EU Felles europeisk asylsystem CEAS. Utlendingsrett UiO 14. Mars 2016 Vigdis Vevstad

Transkript

1 EU Felles europeisk asylsystem CEAS Utlendingsrett UiO 14. Mars 2016 Vigdis Vevstad

2 «Dagens tekst» Fra Schengen til Lisboa: Kort historikk Felles regler & institusjonell oppbygging Schengen- og Dublin samarbeidet Europa i 2015/2016 Veien videre

3 Tilbakeblikk Midten av 1980-årenes: Ny tredn «jet age refugees». Nye asylsøkere kom til Europa 1985: Første Schengen avtale Benelux-landene, Tyskland og Frankrike 1986: «Fire friheter»: Kapital, varer, tjenester og mennesker 1990: «High level working group immigration». Mellomstatlig samarbeid. Schengen- ogdublin konv. vedtatt + en rekke «soft law» avgjørelser f.eks. («Carrier sanctions») som bøtlegging av flyselskaper o.a.

4 Tilbakeblikk forts. 1997: Amsterdam Traktaten inneholdt ambisjoner om felles europeisk asylpolicy og felles regler om grensekontroll 1999: Høynivåmøte i Tampere definerte nærmere innhold 2004: 10 nye MS /2005: Første fase CEAS 2009: Treaty on the Functioning of the EU (Lisboa traktaten): CEAS (fase to) med målsetting å oppnå felles asylumstatus for hele EU og EUs Charter of fundamental rights vedtatt og gitt samme jur status

5 Schengen-samarbeidet TFEU Art 77: «The Union shall develop a policy with a view to: (a) ensuring the absence of any controls on persons, whatever their nationality, when crossing internal borders (b) carrying out checks on persons and efficient monitoring of the crossing of external borders (c) the gradual introduction of an integrated management system for external borders

6 Schengen Borders Code Regulation (EC) No 562/2006 of the European Parliament and of the Council, establishing a Community Code on the rules governing the movement of persons across borders av 15 mars 2006 Forordningen skal sikre fri bevegelse og kompensere for dette. Felles policy mht kryssing av yttregrensene er et slik kompensatorisk tiltak Basert på Schengen acquis

7 Control efforts the Schengen cooperation Common external border control/abolition of internal border control Frontex Visa cooperation The (Visa Schengen Code Borders and Visa Co Information System VIS) Schengen Information System (SIS ) Police cooperation Compenastory efforts, e.g. the Dublin cooperation, carrier sanctions Technological developments (Eurosur, Entry/Exit faciliation, biometrics, etc)

8 Schengen acquis og kompensatoriske tiltak Visa Code Regulation (EC) No 810/2009) of the European Parliament and of the Council of 13 July 2009 establishing a Community Code on Visas (Visa Code) Kompensatoriske tiltak, f.eks. Dublin-samarbeidet, bøtelegging av transportørselskaper, Schengen liaison officers Frontex Registreringer VIS, SIS Carrier sanctions Teknologisk utvikling (Eurosur, biometri Entry/Exit)

9 TFEU Article The Union shall develop a common policy on asylum, subsidiary protection and temporary protection with a view to offering appropriate status to any third-country national requiring international protection and ensuring compliance with the principle of nonrefoulement. This policy must be in accordance with the Geneva Convention of 28 July 1951 and the Protocol of 31 January 1967 relating to the status of refugees, and other relevant treaties.

10 TFEU Art 78 forts. 2. For the purposes of paragraph 1, the European Parliament and the Council, acting in accordance with the ordinary legislative procedure, shall adopt measures for a common European asylum system comprising: (a) a uniform status of asylum for nationals of third countries, valid throughout the Union; (b) a uniform status of subsidiary protection for nationals of third countries who, without obtaining European asylum, are in need of international protection; (c) a common system of temporary protection for displaced persons in the event of a massive inflow;

11 Art 78 TFEU forts. (d) common procedures for the granting and withdrawing of uniform asylum or subsidiary protection status; (e) criteria and mechanisms for determining which Member State is responsible for considering an application for asylum or subsidiary protection; (f) standards concerning the conditions for the reception of applicants for asylum or subsidiary protection; (g) partnership and cooperation with third countries for the purpose of managing inflows of people applying for asylum or subsidiary or temporary protection. 3. In the event of one or more Member States being confronted by an emergency situation characterised by a sudden inflow of nationals of third countries, the Council, on a proposal from the Commission, may adopt provisional measures for the benefit of the Member State(s) concerned. It shall act after consulting the European Parliament.

12 Common European Asylum System CEAS The Dublin III Regulation EU 604/2013 The Eurodac Regulation EU 603/2013 The Qualification Directive 2011/95/EU The Reception Conditions Directive 2003/EC; Recast 2013/33/EU The Asylum Procedures Directive 2005/85/EC; Recast 2013/32/EU Directive on Temporary protection 2001/55/EC

13 Common European Asylum System CEAS Dublin III forordningen (EU 604/2013) Eurodac forordingen (EU 603/2013) Statusdirekivet «Qualification Directive» (2011/95/EU Mottaksdirektivet (2013/33/EU) Prosedyredirektivet (2013/32/EU) TP direktiv (2001/55/EC)

14 Dublin-samarbeidet Forordning 604/2013 av 26 June 2013 establishing the criteria and mechanisms for determining the Member State responsible for examining an application for international protection lodged in one of the Member States by a third-country national or a stateless person Forelesning 4. april 2016

15 Institusjonell oppbygging Federal Rights Agency (FRA), Wien European Asylum Schengen cooperation Support Office (EASO), Malta Frontex, Warsawa EU-domstolen CJEU, Lux NB! EMD benyttes ved anvendelse av

16 Internasjonale flyktningrettprinsipper gjelder ved anvendelse av CEAS Rett til å forlate et hvilket som helst land Rett til å søke asyl Rett til ikke å bli returnert til område hvor liv og sikkerhet i fare (non-refoulement prinsippet) Rett til adgang til territoriet og asylprosedyre (implisitt FK og non-refoulement prinsippet) Rett til ytelser og rettigheter i tråd med FK

17 Dilemmaer Kontroll vs rettigheter: Sikres rett til asylprosedyrene? Europas sørlige grense? Push backs? EMD Hirsi Jamaa vs Italy (2012), Avtale EU/Tyrkia (2016)? «Mixed flow» Bekjempe int kriminalitet; smuglervirksomhet. Hvordan sikres flyktninger da adgang til å søke asyl? 60 millioner (av disse flest IDPs). Flyktninger i nærområdene, f.eks. 2,5 m syriske flyktninger i Tyrkia Ca 1,2 mill flyktninger til Europa 2015 Nær 4000 døde i Midelhavet 2015

18 QD 2011/95/EU Formål art 1 The purpose is to lay down standards for the qualification of third country nationals or stateless persons as «beneficiaries of international protection» NB! 2004 direktivet viste til : «refugees or persons who otherwise are in need of international protection» Innholder std for «a uniform status» (jf TFEU art 78) Hva slags beskyttelse, ref kap VII NB! Medlitenhets- og humanitære grunner utenfor

19 Mer om innhold Konkurrerer ikke med FK, QD er supplement Gleder både flyktninger (jf FK) og subsidiær beskyttelse Sårbare asylsøkere skal ivaretas særskilt jf. art 20(3) og (4) Barnest beste skal være et grunnleggende hensyn art 20(5) Beskyttelse mot refoulement, ikke ubegrenset, art 21 Fare for rikest sikkerhet. Alvorlig frobrytelse. Jf FK art 33 para 2

20 QD art 2 (d) Flyktningdefinison jfr. FK art 1A Refugee means a third country national who, owing to a well-founded fear of being persecuted for reasons of race, religion, nationality, political opinion or membership of a particular social group, is outside the country of nationality and is unable or, owing to such fear, is unwilling to avail himself or herself of the protection of that country

21 «Acts of persecution» Art 9 forfølgelsesbegrepet 1. Acts of persecution within the meaning of Article 1 of the Geneva Convension must: (a) be sufficiently serious by their nature or repetition as to constitute a severe violation of basic human rights, in particular the rights from which derogation cannot be made under Article 15 (2) of the ECHR; or

22 Forts. art 9 (b) be an accumulation of various measures, including violations of human rights which is sufficiently severe as to affect an individual in a similar manner as mentioned in (a).

23 Forts. art 9 (2) Acts of persecution as qualified in paragraph 1, can, inter alia, take the form of: (a)acts of physical or mental violence, including acts of sexual violence;

24 Forts. art 9(2) (b) legal, administrative, police, and/or judicial measures which are in themselves discriminatory or which are implemented in a discriminatory manner; (c) prosecution or punishment, which is disproportionate or discriminatory punishment; (d) denial of judicial redress resulting in a disproportionate or discriminatory punishment; (e) prosecution or punishment for refusal to perform military service in a conflict, where performing military service would include crimes or acts falling under the exclusion clauses as set out in Article 12(2)

25 Forts. art 9(2) og art 9(3) (f) Acts of a gender-specific or child-specific nature Art 9(3) There must be a connection between the reasons mentioned in Article 10 and the acts of persecution as qualified in paragraph 1 or the absence of protection against such acts. Mao kausalitetskrav

26 Art 10 «Reasons for persecution» - forfølgelsesgrunner Konsept «rase» farve, avstamming eller etnisk gruppetilhørighet Konsept «religion» inkl ikke tro Konsept nasjonalitet ikke begrenset til statsborgerskap eller amngel på sådant, inluderer grupper som defineres på bakgrunn av kulttur, etnisk eller språklig identitet Konsept «sosial gruppe» (se neste bilde) Konsept politisk oppfatning mening, tanke, tro jf også art 6 om «actors of persecution» - (stat, partier, ikke-statlige aktører)

27 Konsept «sosial gruppe» jf art 10 Members of that group share an innate characteristic, or a common background that cannot be changed, or share a characteristic or belief that is so fundamental to identity or conscience that a person should not be forced to renounce it, and That group has a distinct identity in the relevant country, because it is perceived as being different by the surrounding society

28 F.eks. seksuell legning/orientering LGBTI (lesbian, gay, bisexual, transgender, intersex) Nasjonal og internasjonal utvikling av konseptet «sosial gruppe» og kjønn, inspirert av høyeste rettsinstans (Supreme Court) i Storbritannia, avgjørelse 7 juli 2010 HJ (Iran) og HT (Vameroon) hvor domstolen sier: En stat kan ikke kreve at en person skjuler sin seksuelle legning for å unngå forfølgelse, men det er et vilkår at frykten for forfølgelse knytter seg til frykt for forfølgelse og ikke sosial fordømmelse

29 EU-domstolen CJEU: 3 saker 2013: C-199/12, C-200/12 og C-201/12 X,Y and Z, dom av 7 november 2013 Menn fra Sierra Leone, Uganda og Senegal hvor homoseksuell adferd kriminalisert Sp: Skal QD forstås slik at enhver kriminalisering homoseksuell adferd innebærer forfølgelse? Domstolens svar er nei. Ikke alle MR brudd utgjør forfølgelse. Avgjørelsen har blitt kritisert. Men domstolen slår fast at søker ikke kan forventes å skjule sin homoseksuelle legning eller utvise diskresjon

30 Religiøs forfølgelse CJEU har i sin praksis vist til at ikke all inngripen i retten til religion innebærer forfølgelse, men Dersom det foreligger en «genuine risk» for forfølgelse så må det gis beskyttelse. Individuelle forhold på tas i betraktning og myndigheter kan ikke forvente at religionsutøvelse kun skal skje i det skjulte for å unngå forfølgelse

31 Kriterier for innvilgelse av subsidiær beskyttelse (ref utl 28) Art 2 (f) Person eligible for subsidiary protection: third country national or stateless person who does not qualify as a refugee but in respect of whom substantial grounds have been shown for believing that the person concerned, if returned to his or her country of origin, or in the case of a stateless person, to his or her country of former habitual residence, would face a real risk of suffering serious harm as defined in Article 15,

32 Forts. art 15 Serious Harm consists of: (a) Death penalty or execution; (b) Torture or inhuman or degrading treatment or punishment of an applicant in the country of origin; or (c) Serious or individual threat to a civilian s life or person by reason of indiscriminate violence in situations of international or internal armed conflict.

33 Avgjørelse 17 feb 2009 Elgafaji saken CJEU C-465/07 Irakisk par søkte om TP i Nederland Domstolen vurderer art 15 (a) and (b) som dekker situasjoner hvor søker vil være utsatt for spesifikk type skade dødsstraff, tortur og at Art 15(c) omfatter situasjoner hvor det foreligger en mer generell risiko for skade Utl 28 utvidet def. Forslag nåværende regjering om innstramming

34 Forts.Elgafaji saken Domstolen anser at art 15(c), sett i sammenheng med nåværende art 2(f) som angir definisjonen hvem som skal ha «subsidiary protection» må tolkes som følger: -the existence of a serious and individual threat to the life or person of an applicant for subsidiary protection is not subject to the condition that that applicant adduce evidence that he is specifically targeted by reason of factors particular to his circumstances;

35 Forts. Elgafaji para the existence of such a threat can exceptionally be considered to be established where the degree of indiscriminate violence characterising the armed conflict taking place assessed by the competent national authorities before which an application for subsidiary protection is made, or by the courts of a MS to which a decision refusing such an application is referred reaches such a high level

36 Forts para 43 that substantial grounds are shown for believing that a civilian, returned to the relevant country, or as the case may be, to the relevant region, would, solely on account of his presence on the territory of that country or region, face a real risk of being subject to that threat.

37 EMD N.A. vs. UK appl /07, 17 juli 2008 The court has never ruled out the possibility that a general situation of violence in a country of destination could be of a sufficient level of intensity to entail that any removal to it would necessarily breach art 3, it would adopt such an approach only in the most extreme cases of general violence, where there was a real risk of ill-treatment simply by virtue of an individual being exposed to such violence on return (para 115)

38 Sufi & Elmi vs UK appl. 8319/07 and 11449/07, 28 June 2011 the court «considers that the situation in Mogadishu is sufficiently intense to enable it to conclude that any returnee would be at real risk of art 3 ill-treatment solely on account of his presence there,»(para 293) Senere ny praksis kommet til med aksept av retur

39 Andre CEAS regelverk Prosedyredirektivet 2013/32/EU Inneholderf elles minimumsregler inkl rettssikkerhstgarantier f.eks. Ang mindreårige, juridisk bistand, personlig intervju, etc. om bruk av tredjelandsregelen (jf utl 32 første ledd litra d jf PD art 38

40 «Trygt tredjeland» konseptet Art 38 The concept of safe third country. Applicable if (a)life and liberty are not threatened on account of race, religion, nationality, membership of a particular social group or political opinion; b)there is no risk of serious harm as defined in Directive 2011/95/EU; (c)the principle of non-refoulement in accordance with the Geneva Convention is respected;

41 Forts. art 38 (d) the prohibition of removal, in violation of the right to freedom from torture and cruel, inhuman or degrading treatment as laid down in international law, is respected; and (e) the possibility exists to request refugee status and, if found to be a refugee, to receive protection in accordance with the Geneva Convention.

42 Forts. art Application shall be subject to rules in national law, including on connection between the applicant and the third country and reasonability of return, on methodology on how to satisfy that the concept may be applied to a particular country or to a particular applicant (case by case consideration) and rules in accordance with international law which, as a minimum, shall allow applicant the right to challenge decision on the grounds that third country is not safe and/or on the existence of a connection between him/her and the third country. 3. Applicant shall be furnished with a document in the language of that country informing that his/her case has not been examined in substance 4. If third country does not allow entry, access shall be given to

43 Europa nå I 2015, ca 1,2 mill ankomster. Norge TFEU Art 80 Policies and implementation of ch 2 (policies on border checks, asylum and immigration), shall be governed by the principle of solidarity and fair sharing of responsibility TFEU Art 78 (3) In the event of one or more Member States being confronted by an emergency situation characterised by a sudden inflow of nationals of third countries, the Council, on a proposal from the Commission, may adopt provisional measures for the benefit of the Member State(s) concerned. It shall act after consulting the European Parliament. Sept 2015 To avgjørelser : Tils skal relokaliseres fra Hellas og Italia hvorav til Norge

44 Nå? Schengen og Dublin-samarbeidet? Midlertidige grensekontroller på indre grenser må opphøre iht Schengen Borders Code Dublin samarbeidet: Dublin IV forordningenpå trappene (16/3) Hellas? Mlm 30 og strandet i grenseområdet Hellas/Macedonia. Avtale EU/Tyrkia? Seks milliarder euro? Retur Tyrkia. Syrisk gjenbosetting fra Tyrkia til Europa?

45 Litteraturforslag Evangelia (Lilian) Tsourdi and Philippe De Bruycker, EU Asylum Policy: In Search of Solidarity and Access to Protection, Migration Policy Centre, European University Institute, May 2015 Forced Migration Review, Destination Europe, issue 51, January 2016

46