This post was written by Birgit van Houtert, Assistant Professor of Private International Law at Maastricht University. It builds on an article titled ‘The Anti-SLAPP Directive in the Context of EU and Dutch Private International Law: Improvements and (Remaining) Challenges to Protect SLAPP targets’, featured in issued 4 of 2024 of Nederlands Internationaal Privaatrecht. Apart from providing an overview of the main findings of the article, the post criticises the lack of transposition of Article 17(1) of the Anti-SLAPP Directive in the Dutch legislation aimed at implementing the Directive, as proposed by the Dutch government.
The right to freedom of expression and information is increasingly threatened worldwide by lawsuits aimed at silencing those who engage in public debate, such as journalists, academics and NGOs. To protect targets of strategic lawsuits against public participation (SLAPPs), the Anti-SLAPP Directive (EU) 2024/1069 entered into force on 6 May 2024. This Directive is due to be transposed in the EU Member States (except Denmark) by 7 May 2026. However, the Directive has already been invoked in Dutch courts by Greenpeace International, an NGO based in the Netherlands, against the US-based company Energy Transfer.
For more on the legislative process of this Directive, see Marta Requejo Isidro’s posts in 2021 and 2022, and Pietro Franzina’s blog post in 2023.
Broad Definition of ‘Cross-border Implications’
The Anti-SLAPP Directive applies to “manifestly unfounded claims or abusive court proceedings in civil matters with cross-border implications brought against natural and legal persons on account of their engagement in public participation” (Article 1). According to Article 5(1), the condition of ‘cross-border implications’ is met “unless both parties are domiciled in the same Member State as the court seised and all other elements relevant to the situation concerned are located only in that Member State”. The mere fact that the SLAPP target has published online appears to constitute cross-border implications.
PIL Implications of Procedural Safeguards
According to Article 11 of the Anti-SLAPP Directive, Member State courts may dismiss claims against public participation if they are manifestly unfounded. With respect to the burden of proving that the claim is well-founded, Article 12 provides legal certainty for SLAPP targets by reversing the burden of proof regardless of the applicable law. However, Member States may interpret the undefined concept of ‘manifestly unfounded’ differently on the basis of their substantive law. The protection of SLAPP targets may therefore vary, particularly where a claim against a SLAPP target is based on an infringement of personality rights.
Furthermore, the ‘early dismissal’ mechanism does not effectively address the problem of abusive multi-state litigation. In particular, if the claim against the SLAPP target is based on online defamation or copyright infringement, the CJEU’s case law related to the special jurisdiction rule of Article 7(2) of the Brussels I bis Regulation facilitates abusive multi-state litigation.
Various scholars have therefore proposed an alternative jurisdictional approach for defamation cases (see Borg-Barthet, Lobina, Zabrocka, The Use of SLAPPs to Silence journalists, NGOs and Civil Society, p. 5, 42; Hess, Reforming the Brussels Ibis Regulation: Perspectives and Prospects, p. 10).
In the interests of predictability and the sound administration of justice, I advocate mitigating the negative effects of the mosaic approach by adopting the ‘directed activities’ approach to jurisdiction in defamation and copyright infringement cases when revising the Brussels I bis Regulation.
Article 15 of the Anti-SLAPP Directive states that Member State courts should be able to impose effective and appropriate penalties, including compensation for damages. The European Parliament argued that these courts should have full jurisdiction over the entire damage suffered by SLAPP targets. However, the scope of the court’s jurisdiction is determined by the ground on which the court seised obtains jurisdiction.
Claims against SLAPP targets may be based on various grounds, such as defamation, copyright infringement or infringement of privacy. With respect to online infringements of personality rights, Member States courts have full jurisdiction under Article 4(1) and under Article 7(2) of the Brussels I bis Regulation on the basis of the Handlungsort and the place of ‘the centre of interests’ of the victim, i.e. the SLAPP claimant. However, in the light of legal literature and case law, the extraterritorial effect of the resulting Member States judgments can be criticised due to the lack of uniform law on the balance between the right to freedom of expression and personality rights; these judgments may therefore not be recognised and enforced in third countries.
Grounds for Refusing Recognition and Enforcement of Third-country Judgments
With respect to third-country judgments against persons domiciled in the EU, Article 16 of the Anti-SLAPP Directive requires Member States to ensure that the recognition and enforcement is refused if the third-country proceedings are considered manifestly unfounded or abusive under the law of the Member State of the requested court. Member States may choose whether to apply the public policy exception or a separate ground for refusal (Recital 43). Although the Dutch public policy exception (see Gazprombank judgment para. 3.6.4) generally protects SLAPP targets, the grounds in Article 16 appear to provide legal certainty and are likely to have a deterrent effect on claimants outside the EU.
However, unlike the prohibition of révision au fond in EU and Dutch PIL, the grounds for refusal in Article 16 may require a rather comprehensive assessment of the merits of the case by the requested court; this will not enhance the sound administration of justice and may lead to conflicts with respect to international comity.
The outcome of this assessment may even differ from one Member State to another, in particular when balancing the right to protect one’s reputation against the right to freedom of expression. However, legal certainty and protection for SLAPP targets will increase if Member States courts apply by analogy the factors set out by the Court of Justice in the Real Madrid ruling (C- 633/22) in order to assess whether there is a manifest infringement of the right of freedom of expression and, therefore, a breach of public policy in the Member State in which enforcement is sought.
Jurisdiction for Compensation for the Damage and the Costs Arising from Third-country Proceedings
According to Article 17(1) of the Anti-SLAPP Directive, if the SLAPP target is domiciled in a Member State, the courts of that State shall have jurisdiction to award damages and costs resulting from abusive court proceedings against public participation initiated by a claimant domiciled outside the EU. From the perspective of EU and Dutch PIL, this new jurisdiction rule improves the access to Member States courts for SLAPP targets domiciled in the EU. However, the assessment of ‘abusive court proceedings against public participation’, requires the Member State court seised to determine whether the third-country proceedings ‘have as their main purpose the prevention, restriction, or penalisation of public participation’ and ‘pursue unfounded claims’ (Article 4(3) of the Anti-SLAPP Directive). This may involve an extensive assessment of the merits of the case, which does not facilitate predictability and the sound administration of justice inherent in the jurisdictional phase. Furthermore, the reverse burden of proof rule in Article 12 Anti-SLAPP Directive does not include a denial of the main purpose of deterrence of public participation.
Finally, the recognition and enforcement of Member States’ resulting judgments may be refused in third countries. As indicated in recital 44, Member State judgments awarding damages and costs will nevertheless have effect if the SLAPP claimant has assets in the EU.
Article 17(2) Anti-SLAPP Directive leaves it to the Member States to limit the exercise of jurisdiction under Article 17(1) while third-country proceedings are still pending. However, a uniform approach would have provided more predictability for SLAPP targets. In view of international comity and the close connection between the dispute and the forum, it may be desirable to stay proceedings if it is anticipated that the third-country court will dismiss the SLAPP claim or issue a judgment in favour of the SLAPP target within a reasonable time.
Criticism of the Lack of Transposition of Article 17(1) in Dutch PIL
The Dutch Draft Explanatory Memorandum to the Act transposing the Anti-SLAPP Directive was published for the public consultation in October and November 2024 (see ‘relevante documenten’ under ‘Memorie van toelichting’).
The Dutch Ministry of Justice and Security states that Dutch PIL already provides for the special jurisdiction ground of Article 17(1) of the Anti-SLAPP Directive in Article 6(e) of the Dutch Code of Civil Procedure (DCCP) that confers jurisdiction on Dutch courts in respect of obligations arising out of a tortious act, provided that the harmful event has occurred or may occur in the Netherlands (Explanatory Memorandum, p. 14). Article 6(e) DCCP has to be interpreted in the light of the CJEU’s case law on the similar provision in Article 7(2) of the Brussels I bis Regulation. According to the Explanatory Memorandum, if the SLAPP target is domiciled in the Netherlands, the Dutch court has jurisdiction because “it may be assumed that the direct harm to this person occurs (also) in the Netherlands” (Explanatory Memorandum, p. 14).
However, the case-law of the Court of Justice shows that in the case of a claim for purely financial loss the place where the direct damage occurred does not automatically coincide with the claimant’s domicile. The fact that a financial loss is suffered directly on the claimant’s bank account at his or her domicile is not sufficient to establish jurisdiction in that place, but other circumstances specific to the case are required to contribute to the attribution of jurisdiction to the courts of the place where the purely financial loss occurred (see, inter alia, C-12/15 Universal Music paras. 38-40). Thus, the fact that SLAPP victims suffer financial losses on their bank accounts in their place of domicile in the Netherlands may not be sufficient in itself for the Dutch court to base its jurisdiction on it. If the SLAPP target claims compensation for psychological damage caused by the SLAPP, it could be argued that the damage to the psychological integrity of the SLAPP victim occurred in the place where the SLAPP claimant initiated the legal proceedings, which would also not give the Dutch court jurisdiction (see Supreme Court 7 December 2001, ECLI:NL:HR:2001:AD3965, para. 3.3).
The foregoing indicates that the special ground of jurisdiction of Article 17(1) of the Anti-SLAPP Directive should be transposed in Dutch PIL in order to promote legal certainty and in view of the possibility that Dutch courts do not have jurisdiction as required by Article 17(1) (see my legislative advice to the Dutch Ministry of Justice and Security).
Concluding Remarks
From the perspective of EU and Dutch PIL, the Anti-SLAPP Directive is certainly an important step in the right direction for the protection of SLAPP targets. However, further reforms at EU level are required to combat abusive multi-state litigation. In addition, international cooperation is needed to effectively address SLAPPs worldwide, in particular to facilitate the recognition and enforcement of Member State judgments that provide redress to SLAPP targets. At the moment, it is particularly important to focus on the correct and timely transposition of the Directive by Member States.