CEDH · CASELAW;JUDGMENTS;CHAMBER;ENG — 13 novembre 2025

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font-size:10pt } .fixListIndent { list-style-position: inside } FIRST SECTION CASE OF CONSTANTINOU AND OTHERS v. CYPRUS (Applications nos. 77396/14 and 4 others – see appended list)     JUDGMENT   Art 6 § 1 (civil) • Fair hearing • No divergence in the Supreme Court’s case-law concerning State interference with the pensions and salaries of officials and employees in the civil service at a time of financial crisis • Reasonable explanation given for the approaches taken in the relevant decisions Art 1 P1 • Peaceful enjoyment of possessions • Reasonable and justified temporary de facto reduction of public officials and civil servants’ salaries and/or pensions in response to an excessive budget deficit and financial crisis • Fair balance struck between competing interests at stake • Wide margin of appreciation not overstepped   Prepared by the Registry. Does not bind the Court.   STRASBOURG 13 November 2025   FINAL   23/03/2026   This judgment has become final under Article 44 § 2 of the Convention. It may be subject to editorial revision. In the case of Constantinou and Others v. Cyprus, The European Court of Human Rights (First Section), sitting as a Chamber composed of:   Ivana Jelić , President ,   Erik Wennerström,   Georgios A. Serghides,   Frédéric Krenc,   Alain Chablais,   Artūrs Kučs,   Anna Adamska-Gallant , judges , and Ilse Freiwirth, Section Registrar, Having regard to: the applications (nos.   77396/14, 45039/20, 45089/20, 45101/20 and 45899/20) against the Republic of Cyprus lodged with the Court under Article   34 of the Convention for the Protection of Human Rights and Fundamental Freedoms (“the Convention”) by four hundred and fifty Cypriot nationals, on the various dates indicated in the appended table; the decision to give notice to the Cypriot Government (“the Government”) of the complaints concerning Article 6 § 1 in respect of applications nos.   45039/20, 45089/20, 45101/20 and 45899/20, Article 1 of Protocol No.   1 in respect of all applications, and Article 1 of Protocol No. 12 in respect of application no. 77396/14, and to declare the remainder of the applications inadmissible; the parties’ observations; Having deliberated in private on 13 May and 7 October 2025, Delivers the following judgment, which was adopted on that last date: INTRODUCTION 1.     The applications concern interferences by the State with the pensions and salaries of officials and employees in the civil service at a time of economic crisis. They mainly raise issues under Article 6 of the Convention and Article 1 of Protocol No. 1 to the Convention. THE FACTS THE CIRCUMSTANCES OF THE CASES 2.     A list of the applicants is set out in the Appendix. 3.     The Government were represented by their Agent, Mr G. L. Savvides, Attorney General of the Republic of Cyprus. 4.     The facts of the cases, as submitted by the parties and as they appear from the documents submitted by them, may be summarised as follows. A.    Application no. 77396/14 1.      Events leading up to the deductions of salaries and pensions 5.     On 31 August 2011 the Cypriot Parliament passed the Law on Extraordinary Contribution of Officials, Employees and Pensioners of the Civil Service and the Wider Public Sector of 2011 (“Law no. 112 (I)/2011”) ( Ο περί Έκτακτης Εισφοράς Αξιωματούχων, Εργοδοτουμένων και Συνταξιούχων της Κρατικής Υπηρεσίας και του Ευρύτερου Δημόσιου Τομέα Νόμος του 2011 ). Under this law, a tiered effective percentage would be deducted from the pensions and gross income of officials and employees in the civil service (except for employees on an hourly wage) and the wider public sector each month, as a special contribution to the budget of the Republic. The Law initially provided for deductions from salaries over 1,500   euros (EUR) per month. It provided as follows: a 1.5   % deduction from a salary on the scale of EUR 1,501-2,500, 2.5 % from a salary on the scale of EUR   2,501-3,500, 3% from a salary on the scale of EUR 3,501-4,500 and 3.5% from a salary of EUR   4,501 and above. No deduction was made from salaries below EUR   1,500. 6 .     Law no. 112(I)/2011 entered into force on 1 September 2011 for an initial period of twenty-four months. The law was subsequently amended by amending Laws nos. 193(I)/2011 and 184(I)/2012, extending its validity to 31   December 2016. While there were small amendments to the percentage of extraordinary contribution taken from each of the abovementioned salary scales, the figure never exceeded 3.5%. 7 .     With the entry of into force of Law no. 112 (I)/2011, the Government began deducting the relevant percentage of special contribution from the applicants’ gross salaries. 8.     The extraordinary contribution for the salary scales can be summarised as follows:   Monthly gross salary / pension amount in EUR % extraordinary contribution from 1.9.2011 Law 112(I)/2011 % extraordinary contribution from 1.1.2012 Law 193(I)/2011 % extraordinary contribution from 1.1.2013 (Law 184(I)/2012) % extraordinary contribution from 1.1.2014 (Law 184(I)/2012) 1,000 - 1,500 0.0% 0.0% 0.0% 0.0% 1,501 – 2,500 1.5% 0.0% 0.0% 2.5% 2,501 – 3,500 2.5% 2.5% 2.5% 3% 3,501 – 4,500 3.0% 3% 3% 3.5% Over 4,500 3.5% 3.5% 3.5% 3.5% 2.      Domestic proceedings (a)    The applicants’ claim before the domestic courts 9.     The applicants asked the Supreme Court to review the constitutionality of Law no. 112(I)/2011 (the case numbers are given in the appendix). They argued that the deductions under the Law from their monthly salaries as an extraordinary contribution to the State budget were unlawful and void because they were contrary to, inter alia , Articles 23 (protection of property), 24 (equality in taxation) and 28 (principle of equality) of the Constitution as well as in violation of Article 14 of the Convention and Article 1 of Protocol   No. 1 to the Convention. Specifically, the applicants argued that their salary constituted a proprietary right which was protected by Article 23 of the Constitution. In this connection they argued that none of the conditions provided for in Article 23 § 3 had been satisfied so as to allow an interference with their constitutionally protected right. (b)    The Supreme Court judgment: Charalambous and Others v. the Republic of Cyprus, nos. 1480/2011 and others, 11 June 2014 10.     The cases were heard together by the plenary of the Supreme Court comprising twelve judges (Judges D.H, M.N., G.E., S.N., C.P., A.P., P.P, L.P., D.M., M.C., A.L., and K.S.). 11 .     The Supreme Court gave judgment on 11 June 2014, dismissing the applications by a majority of nine to three (one judge, M.N., gave a separate concurring opinion and three judges, S.N., L.P., A.L. dissented). It held that the applicants had failed to convince the court that the provisions of Law   no.   112(I)/2011 were unconstitutional. (i)       The majority judgment (α)      Circumstances leading to the adoption of Law no. 112(I)/2011 12 .     In its judgment the Supreme Court set out the background to the enactment of Law no. 112(I)/2011, referring to documents showing, inter alia, the excessive public budget deficit; the continual downgrading of Cyprus’ credit rating by the international credit rating agencies, rendering it impossible for Cyprus to borrow money on the international markets; the need to reorganise public expenditure and to exit from the deficit; the need to redistribute resources; and the need to secure micro-economic stability, taking into account the adverse consequences of the worldwide crisis. The Supreme Court also referred to, inter alia , the preamble of Law   no.   112(I)/2011 (see paragraph 60 below). (β)       The right to equality 13 .     The Supreme Court then reviewed the applicants’ discrimination complaint under Articles 24 and 28 of the Constitution. It recognised , inter alia , that public sector personnel costs, which exceeded two billion euros annually, were the largest expense in the public sector. The court observed that in a severe financial crisis the State had discretion to implement extraordinary measures, provided they were constitutional, in order to stabilise public finances, especially in relation to people employed in the public sector who were paid from public accounts that had an excessive shortfall. The court stressed that the State had gradually adopted other measures and within a period of four months an extraordinary contribution was also being deducted from the pay of private sector workers (see paragraph 64 below). Beyond that, certain provisions of Law no. 112(I)/2011 which were considered as prone to create inequality between public and private sector workers were amended by amending Law no. 193(I)/2011, which led to equalisation between the sectors. The court also ruled that the measures did not treat low-wage earners or pensioners unfairly, as the contributions were based on a person’s financial means. The measures were reasonable and proportionate, balancing the public interest with individual rights in the face of the adverse economic situation at the time. (γ)       The right to property 14.     The court then examined the applicants’ complaint that their right to property had been violated. The court held at the outset that Law   no.   112(I)/2011 was not a tax law. 15 .     It then stressed that the right protected under Article 23 § 1 of the Constitution was not absolute but was subject to limitations which were set out in the remaining passages of the Article, and which had to be lawful. Under domestic case-law, the provisions of Article 23 did not affect the power of the State to enact laws necessary to secure payment of taxes or other contributions to public expenditure. 16 .     The court referred to the Supreme Court’s judgment in Demetriades and others v. Council of Ministers and others (1996) 3 C.L.R. 85 and reiterated that terms restricting the use of property that left the core of the right to own property intact did not constitute a deprivation of the right but a limitation on it. Restrictions could result in a deprivation only when they rendered the property unusable. 17 .     The respondent government claimed that the deduction from the applicants’ salaries did not fall within Article   23   §   3, as that referred solely to interference with land rights. The court disagreed. It held that, on the contrary, Article 23 covered both movable and immovable property. 18 .     The respondent government further argued that the deduction of an extraordinary contribution from the applicants’ salaries and pensions could be justified based on Article 23 § 3 and for reasons of public benefit. The court again disagreed. It clarified that the deduction could not be linked to the public benefit because Article 23 § 3 connected the promotion of the public benefit to the imposition of terms, conditions, or limitations to property for reasons of town and country planning or the development and use of property, none of which applied in the present case. 19 .     The court noted that, as regards the right to one’s salary, Article   23 aimed to protect that right from arbitrary executive regulation of the core of the right, or arbitrary and substantial reductions from salaries. 20 .     The court accepted that the applicants’ salaries constituted a proprietary right and held that any interference with them therefore fell within the scope of Article 23 of the Constitution. 21 .     The court then observed - with reference to this Court’s case-law - that the right to one’s salary did not extend to a right to receive a salary of a particular amount. In the light of this, the court considered that the question it had to answer was whether or not a small deduction imposed in the form of a special contribution ranging between 1.5% and 3.5% of the applicants’ gross monthly salary constituted an arbitrary interference with the right which led either to rendering the right devoid of any effectiveness ( αδρανοποίηση δικαιώματος ) or to a substantial limitation of the right, requiring the payment of compensation. 22 .     The court replied to the above question in the negative. It considered that the relatively small deduction from the applicants’ salaries had not affected the core of their right to receive their salary. The court found that the core of the right remained intact and that it was not negated, and therefore there was no deprivation contrary to Article 23 of the Constitution. According to the court, a person was only entitled to compensation under Article 23 §   3 of the Constitution when the economic value of the property was ‘substantially’ limited. The court did not consider the reduction ranging between 1.5% to 3.5% such a substantial reduction in salary as to constitute a sufficient limitation of the right. 23 .     The court then observed that the same applied with regard to Article   1 of Protocol No. 1 to the Convention. It noted that Article 1 of Protocol No.   1 was not as limiting as Article 23 of the Constitution, as it provided for the right of a State to enforce such laws as it found necessary to control the use of property in “the general interest” or “to secure the payment of taxes or other contributions or penalties”. The court subsequently observed that in the case before it the State was in a precarious position because of the worldwide financial crisis and needed to take measures to reduce the budgetary deficit, rescue its economy and consequently the social structure, and thus to serve the public interest. The court therefore concluded that the imposition of a relatively small special contribution had been justified under Article 1 of Protocol No. 1 and Article 24 of the Constitution (requiring citizens to pay taxes) and that it did not violate the provisions of Article 23 of the Constitution. 24 .     The court lastly rejected the applicants’ arguments that, inter alia, there had been no attempt to justify the deductions on the grounds of the public interest and that there had been a lack of proper enquiry. (ii)     Concurring opinion of judge M.N. 25.     In his concurring opinion, Judge M.N. observed that as regards the right to property there was a substantial difference between Article 1 of Protocol No. 1 of the Convention and Article 23 of the Constitution, in that under the provisions of the Convention property rights might be restricted for public benefit or the public interest, while Article 23 of the Constitution contained no such provision. The third paragraph of Article 23 provided that the exercise of the constitutional right to property could be subject, by law, to restrictions or limitations which were absolutely necessary in the interests of public safety or public health or public morals, or town and country planning or the development and use of any property for the promotion of the public benefit or for the protection of the rights of others. Judge M.N. held that the “promotion of public benefit” in the third paragraph concerned only the development and use of property and did not concern “restrictions or limitations” which might be applied when exercising that right. Consequently, he considered that the case had to be examined under Article   23 of the Constitution rather than Article 1 of Protocol No. 1, given that the former provided more protection. 26.     Judge M.N. considered that Law no. 112(I)/2011 was not unconstitutional because the applicants had not shown that they had a property right. He considered that a civil servant’s gross salary was a contractual right. However, there was no case-law to the effect that the current or future salary of a civil servant, unlike salary owing for past service, was protected under the Constitution. He therefore held that there had been no breach of Article   23 of the Constitution. (iii)    Dissenting opinion of judges S.N., L.P. and A.L. 27.     In his dissenting opinion, with which Judges L.P. and A.L. concurred, Judge S.N. found the interference with the applicants’ property rights unconstitutional. 28.     The dissenting judges agreed with the majority that the right to one’s salary was a proprietary right protected under Article 23 of the Constitution. 29 .     They went on to find that the deduction of the special contribution was not merely a restriction of the applicants’ property rights – which would in any event have been prohibited - but was a deprivation of that part of their property for as long as the law remained in force. 30.     Specifically, they observed that while Article 1 of Protocol No. 1 allowed for an interference with property on public interest grounds, no such provision or exception existed in Article 23 of the Constitution. That provision gave more protection to property rights since restrictions on or interference with those rights was only possible for the express and specific reasons in the Article. The provisions of Law no. 112(I)/2011 restricting the applicants’ property and depriving them of it was contrary to Article 23 of the Constitution since deductions from salaries did not fall under any of the exceptions provided in that article. That Law was therefore unconstitutional. 31.     The government had supported their argument by reference to various documents discussing the dire economic situation in Cyprus. They asserted that the State had interfered with the applicants’ property rights for reasons of public benefit/interest, but the minority judges observed that that argument had not been included or referred to in Law no. 112(I)/2011. Nowhere in the law or its preamble had it appeared that the law had been passed to bring the state into line with recommendations from the European Union. Nor did the law refer to the public interest or benefit. The government could not invoke the public interest or benefit in any event as it was not referred to in Article 23 of the Constitution. 32.     The minority also found that the monthly deductions had been made without proper inquiry as to each person’s earning capacity (εισοδηματική ικανότητα) and there was no proper reasoning in support of the deductions. 33.     On the issue of equality, the minority considered, inter alia, that the Law targeted a specific class of persons in society, namely public officials, for the imposition of financial burdens, and their treatment had therefore been unequal. B.    Applications nos. 45039/20, 45089/20, 45101/20 and 45899/20 1.      The adoption of Law no. 168(I)/2012 34.     On 6 December 2012, the Parliament passed the Law on the Reduction in Emoluments and Pensions of Officials, Employees and Pensioners of the Public Sector and of the broader Public Sector of 2012. Pursuant to this law, an effective percentage would be deducted monthly from the income or pensions of officials, employees, and pensioners in the public sector and the broader public sector. The amounts deducted from each employee were deposited in the fixed fund of the State ( Πάγειο Ταμείο της Δημοκρατίας ). Initially, an effective percentage to be deducted monthly ranged from 0% (for those on a low salary or pension) to 12.5% (for those on a high salary or pension). The reduction in salaries and pensions would be deducted from income tax and would not be taken into account for the calculation of pension benefits. 35 .     The relevant reductions of Law no. 168(I)/2012 applied as of 1   December 2012 and the law had no expiry date. It was subsequently amended on three occasions and the reductions were eventually discontinued for everyone as of 1   January 2023. With the entry into force of Law no. 168(I)/2012 the Government began to deduct the relevant percentage from the applicants’ gross income and pension. The percentage deducted from the income or pension of officials, employees and pensioners of the public sector and the broader public sector, as adjusted over time, was as follows:   Monthly gross salary / pension amount in EUR % [1] from 1.12.12   % [2] from 1.6.13   % [3] from 1.12.14     % [4] from 1.7.18 to 31.12.18   % [5] from 1.1.19 to 31.12.20   % [6] from 1.1.20 to 31.12.20 % [7] from 1.1.21 to 31.12.21 % [8] from 1.1.22 to 31.12.22 0 – 1,000 0.0 0.8 3.8 1.8 0.0 0.0 0.0 0.0 1,000 – 1,500 6.5 7.3 10.3 8.3 5.8 3.3 0.8 0.0 1,500 – 2,000 8.5 9.3 12.3 10.3 7.8 5.3 2.8 0.0 2,000 – 3,000 9.5 10.5 13.5 13.5 13.5 11.0 8.5 5.0 3,000 – 4,000 11.5 13.0 16.0 16.0 16.0 13.5 11.0 7.5 Over 4,000 12.5 14.5 17.5 17.5 17.5 15.0 12.5 9.0   2.      Domestic proceedings (a)    First instance judicial review proceedings 36.     In the years between 2012-2016, the applicants – and many others who have not come to this Court – challenged the reduction of their salaries or pensions arguing that Law no. 168(I)/2012 had been unconstitutional as it contravened Article 23 of the Constitution (the recourse number of each case is set out in the appendix). They further argued that the reduction of their salaries or pensions breached Article 1 of Protocol No. 1. 37.     The Administrative Court hearing the applicants’ complaints at first instance delivered two separate judgments. 38 .     The first ( Avgousti and others v. The Republic of Cyprus, recourse no.   898/2013 and others, 27 November 2018) concerned challenges to the reduction of the applicants’ pensions and was delivered by the president of the Administrative Court alone. The court found that the reduction of pensions constituted a restriction to the right to property. With reference to the findings of the majority in Charalambous and Others (see paragraph   18 above), the court reiterated that reasons of the public benefit, such as the consolidation of public finances, did not fall under the exceptions provided for in Article 23 § 3 of the Constitution. The court further found that the right to receive a pension was a proprietary right and that restrictions to a property right were only permitted for the purposes set out in Article 23 § 3 of the Constitution. When a permissible interference resulted in a material curtailment of the right, then compensation was payable. The court therefore reasoned that what should have been decided first had not been whether the restriction materially curtailed the right, but whether the restriction was permissible under Article 23 § 3, and only if that was the case should the court have examined the extent of the restriction. The court subsequently considered that neither the Attorney General’s Explanatory Report accompanying the proposal for the Bill nor the preamble to the law relied on any of the permissible grounds for interference as set out in Article 23 § 3 of the Constitution. The consolidation of the State e