc t i oni ng of a de m oc r a t i c s oc i e t y a s “ pol i t i c a l ” a nd a c c or di ngl y di r e c t t he f ounde r s of l e ga l e nt i t i e s w i s hi ng t o pur s ue s u c h goa l s t o r e gi s t e r t he m a s pol i t i c a l pa r t i e s i ns t e a d of “ o r di na r y” a s s oc i a t i ons . A c l a s s i f i c a t i on ba s e d on t hi s c r i t e r i on i s t he r e f or e l i a bl e t o pr oduc e i nc ohe r e nt r e s ul t s a nd e nge nde r c ons i de r a bl e unc e r t a i nt y a m ong t hos e w i s hi ng t o a ppl y f or r e gi s t r a t i on of s uc h e nt i t i e s . 56. I f a s s oc i a t i ons i n B ul ga r i a c oul d, w he n r e gi s t e r e d a s s uc h, pa r t i c i pa t e i n e l e c t i ons a nd a c c e de t o pow e r , a s w a s t he c a s e i n G or z e l i k and O t he r s ( c i t e d a bove ) , i t m i ght be ne c e s s a r y t o r e qui r e s o m e of t he m t o r e gi s t e r a s pol i t i c a l pa r t i e s , s o a s t o m a ke t he m s ubj e c t t o, f or i ns t a nc e , s t r i c t e r r ul e s c onc e r ni ng pa r t y f i na nc i ng, publ i c c ont r ol a nd t r a ns pa r e nc y ( s e e pa r a gr a ph 20 a bove ) . H ow e ve r , unde r B ul ga r i a n l a w , a s i t s t ood a t t he m a t e r i a l t i m e a nd a s i t s t a nd s a t pr e s e nt , a s s oc i a t i on s m a y not pa r t i c i pa t e i n na t i ona l , l oc a l or E ur ope a n e l e c t i ons ( s e e p a r a gr a ph 21 a bove ) . T he r e i s t he r e f or e no “ pr e s s i ng s oc i a l ne e d” t o r e qui r e e ve r y a s s oc i a t i o n de e m e d by t he c our t s t o pur s ue “ pol i t i c a l ” goa l s t o r e gi s t e r a s a pol i t i c a l p a r t y, e s pe c i a l l y i n vi e w of t he f a c t t ha t , a s not e d a bove , t he e xa c t m e a ni ng of t ha t t e r m unde r B ul ga r i a n l a w a ppe a r s t o be qui t e va gue . T ha t w oul d m e a n f or c i ng t he a s s oc i a t i on t o t a ke a l e ga l s ha pe w hi c h i t s f ounde r s di d not s e e k. I t w oul d a l s o m e a n s ubj e c t i ng i t t o a num be r of a ddi t i ona l r e qui r e m e nt s a nd r e s t r i c t i ons , s uc h a s f or i ns t a nc e t he r ul e t ha t a pol i t i c a l pa r t y c a nnot b e f or m e d by l e s s t ha n f i f t y e nf r a nc hi s e d c i t i z e ns ( s e e pa r a gr a ph 19 a bov e ) , w hi c h m a y i n s om e c a s e s pr ove a n i ns ur m ount a bl e ob s t a c l e f or i t s f ounde r s . M or e ove r , s uc h a n a ppr oa c h r uns c ount e r t o f r e e dom of a s s oc i a t i on, be c a us e , i n c a s e i t i s a dopt e d, t he l i be r t y of a c t i on w hi c h w i l l r e m a i n a va i l a bl e t o t he f ounde r s of a n a s s o c i a t i on m a y be c om e e i t he r non -e xi s t e nt or s o r e duc e d a s t o be of no pr a c t i c a l va l ue ( s e e , m ut at i s m ut andi s , Y oung, J am e s and W e bs t e r v . t he U ni t e d K i ngdom , j udgm e nt o f 13 A ugus t 1981 , S e r i e s A no. 44 , p . 23 , § 56; Si gur ður A . Si gur j óns s on v . I c e l and , j udgm e n t of 30 J une 1993, S e r i e s A no. 264, pp. 15 -16, § 35; a nd C has s agnou and O t he r s v . F r anc e [ G C ] , nos . 25088/ 94, 28331/ 95 a nd 28443/ 95, § 114 i n f i ne , E C H R 1999 -I I I ) . 57. T he C our t t he r e f o r e c ons i de r s t ha t a l l e ge d “ pol i t i c a l ” c ha r a c t e r of t he a s s o c i a t i on’s a i m s w a s a l s o not a s uf f i c i e nt gr ound t o r e f us e i t s r e gi s t r a t i on.

Z H E C H E V v . B U L G A R I A J U D G M E N T 1 7 ( i i ) T h e s i g n i f i c a n c e o f t h e i n t e r f e r e n c e 58. T he C our t not e s t ha t , i n i t s i m pa c t on t he a ppl i c a nt , t he i m pugne d m e a s ur e w a s r a di c a l : i t w e nt s o f a r a s t o pr e ve nt t he a s s oc i a t i on f r om e ve n c om m e nc i ng a ny a c t i vi t y ( s e e G o r z e l i k and O t he r s , § 105; T he U ni t e d M ac e doni an O r gani s at i on I l i nde n and O t he r s , § 80; a nd T s one v , § 63, a l l c i t e d a bove ) . ( i i i ) T h e C o u r t ‘s c o n c l u s i o n 59. I n t he l i ght of t he f o r e goi ng, t he C our t c onc l ude s t ha t t he r e a s on s i nvoke d by t he r e s ponde nt S t a t e t o r e f us e t he r e gi s t r a t i on of t he a s s oc i a t i o n c ha i r e d by t he a ppl i c a nt w e r e not r e l e va nt a nd s uf f i c i e nt . T ha t be i ng s o, t he i nt e r f e r e nc e w i t h t h e a ppl i c a nt ‘s f r e e dom of a s s o c i a t i on c a nnot be de e m e d ne c e s s a r y i n a de m oc r a t i c s o c i e t y. I t f ol l ow s t ha t t he r e ha s be e n a vi ol a t i on of A r t i c l e 11 of t he C onve nt i on . I I . A P P L I C A T I O N O F A R T I C L E 41 O F T H E C O N V E N T I O N 60. A r t i c l e 41 of t he C onve nt i on p r ovi de s : “I f t h e C o u r t f i n d s t h a t t h e r e h a s b e e n a v i o l a t i o n o f t h e C o n v e n t i o n o r t h e P r o t o c o l s t h e r e t o , a n d i f t h e i n t e r n a l l a w o f t h e H i g h C o n t r a c t i n g P a r t y c o n c e r n e d a l l o w s o n l y p a r t i a l r e p a r a t i o n t o b e m a d e , t h e C o u r t s h a l l , i f n e c e s s a r y , a f f o r d j u s t s a t i s f a c t i o n t o t h e i n j u r e d p a r t y .” A . D a m age 61. T he a ppl i c a nt c l a i m e d 5, 000 e ur os ( E U R ) f or t he non -pe c uni a r y da m a ge r e s ul t i ng f r om t he r e f us a l of t he dom e s t i c c our t s t o r e gi s t e r t he a s s oc i a t i on c ha i r e d by hi m . 62. T he G ove r nm e nt di d not e xpr e s s a n opi ni on o n t he m a t t e r . 63. T he C our t a c c e pt s t ha t t he a ppl i c a nt s u s t a i ne d non -pe c uni a r y da m a ge f r om t he dom e s t i c c our t s ‘ r e f us a l t o r e gi s t e r t he a s s o c i a t i on c ha i r e d by hi m . I t hol ds , how e ve r , t ha t t he f i ndi ng of a vi ol a t i on of A r t i c l e 11 c ons t i t ut e s s uf f i c i e nt c om pe ns a t i on f or i t ( s e e P ar t i dul C om uni s t i l o r ( N e pe c e r i s t i ) and U ngur e anu , § 70; a nd T s one v , § 70, bot h c i t e d a bove ) . B . C os t s an d e xp e n s e s 64. T he a ppl i c a nt s ought t he r e i m bur s e m e nt of E U R 1, 802. 50 i nc ur r e d i n l e ga l f e e s a nd E U R 35 f or e xpe ns e s f or t he pr oc e e di ngs be f or e t he C our t . H e s ubm i t t e d a f e e s a gr e e m e nt be t w e e n hi m a nd hi s l a w ye r a nd a t i m e -s he e t , a nd r e que s t e d t ha t a ny a m ount a w a r de d by t he C our t unde r t hi s he a d be pa i d i nt o t he ba nk a c c ount o f hi s l a w ye r . 65. T he G ove r nm e nt di d not e xpr e s s a n opi ni on o n t he m a t t e r .

1 8 Z H E C H E V v . B U L G A R I A J U D G M E N T 66. T he C our t a c c e pt s t ha t t he a ppl i c a nt i nc ur r e d c os t s a nd e xp e ns e s f or t he pr oc e e di ngs . H i s c l a i m i s s uppor t e d w i t h r e l e va nt m a t e r i a l s . T he C our t not e s t ha t pa r t of t he a ppl i c a t i on w a s de c l a r e d i na d m i s s i bl e ( s e e p a r a gr a ph 4 a bove ) , but , t a ki ng i n t o a c c ount t he c om pl e xi t y of t h e c om pl a i nt w hi c h w a s e xa m i ne d on t he m e r i t s , doe s not c on s i de r t ha t t h i s w a r r a nt s a r e duc t i on i n t he a w a r d. H a vi ng r e ga r d t o t he e l e m e nt s i n i t s pos s e s s i on a nd t he a bov e c ons i de r a t i ons , a nd de duc t i ng E U R 715 r e c e i ve d i n l e ga l a i d f r om t he C ounc i l of E u r op e , t he C our t a w a r ds t he a ppl i c a nt t he f ul l a m ount of hi s c l a i m ( E U R 1, 087. 50) , pl us a ny t a x t ha t m a y be c ha r ge a bl e , t o be pa i d i nt o t he ba nk a c c ount of hi s r e pr e s e nt a t i ve , M r M . E ki m dz hi e v. C . D e f a u l t i n t e r e s t 67. T he C our t c ons i de r s i t a ppr opr i a t e t ha t t he de f a ul t i nt e r e s t s houl d be ba s e d on t he m a r gi na l l e ndi ng r a t e of t he E ur ope a n C e nt r a l B a nk, t o w hi c h s houl d be a dde d t hr e e pe r c e nt a ge poi nt s . F O R T H E S E R E A S O N S , T H E C O U R T U N A N I M O U S L Y 1. H ol ds t ha t t he r e ha s be e n a vi ol a t i on o f A r t i c l e 11 of t he C onve nt i on; 2. H ol ds ( a ) t ha t t he r e s ponde nt S t a t e i s t o pa y t he a ppl i c a n t , w i t hi n t hr e e m ont hs f r om t he da t e on w hi c h t he j udgm e nt be c om e s f i na l i n a c c or da nc e w i t h A r t i c l e 44 § 2 of t he C onve nt i on, E U R 1, 087 . 50 ( one t hous a nd e i ght y -s e ve n e ur os a nd f i f t y c e nt s ) i n r e s pe c t of c os t s a nd e xpe ns e s , t o be c onve r t e d i nt o B ul ga r i a n l e vs a t t he r a t e a ppl i c a bl e a t t he da t e of s e t t l e m e nt , pl us a ny t a x t ha t m a y be c ha r ge a bl e , t o be pa i d i nt o t he ba nk a c c ount of t he a ppl i c a nt ‘s r e p r e s e nt a t i ve , M r M . E ki m dz hi e v; ( b) t ha t f r om t he e xpi r y of t he a bove -m e nt i one d t hr e e m ont hs unt i l s e t t l e m e nt s i m pl e i nt e r e s t s ha l l be pa y a bl e on t he a bove a m ount s a t a r a t e e qua l t o t he m a r gi na l l e ndi ng r a t e o f t he E ur ope a n C e nt r a l B a nk dur i ng t he de f a ul t pe r i od pl us t h r e e pe r c e nt a ge poi nt s ; 3. D i s m i s s e s t he r e m a i nde r of t he a ppl i c a nt ‘s c l a i m f or j us t s a t i s f a c t i on.

Z H E C H E V v . B U L G A R I A J U D G M E N T 1 9 D one i n E ngl i s h, a nd not i f i e d i n w r i t i ng on 21 J une 2007, pu r s ua nt t o R ul e 77 §§ 2 a nd 3 o f t he R ul e s of C our t . C l a udi a WE S T E R D IE K P e e r LO RE N Z E N R e gi s t r a r P r e s i de nt I n a c c or da nc e w i t h A r t i c l e 45 § 2 o f t he C onve nt i on a nd R ul e 74 § 2 o f t he R ul e s of C our t , t he f ol l ow i ng opi ni ons a r e a nn e xe d t o t hi s j udgm e nt : ( a ) C onc ur r i ng opi n i on of M s T s a t s a -N i kol ovs ka ; ( b) C onc ur r i ng opi ni on o f M r M a r us t e . P . L . C . W .

2 0 Z H E C H E V v . B U L G A R I A J U D G M E N T C O N C U R R I N G O P I N I O N O F J U D G E T S A T S A -N I K O L O V S K A I w a s a bl e t o vot e t ha t t he r e ha d be e n a vi ol a t i on i n t hi s c a s e a s t he ope r a t i ve pa r t of t he j udgm e nt i s a ve r y ge ne r a l one , but I w oul d l i ke t o e xpl a i n m y pos i t i on. I n pa r a gr a phs 48, 49 a nd 50 of t he j udgm e nt , t h e C our t a s s e s s e d t h e a s s oc i a t i on’ s a i m c onc e r ni ng “ a bol i t i on” of t he bor de r be t w e e n B ul ga r i a a n d M a c e doni a , w hi c h w a s i ndi c a t e d i n c l a us e 8 of i t s a r t i c l e s of a s s oc i a t i on. T he a ppl i c a nt , w he n di r e c t e d by t he S up r e m e C our t of C a s s a t i on t o s t a t e t he gr ounds f or a ppe a l , s a i d t ha t t he a s s o c i a t i on di d not s e e k t he a bol i t i on of t he bor de r . T he S upr e m e C our t of C a s s a t i on de l i ve r e d j udgm e nt a f t e r hol di ng a he a r i ng a nd uphe l d t he P l ovdi v C our t of A ppe a l s ‘ j udgm e nt onl y a s r e ga r ds c l a us e s 2, 3 a nd 4 of t he a s s oc i a t i o n’s a r t i c l e s , w i t hout m a ki ng a ny a s s e s s m e nt on c l a us e 8. A s t he a ppl i c a nt e xpr e s s e d i n t he c l a r i f i c a t i on he ga ve t o t he S up r e m e C our t of C a s s a t i on, t he a s s oc i a t i on ha d a b a ndone d t he a i m i n c l a us e 8 – t he a bol i t i on of t he bor de r a nd s i nc e t he f i na l i nt e r f e r e nc e w i t h t he a ppl i c a nt ‘s r i ght s c a m e w i t h t he S upr e m e C our t of C a s s a t i on’s j udgm e nt , i n w hi c h a bol i t i on w a s not t he s ubj e c t of a s s e s s m e nt , I c ons i de r t ha t t he r e i s no pl a c e f or t he C our t t o c on s i de r t ha t a i m a s w e l l , or t o a s s e s s w he t he r or not t he r e w e r e s uf f i c i e nt gr ounds t o r e f us e r e gi s t r a t i on. T h e a i m i ndi c a t e d i n c l a u s e 8 – a bol i t i on o f t he bo r de r , a s e xpl a i ne d by t he a ppl i c a nt , s i m pl y doe s not e xi s t a ny m or e .

Z H E C H E V v . B U L G A R I A J U D G M E N T 2 1 C O N C U R R I N G O P I N I O N O F J U D G E M A R U S T E W hi l e be i ng i n a gr e e m e nt w i t h t he m a j or i t y i n f i ndi ng a vi ol a t i on of A r t i c l e 11 of t he C onve nt i on, I w oul d l i ke t o a dd s om e m or e c ons i de r a t i on s i n t hi s r e s pe c t . M y f i r s t a nd m a i n poi nt i s t ha t t he pr obl e m of r e gi s t r a t i on or non-r e gi s t r a t i on of a s s oc i a t i ons s t e m s a t l e a s t i n pa r t f r o m t he i ns uf f i c i e nt a nd s om e w h a t c ont r a di c t or y pr ovi s i ons gove r ni n g a s s o c i a t i ons ot he r t h a n pol i t i c a l pa r t i e s i n t he B ul ga r i a n l e ga l s ys t e m . A r t i c l e 12 § 2 of t he C ons t i t ut i on s t i pul a t e s t ha t “ a s s oc i a t i on s . . . m a y n ot pur s ue pol i t i c a l goa l s or c a r r y out pol i t i c a l a c t i vi t i e s t ha t a r e c h a r a c t e r i s t i c s ol e l y of pol i t i c a l pa r t i e s ” . A s i m pl e r e a di ng of t ha t pr ovi s i on w oul d i m pl y t ha t a l l ot he r pol i t i c a l goa l s a r e a c c e pt e d. T hi s i s e xa c t l y w ha t one w oul d e xp e c t i n a nor m a l de m oc r a t i c or de r . T he que s t i on i s : on w ha t ba s i s , by w hom a n d i n w ha t m a nne r c a n t hi s be de c i de d? A r t i c l e 44 § 3 o f t he C ons t i t ut i on s t i pul a t e s t ha t “ t he l a w s ha l l s pe c i f y t he or ga ni s a t i ons w hi c h a r e s ubj e c t t o r e gi s t r a t i o n, t he m a nne r of t he i r di s s ol ut i on, a s w e l l a s t he i r r e l a t i ons w i t h t he S t a t e ” . F i ne . B ut i f w e l ook a t the l e x s pe c i al i s i n t ha t r e s pe c t – t he P e r s ons a nd F a m i l y A c t of 1949 –, w e s e e t ha t i t doe s not c ove r a l l t he s e a s pe c t s . I w oul d s pe c i f i c a l l y poi nt t o t he l a c k of c l e a r l y l i s t e d l e ga l gr ounds f or non -r e gi s t r a t i on or di s s ol ut i on a nd of a pr oc e dur e f o r c ha l l e ngi ng a nd m a ki ng de c i s i on s i n di s put e s of t hi s ki nd . M a ybe t hi s i s t he r e a s on w hy t he c our t s h a ve ha d t o r e l y onl y on t he ge ne r a l pr ovi s i ons of t he C ons t i t ut i on. T hi s i n i t s e l f i s a c c e pt a bl e , but l e a ve s t he c our t s t o de c i de on r a t he r a bs t r a c t a nd e ve n s p e c u l a t i ve gr ounds a nd a l l ow s t he m r a t he r b r oa d pow e r s o f di s c r e t i on. M y s e c ond poi nt i s t ha t f r e e dom of a s s oc i a t i o n i s c l os e l y l i nke d t o f r e e dom of s pe e c h a nd opi ni on. V e r y o f t e n a n a s s oc i a t i on i s c r e a t e d t o e xpr e s s c e r t a i n vi e w s a nd opi ni ons . T he r e f or e , t he s t a t ut e s of t he a s s oc i a t i o n i ne vi t a bl y r e f l e c t c e r t a i n vi e w s a nd go a l s w hi c h m i ght a l s o be r e ga r de d a s pol i t i c a l ; a l l t hi s de pe nds ve r y m uc h on i nt e r pr e t a t i on. B e c a us e of t he c l os e l i nk be t w e e n f r e e dom of e xpr e s s i on a nd f r e e dom of a s s o c i a t i on, t he m os t a ppr opr i a t e a nd be s t w a y of a s s e s s i ng t he na t ur e of t he a s s oc i a t i on a nd i t s c onf or m i t y w i t h t he C ons t i t ut i on a nd t he C onv e nt i on i s t o c onduc t a n a s s e s s m e nt ba s e d not j us t on a f or m a l r e a di ng of t he a s s oc i a t i on’ s goa l s a s s e t dow n i n t he s t a t ut e s , but a l s o on t he m e a ns t he a s s oc i a t i on i nt e nds t o e m pl oy a nd, e s pe c i a l l y, i t s a c t i ons a nd a c t i vi t i e s i n r e a l l i f e . H e nc e , a n a s s e s s m e nt of t he l e ga l i t y of a n a s s oc i a t i on i n ab s t r ac t o , s uc h a s ha s be e n c onduc t e d he r e , c onf e r s a n undue de gr e e o f di s c r e t i on on t he a ut h or i t i e s .