31.1.2003 Official Journal of the European Communities L 26/41 COUNCIL DIRECTIVE 2002/8/EC of 27 January 2003 to improve access to justice in cross-border disputes by establishing minimum common rules relating to legal aid for such disputes THE COUNCIL OF THE EUROPEAN UNION, Having regard to the Treaty establishing the European Commu- nity, and in particular Articles 61(c) and 67 thereof, Having regard to the proposal from the Commission ('), Having regard to the opinion of the European Parliament (%), Having regard to the opinion of the Economic and Social Committee (°), Whereas: 1 The European Union has set itself the objective of main- taining and developing an area of freedom, security and justice in which the free movement of persons is ensured. For the gradual establishment of such an area, the Community is to adopt, among others, the measures relating to judicial cooperation in civil matters having cross-border implications and needed for the proper functioning of the internal market. According to Article 65(c) of the Treaty, these measures are to include measures eliminating obstacles to the good functioning of civil proceedings, if necessary by promoting the compatibility of the rules on civil proce- dure applicable in the Member States. The Tampere European Council on 15 and 16 October 1999 called on the Council to establish minimum stan- dards ensuring an adequate level of legal aid in cross- border cases throughout the Union. All Member States are contracting parties to the European Convention for the Protection of Human Rights and Fundamental Freedom of 4 November 1950. The matters referred to in this Directive shall be dealt with in compliance with that Convention and in parti- cular the respect of the principle of equality of both parties in a dispute. This Directive seeks to promote the application of legal aid in cross-border disputes for persons who lack suffi- cient resources where aid is necessary to secure effective access to justice. The generally recognised right to access to justice is also reaffirmed by Article 47 of the Charter of Fundamental Rights of the European Union. () O] C 103 E, 30.4.2002, p. 368. (*) Opinion delivered on 25 September 2002 (not yet published in the Official Journal). () OJ C 221, 17.9.2002, p. 64. (6) (12) Neither the lack of resources of a litigant, whether acting as claimant or as defendant, nor the difficulties flowing from a dispute's cross-border dimension should be allowed to hamper effective access to justice. Since the objectives of this Directive cannot be suffi- ciently achieved by the Member States acting alone and can therefore be better achieved at Community level, the Community may adopt measures, in accordance with the principle of subsidiarity as set out in Article 5 of the Treaty. In accordance with the principle of proportion- ality, as set out in that Article, this Directive does not go beyond what is necessary in order to achieve those objectives. The main purpose of this Directive is to guarantee an adequate level of legal aid in cross-border disputes by laying down certain minimum common standards relating to legal aid in such disputes. A Council directive is the most suitable legislative instrument for this purpose. This Directive applies in cross-border disputes, to civil and commercial matters. All persons involved in a civil or commercial dispute within the scope of this Directive must be able to assert their rights in the courts even if their personal financial situation makes it impossible for them to bear the costs of the proceedings. Legal aid is regarded as appropriate when it allows the recipient effective access to justice under the conditions laid down in this Directive. Legal aid should cover pre-litigation advice with a view to reaching a settlement prior to bringing legal proceed- ings, legal assistance in bringing a case before a court and representation in court and assistance with or exemption from the cost of proceedings. It shall be left to the law of the Member State in which the court is sitting or where enforcement is sought whether the costs of proceedings may include the costs of the opponent imposed on the recipient of legal aid. All Union citizens, wherever they are domiciled or habi- tually resident in the territory of a Member State, must be eligible for legal aid in cross-border disputes if they meet the conditions provided for by this Directive. The same applies to third-country nationals who habitually and lawfully reside in a Member State.