EUROPEAN COMMISSION
Brussels, 21.11.2025
COM(2025) 704 final
REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL
on export authorisations in 2024 pursuant to the Regulation concerning trade in certain
goods which could be used for capital punishment, torture or other cruel, inhuman or
degrading treatment or punishment
1.Introduction
The objective of Regulation (EU) 2019/125 concerning trade in certain goods which could be used for capital punishment, torture or other cruel, inhuman or degrading treatment or punishment (‘the Regulation’) is to prevent, in countries outside the EU, capital punishment, on the one hand, and torture and other cruel, inhuman or degrading treatment or punishment, on the other. It distinguishes between:
-goods that are inherently abusive and should not be traded at all (Annex II); and
-goods that can have legitimate uses, such as law enforcement equipment (Annex III) and goods for therapeutic use (Annex IV).
Trade in goods listed in Annex III and IV is subject to certain restrictions, including the requirement to apply to the competent authority of a Member State for an authorisation to export such goods.
Article 26(3) of the Regulation states that the Member States must draw up a public, annual activity report providing information on the number of applications received, the goods and countries concerned, and the decisions taken on the applications. Article 26(4) states that the Commission must draw up an annual report comprised of the annual activity reports published by the Member States. It must make the report publicly available.
This Commission report provides information on Member States’ authorisation activities concerning exports of goods in 2024 that could be used for torture or for capital punishment.
All Member States have reported on the number of export authorisations granted and refused under Articles 11(1) and 16(1) of the Regulation and on the goods and countries of destination in question. In some cases, the competent authorities in the Member States have also reported on the numbers or quantities of goods authorised for export and the category of end-user to whom the goods were supplied.
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Authorisations under Regulation (EU) 2019/125
Articles 11(1) and 16(1) of the Regulation require an authorisation for exports of goods listed in Annex III and Annex IV respectively.
Annex III lists certain goods that could be used for torture or other cruel, inhuman or degrading treatment or punishment. Goods in Annex III fall under the following headings: goods designed for restraining human beings; weapons and devices designed for the purpose of riot control or self-protection; and weapons and equipment disseminating incapacitating or irritating chemical substances for the purpose of riot control or self-protection, and certain related substances.
Annex IV lists certain chemicals that could be used in lethal injections.
Except where the Union general export authorisation (GEA) set out in Annex V is used for exports of goods listed in Annex IV, the authorisation to export has to be obtained from the competent authorities of the Member State concerned, as listed in Annex I to the Regulation.
Exports to destinations listed in the Union GEA can usually take place without obtaining an individual or global authorisation granted by a Member State. The approach so far has been to include a non-EU country in Annex V if it has ratified a relevant international agreement with a commitment to abolish the death penalty for all crimes. For countries that are not members of the Council of Europe, that means the country in question must have ratified the Second Optional Protocol to the International Covenant on Civil and Political Rights (ICCPR) without reservation.
However, if there is reasonable suspicion about the exporter’s ability to comply with the terms of the authorisation or with export control legislation, the competent authority may prohibit the exporter from using the Union GEA.
Article 20(2) of the Regulation states that an export authorisation granted by a Member State can be an individual authorisation (an authorisation for exports to one end-user or consignee in a non-EU country) or a global authorisation (an authorisation for exports to one or more specified end-users or distributors in one or more specified non-EU countries).
Articles 3, 4 and 5 of the Regulation prohibit the export, import and transit, respectively, of the goods listed in Annex II. Competent authorities may grant a derogation from the prohibition, but only if it is demonstrated that the goods concerned will be used exclusively for public display in a museum (either in a non-EU country or, in accordance with Article 4, in a Member State) given their historical significance.
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2.Authorisations granted and refused
In 2024, the total number of reported authorisations amounted to 248, with 7 Member States reporting that they had granted authorisations. The remaining Member States informed the Commission that they had not received any applications for authorisations pursuant to the Regulation suggesting limited activity in this field. As in the previous reporting exercises, the data does not provide a critical mass from which to draw substantiated conclusions.
As the definitions of ‘individual authorisation’ and ‘global authorisation’ in Article 2 of the Regulation do not include a quantitative component, an indication of the number of authorisations granted does not give an indication of the number or quantity of goods concerned by these authorisations. Nor does the information that Member States provide to the Commission typically distinguish between individual authorisations and global authorisations.
Member States reported that they had denied 2 applications for an export authorisation in 2024. The reported cases of denial concerned goods described in Annex III code 3.1 intended for export to Chile and goods described in Annex IV code 1.1 d) intended for export to Israel.
Articles 3, 4 and 5 of the Regulation prohibit the export, import, and transit, respectively, of the goods listed in Annex II. The Regulation allows the competent national authorities to grant a derogation from the prohibition, but only if it is demonstrated that the goods concerned will be used exclusively for public display in a museum (either in a non-EU country or, in accordance with Article 4, in a Member State) in view of their historical significance. The competent authorities reported that they had not granted such derogations in 2024.
Annex 1 to this report provides an overview of the number of reported export authorisations granted and refused by Member States over the period 2017-2024.
Annex 2 to this report provides information on the number of reported export authorisations issued by Member States as regards goods listed in Annex III.
Annex 3 to this report provides information on the reported destinations of authorised and refused exports as regards goods listed in Annex III.
Annex 4 to this report summarises the information provided to the Commission on the reported end use of authorised exports as regards goods listed in Annex III.
Annex 5 to this report provides a detailed overview of authorised exports of Annex III goods in 2024.
Annex 6 to this report provides information on the number of reported export authorisations issued by Member States as regards goods listed in Annex IV.
Annex 7 to this report provides information on the reported destinations of authorised exports as regards goods listed in Annex IV.
Annex 8 to this report summarises the information provided to the Commission on the reported end use of authorised exports as regards goods listed in Annex IV.
Annex 9 to this report provides a detailed overview of authorised exports of Annex IV goods in 2024.
