Communicated on 7 September 2016
FIFTH SECTION
Application no. 3927/15
Nahida ČALUK against Bosnia and Herzegovina
and 72 other applications
(see list appended)
The applicants are citizens of Bosnia and Herzegovina. Their personal details are set out in the appended table.
A. The circumstances of the cases
The facts of the cases, as submitted by the applicants, may be summarised as follows.
By 75 judgments of the Travnik Municipal Court and the Bugojno Municipal Court, the applicants’ employers, various public companies, were ordered to pay the applicants different sums in respect of unpaid work-related benefits together with default interest at the statutory rate and legal costs. The judgments became final between 19 December 2003 and 27 December 2012.
Since the public companies are financed from the budget of the Federation of Bosnia and Herzegovina (one of the two constituent entities in Bosnia and Herzegovina), the judgments were to be enforced from the federal budget. The Sarajevo Municipal Court issued writs of execution between 10 October 2011 and 27 February 2013, in which the Federation of Bosnia and Herzegovina was designated as a debtor. They were transferred to the competent bank and were listed among the charges in the federal budget.
On several occasions thereafter the bank informed the competent courts that the enforcement was not possible because the budgetary funds intended for that purpose had already been spent.
The final judgments in the applicants’ favour remain unenforced until the present day.
B. Relevant domestic law and practice
1. Enforcement Procedure Act 2003 of the Federation of Bosnia and Herzegovina
Section 138 of the Enforcement Procedure Act 2003 (Zakon o izvršnom postupku, Official Gazette of the Federation of Bosnia and Herzegovina nos. 32/03, 52/03, 33/06, 39/06 and 39/09) provides for the limitation of enforcement of final judgments against the Federation of Bosnia and Herzegovina and the cantons: these will be enforced only within the amount of funds provided for that purpose in the federal and cantonal budgets which cannot be lower than 5% of the total budget and must be designated annually (section 138 (3)). The enforcement will be carried out in a chronological order according to the time the judgments became final. The statutory prescription period does not apply to these claims (section 138 (6)).
2. The case-law of the Constitutional Court
On 27 May 2011, in two cases similar to the present ones, the Constitutional Court of Bosnia and Herzegovina (“the Constitutional Court”) found a violation of Article 6 of the Convention and Article 1 of Protocol No. 1 to the Convention on account of the prolonged non-enforcement of final judgments from the federal budget (decision no. AP 1544/08). It ordered the government of the Federation of Bosnia and Herzegovina to take the necessary steps in order to secure the payment of its debt arising from the final judgments within a reasonable time. The relevant part of the decision reads as follows:
“50. ...The court notes that the judgments [in favour of the appellants] have not been enforced due to the lack of funds on the debtor’s bank account.
...
58. The Constitutional Court reiterates that under the Constitution of Bosnia and Herzegovina and Article 1 of the European Convention all levels of government must secure respect for individual human rights, including the right to enforcement of final judgments under Article 6 § 1 of the Convention and the right to property under Article 1 of Protocol No. 1 to the Convention... The scope of that obligation is not reduced in the present case, notwithstanding the large number of judgments... [T]he Constitutional Court notes that in Jeličić v. BiH, and again in Čolić and Others v. BiH, the European Court of Human Rights reiterated that ‘it is not open to a State authority to cite lack of funds as an excuse for not honouring a judgment debt. Admittedly, a delay in the execution of a judgment may be justified in particular circumstances, but the delay may not be such as to impair the essence of the right protected under Article 6 § 1’...
59. The Constitutional Court agrees with the position taken by the European Court...it is nevertheless aware of the effects the global economic crisis had on Bosnia and Herzegovina...The court notes that the federal government had taken certain steps with a view to enforcement of final court decisions. Section 138 of the Federal Enforcement Procedure Act 2003 provides that the final judgments against the Federation and the cantons shall be enforced within the amount of budgetary funds designated for that purpose...and that the creditors shall enforce their claims in the order in which they acquired the enforcement titles...In 2009 and 2010 the amount of funds for that purpose in the federal budget was BAM 6,262,001 and BAM 12,300.000, respectively.
...
61. The crux of the problem in the present case is that the Federation of Bosnia and Herzegovina did not identify the exact number of unenforced judgments and the aggregate debt...without which it is impossible to know when all the creditors will realise their claims. Furthermore, there should exist a centralised and transparent database of all the claims listed in chronological order according to the time the judgments became final. It should include the enforcement time-frame and a list of partial payments, if any. This will also help to avoid abuses of the enforcement procedure. These measure and adequate funds in the annual budget would ensure that all the final judgments are enforced within a reasonable time...and the Federation of Bosnia and Herzegovina would ensure the respect of its obligations from Article 6 §1 of the Convention and Article 1 of Protocol No. 1 to the Convention.
...
63. The court considers that the adoption of section 138 of the Enforcement Procedure Act 2003 had a legitimate aim, because the enforcement of a large number of judgments at the same time would jeopardise the normal functioning of the Federation and the cantons. However, the limitation of the enforcement in the present case is contrary to the principle of proportionality enshrined in Article 1 of Protocol No. 1 which requires that a fair balance is struck between the demands of the general interest of the community and the requirements of the protection of the individual’s fundamental rights...Section 138 places a disproportionate burden on the appellants...they are placed in a situation of absolute uncertainty as regards the enforcement of their claims...
64. In order to comply with its positive obligation, the government of the Federation of Bosnia and Herzegovina must, as explained above, calculate the total amount of the aggregate debt arising from the final judgments and prepare a comprehensive and transparent database...This court will not specify what a reasonable time-limit should be...but, in any event, it must be in accordance with Article 6 § 1 of the Convention and Article 1 of Protocol No. 1 to the Convention.
65. ...The current situation does not give any guarantees to the appellants that their claims will be enforced within a reasonable time”.
Subsequently, the Constitutional Court adopted two more decisions on the same matter: AP 2986/12 of 12 June 2013 and AP 3765/13 of 25 June 2014. None of these decisions has been enforced.
COMPLAINT
The applicants complain under Article 6 of the Convention and Article 1 of Protocol No. 1 to the Convention about the failure by the national authorities to enforce final court decisions in their favour.
QUESTIONS TO THE PARTIES
1. (a) Could an appeal to the Constitutional Court of Bosnia and Herzegovina be considered an effective domestic remedy in respect of the applicants’ Convention complaints within the meaning of Article 35 § 1 of the Convention?
(b) If so, has this remedy been exhausted by the applicants?
2. Has there been a violation of Article 6 of the Convention and/or Article 1 of Protocol No. 1 to the Convention arising from the failure to enforce final and enforceable judgments in the applicants’ favour (see Jeličić v. Bosnia and Herzegovina, no. 41183/02, ECHR 2006‑XII, and Čolić and Others v. Bosnia and Herzegovina, nos. 1218/07 et al., 10 November 2009)?
APPENDIX
No.
Application
no.
Lodged on
Applicant name
date of birth
place of residence
Represented by
Final domestic decision(s) - the seat of the relevant court and the date of decision(s)
Decision(s)
became
final
The date of writ(s) of
execution
3927/15
15/12/2014
Nahida ČALUK
07/10/1959
Bugojno
Adil LOZO
Bugojno Municipal Court
31/05/2006
31/05/2006
6/11/2012
4783/15
13/01/2015
Enes KRNJIĆ
25/11/1957
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
21/04/2011
12/10/2011
13/04/2012
4795/15
13/01/2015
Ibrahim SILAJDŽIJA
29/08/1949
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
21/04/2011
12/10/2011
17/04/2012
4799/15
13/01/2015
Ismet RIZVIĆ
09/05/1962
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
21/04/2011
12/10/2011
13/04/2012
4815/15
13/01/2015
Namik DUŽAN
27/02/1958
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
21/04/2011
12/10/2011
12/04/2012
4817/15
13/01/2015
Muhamed KERIĆ
10/02/1954
Travnik
Hatidža KAPETAN
Travnik Municipal Court
21/04/2011
12/10/2011
23/04/2012
4819/15
13/01/2015
Ibrahim DELIĆ
07/02/1953
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
21/04/2011
12/10/2011
25/09/2012
4821/15
13/01/2015
Adnan ZOLOTA
12/06/1963
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
21/04/2011
12/10/2011
13/04/2012
4824/15
13/01/2015
Kasim ŠILJAK
26/09/1964
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
21/04/2011
12/10/2011
13/04/2012
4826/15
13/01/2015
Edhem SILAJDŽIJA
03/03/1951
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
21/04/2011
12/10/2011
12/04/2012
4829/15
13/01/2015
Fikret ZAHIROVIĆ
28/05/1958
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
21/04/2011
12/10/2011
24/04/2012
4833/15
13/01/2015
Nesib SKOPLJAK
13/03/1961
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
12/03/2012
27/12/2012
27/02/2013
4837/15
13/01/2015
Began HASKIĆ
26/07/1951
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
21/04/2011
12/10/2011
24/04/2012
4841/15
13/01/2015
Vejsil ĐULIĆ
15/02/1951
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
21/04/2011
12/10/2011
29/05/2012
4842/15
13/01/2015
Reflik ČAKIĆ
19/08/1963
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
21/04/2011
12/10/2011
13/04/2012
4848/15
13/01/2015
Sead HASANOVIĆ
08/02/1960
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
21/04/2011
12/10/2011
12/04/2012
4850/15
13/01/2015
Zajim KMETAŠ
10/04/1957
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
12/07/2006
20/12/2006
10/10/2011
4853/15
13/01/2015
Hatidža POKVIĆ
06/08/1963
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
21/04/2011
12/10/2011
18/04/2012
4861/15
13/01/2015
Meho ZUKIĆ
14/08/1968
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
21/04/2011
12/10/2011
13/04/2012
4951/15
13/01/2015
Suvad HODŽIĆ
20/12/1960
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
21/04/2011
12/10/2011
28/05/2012
4952/15
13/01/2015
Đemal KRNJIĆ
23/02/1962
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
21/04/2011
12/10/2011
13/04/2012
4954/15
13/01/2015
Mujo ZAHIROVIĆ
17/02/1968
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
19/01/2007
28/08/2007
09/11/2011
4957/15
13/01/2015
Sabahudin HELDA
10/10/1958
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
21/04/2011
12/10/2011
29/05/2012
5817/15
21/01/2015
Miljenka GRIZIĆ
22/06/1957
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
21/04/2011
12/10/2011
13/04/2012
7277/15
30/01/2015
Asim NURKIĆ
04/09/1958
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
07/07/2009
29/07/2009
11/06/2012
7290/15
30/01/2015
Senad HARAČIĆ
29/04/1957
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
22/02/2008
28/03/2008
17/02/2012
7294/15
30/01/2015
Nedžvija MANDARA
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
15/05/2008
15/05/2008
21/02/2012
7299/15
30/01/2015
Muradif ĆOSIĆ
29/06/1963
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
14/10/2009
02/11/2009
20/06/2012
7305/15
30/01/2015
Mirsada RUSTEMPAŠIĆ
02/11/1951
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
22/03/2005
24/05/2005
01/11/2012
7308/15
30/01/2015
Ismet MALKOČ
17/11/1954
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
17/06/2004
22/12/2004
02/07/2012
7311/15
30/01/2015
Miralem MUSTAJBEGOVIĆ
22/03/1966
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
19/01/2006
19/01/2006
17/04/2012
7323/15
29/01/2015
Sejad ČORBEG
15/09/1951
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
21/04/2011
12/10/2011
25/04/2012
7333/15
29/01/2015
Suvad ZAIMOVIĆ
15/04/1964
Novi Travnik
Hatidža KAPETAN
Travnik Municipal Court
21/04/2011
12/10/2011
12/04/2012
7356/15
30/01/2015
Nihad HRNJICA
20/05/1962
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
28/10/2011
26/11/2011
25/04/2012
7357/15
30/01/2015
Lutvo ĆATIĆ
27/08/1954
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
01/07/2008
08/08/2008
29/05/2012
7416/15
30/01/2015
Dervo KARAŠIN
31/10/1963
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
21/06/2006
22/07/2006
29/05/2012
7419/15
30/01/2015
Zijad DŽUGUM
20/01/1959
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
02/02/2009
20/08/2009
05/07/2012
7422/15
30/01/2015
Haseda ŠKANDRO
11/11/1962
Donji Vakuf
Hatidža KAPETAN
Bugojno Municipal Court
24/12/2009
24/12/2009
11/10/2012
7425/15
30/01/2015
Senija BRZIKA
30/01/1965
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
23/01/2007
23/01/2007
21/02/2012
7434/15
30/01/2015
Đevada HODŽIĆ
18/08/1955
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
01/09/2009
13/10/2009
27/03/2012
7437/15
30/01/2015
Muhamed DAGOJA
18/04/1965
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
30/03/2011
25/04/2011
25/05/2012
7440/15
30/01/2015
Aiša TALIĆ
13/02/1951
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
10/09/2008
17/10/2008
29/05/2012
7451/15
30/01/2015
Bahrudin ĆATIĆ
14/06/1966
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
26/03/2008
31/03/2008
20/02/2012
7488/15
30/01/2015
Asim NURKIĆ
04/09/1958
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
22/04/2011
23/05/2011
25/04/2012
10020/15
05/02/2015
Safet ALIBEGOVIĆ
13/04/1956
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
22/10/2007
29/09/2011
14/11/2007
22/10/2011
04/04/2012
28/08/2012
10035/15
05/02/2015
Hanka DURADBEGOVIĆ
18/08/1957
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
28/01/2009
06/01/2010
28/02/2009
06/01/2010
20/06/2012
17/02/2012
10758/15
23/02/2015
Fadil PANDŽO
09/01/1954
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
09/04/2004
13/04/2004
09/08/2012
10765/15
23/02/2015
Mirsad MUSIĆ
01/09/1965
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
11/04/2007
09/05/2007
30/03/2012
10775/15
23/02/2015
Rasma KULAS
18/01/1960
Donji Vakuf
Hatidža KAPETAN
Bugojno Municipal Court
14/07/2003
22/12/2004
06/09/2012
10866/15
23/02/2015
Ramiza ĆESO
01/02/1965
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
17/06/2004
21/12/2004
09/08/2012
10869/15
23/02/2015
Sadija BRČIĆ
21/03/1966
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
25/04/2003
19/12/2003
18/04/2012
10872/15
23/02/2015
Sead GURIĆ
05/09/1960
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
17/06/2004
26/05/2004
08/06/2012
10873/15
23/02/2015
Nurudin JUSIĆ
21/10/1948
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
16/02/2009
11/06/2009
25/05/2012
10877/15
23/02/2015
Enesa PURIVATRA
03/03/1960
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
16/10/2003
27/09/2004
09/08/2012
10880/15
23/02/2015
Sulejman SULTANOVIĆ
30/12/1966
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
21/02/2010
29/04/2010
22/08/2012
10886/15
23/02/2015
Nedžad LAKAČA
14/01/1963
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
23/05/2006
17/06/2006
22/08/2012
10890/15
23/02/2015
Nedžad MANDARA
27/01/1968
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
02/02/2009
23/11/2009
09/08/2012
10895/15
23/02/2015
Nermina TATARAGA
02/03/1971
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
16/10/2003
13/05/2004
21/05/2012
10900/15
23/02/2015
Nurudin JUSIĆ
21/10/1948
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
16/08/2006
26/09/2006
04/04/2012
10906/15
23/02/2015
Safeta HAJDAREVIĆ
25/10/1957
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
13/10/2003
29/12/2004
06/09/2012
10912/15
23/02/2015
Sabahudin MISTRIĆ
19/10/1964
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
09/04/2004
30/09/2004
25/05/2012
10916/15
23/02/2015
Mujesira HUSIĆ
10/07/1961
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
01/06/2009
23/06/2009
09/08/2012
11038/15
23/02/2015
Nadžid KOSTEROVIĆ
28/12/1963
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
26/11/2004
21/09/2005
09/05/2012
11039/15
23/02/2015
Hašim SADIKOVIĆ
02/06/1966
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
20/08/2008
20/09/2009
09/08/2012
11062/15
23/02/2015
Fatima KIŠIJA
03/05/1964
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
26/01/2012
15/02/2012
02/04/2012
11068/15
23/02/2015
Mirsad BATIĆ
02/01/1958
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
17/06/2004
27/10/2004
13/04/2012
11133/15
23/02/2015
Azim VUGDALIĆ
05/01/1961
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
16/11/2011
07/12/2011
24/04/2012
11143/15
23/02/2015
Emir BRČIĆ
31/12/1964
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
19/04/2007
19/04/2007
07/09/2012
11186/15
23/02/2015
Sulejman SULTANOVIĆ
30/12/1966
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
13/09/2006
13/09/2006
09/04/2012
11315/15
23/02/2015
Nađid KOSTEROVIĆ
28/12/1963
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
02/10/2006
02/10/2006
06/04/2012
11348/15
23/02/2015
Fatima KIŠIJA
03/05/1964
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
30/12/2008
06/05/2009
06/09/2012
11359/15
23/02/2015
Sead DAUTBEGOVIĆ
02/04/1968
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
20/11/2006
18/12/2006
04/04/2012
14105/15
04/03/2015
Jasmina ŽDRALOVIĆ
28/02/1960
Bugojno
Hatidža KAPETAN
Bugojno Municipal Court
13/06/2003
24/06/2004
22/05/2012
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