REPORT on the proposal for a regulation of the European Parliament and of the Council on a European travel document for the return of illegally staying third-country nationals
6.6.2016 - (COM(2015)0668 – C8‑0405/2015 – 2015/0306(COD)) - ***I
Committee on Civil Liberties, Justice and Home Affairs
Rapporteur: Jussi Halla-aho
DRAFT EUROPEAN PARLIAMENT LEGISLATIVE RESOLUTION
on the proposal for a regulation of the European Parliament and of the Council on a European travel document for the return of illegally staying third-country nationals
(COM(2015)0668 – C8‑0405/2015 – 2015/0306(COD))
(Ordinary legislative procedure: first reading)
The European Parliament,
– having regard to the Commission proposal to Parliament and the Council (COM(2015)0668),
– having regard to Article 294(2) and Article 79(2)(c) of the Treaty on the Functioning of the European Union, pursuant to which the Commission submitted the proposal to Parliament (C8‑0405/2015),
– having regard to Article 294(3) of the Treaty on the Functioning of the European Union,
– having regard to Rule 59 of its Rules of Procedure,
– having regard to the report of the Committee on Civil Liberties, Justice and Home Affairs (A8-0201/2016),
1. Adopts its position at first reading hereinafter set out;
2. Calls on the Commission to refer the matter to Parliament again if it intends to amend its proposal substantially or replace it with another text;
3. Instructs its President to forward its position to the Council, the Commission and the national parliaments.
Amendment 1 Proposal for a regulation Recital 1 | ||||||||||||||||||||||||||||||||||
| ||||||||||||||||||||||||||||||||||
Amendment 2 Proposal for a regulation Recital 1 a (new) | ||||||||||||||||||||||||||||||||||
Text proposed by the Commission |
Amendment | |||||||||||||||||||||||||||||||||
|
(1a) This Regulation should take account of the Universal Declaration of Human Rights of 10 December 1948, the Convention relating to the Status of Refugees of 28 July 1951 and the Protocol relating to the Status of Refugees of 31 January 1967, the Convention on the Rights of the Child of 20 November 1989, and Article 10 of Directive 2008/115/EC of the European Parliament and of the Council. The 'best interests of the child' should be a primary consideration of Member States when implementing this Regulation. | |||||||||||||||||||||||||||||||||
Amendment 3 Proposal for a regulation Recital 1 b (new) | ||||||||||||||||||||||||||||||||||
Text proposed by the Commission |
Amendment | |||||||||||||||||||||||||||||||||
|
(1b) It is essential to take account of the International Covenant on Civil and Political Rights and the International Covenant on Economic, Social and Cultural Rights of 16 December 1966 and the protocols thereto. | |||||||||||||||||||||||||||||||||
Amendment 4 Proposal for a regulation Recital 1 c (new) | ||||||||||||||||||||||||||||||||||
Text proposed by the Commission |
Amendment | |||||||||||||||||||||||||||||||||
|
(1c) It is essential to take account of the United Nations Convention relating to the Status of Stateless Persons of 28 September 1954. | |||||||||||||||||||||||||||||||||
Amendment 5 Proposal for a regulation Recital 1 d (new) | ||||||||||||||||||||||||||||||||||
Text proposed by the Commission |
Amendment | |||||||||||||||||||||||||||||||||
|
(1d) It is essential to take account of the Convention for the Protection of Human Rights and Fundamental Freedoms. | |||||||||||||||||||||||||||||||||
Amendment 6 Proposal for a regulation Recital 2 | ||||||||||||||||||||||||||||||||||
Text proposed by the Commission |
Amendment | |||||||||||||||||||||||||||||||||
(2) National authorities of the Member States experience difficulties in returning illegally staying third-country nationals who possess no valid travel documents. |
(2) Since some third-country-nationals staying irregularly on the territory of the Union do not possess valid travel documents, national authorities of the Member States experience serious difficulties in returning them lawfully and safely to their country of return. | |||||||||||||||||||||||||||||||||
Amendment 7 Proposal for a regulation Recital 2 a (new) | ||||||||||||||||||||||||||||||||||
Text proposed by the Commission |
Amendment | |||||||||||||||||||||||||||||||||
|
(2a) Despite the fact that Council Recommendation of 30 November 19941a provided for a standard travel document, the continued lack of a harmonised travel document for return across the Union has been identified as one of the factors contributing to low recognition rates of the travel documents for return in Union readmission agreements with third countries and of the document in general by third countries. These low recognition rates are also often due to the varying formats, standards and security features of existing travel documents for return. | |||||||||||||||||||||||||||||||||
|
_________________ | |||||||||||||||||||||||||||||||||
|
1a Council Recommendation of 30 November 1994 concerning the adoption of a standard travel document for the expulsion of third-country nationals (OJ C 274, 19.6.1996, p. 18). | |||||||||||||||||||||||||||||||||
Amendment 8 Proposal for a regulation Recital 3 | ||||||||||||||||||||||||||||||||||
Text proposed by the Commission |
Amendment | |||||||||||||||||||||||||||||||||
(3) Improving cooperation on return and readmission with the main countries of origin and transit of illegally staying third-country nationals is essential for increasing rates of return, which are unsatisfactory. |
(3) Improving cooperation, including enhanced cooperation, on return and readmission with the main countries of origin and transit of third-country nationals staying irregularly on the territory of the Union is essential for increasing rates of returns, which are unsatisfactory. This includes an improved European travel document for the return of third-country nationals. | |||||||||||||||||||||||||||||||||
Amendment 9 Proposal for a regulation Recital 4 | ||||||||||||||||||||||||||||||||||
| ||||||||||||||||||||||||||||||||||
Amendment 10 Proposal for a regulation Recital 5 | ||||||||||||||||||||||||||||||||||
| ||||||||||||||||||||||||||||||||||
Amendment 11 Proposal for a regulation Recital 6 | ||||||||||||||||||||||||||||||||||
Text proposed by the Commission |
Amendment | |||||||||||||||||||||||||||||||||
(6) A more secure European travel document for the return of third-country nationals should be established to facilitate return and readmission of illegally staying third-country nationals. Its enhanced security features should facilitate its recognition by third countries. Such document should help carry out returns in the context of readmission agreements or other arrangements with third countries, as well as in the context of return-related co-operation with third countries not covered by formal agreements. |
(6) A more secure and harmonised European travel document for the return of third-country nationals should be established in order to help facilitate return and readmission of third-country nationals staying irregularly on the territory of the Union. Its enhanced security and technical features should facilitate its recognition by third countries. Such document should help carry out returns in the context of readmission agreements concluded by the Union or the Member States with third countries or other legal arrangements concluded by the Union with third countries, as well as in the context of return-related co-operation with third countries not covered by formal agreements. | |||||||||||||||||||||||||||||||||
Amendment 12 Proposal for a regulation Recital 6 a (new) | ||||||||||||||||||||||||||||||||||
| ||||||||||||||||||||||||||||||||||
Amendment 13 Proposal for a regulation Recital 6 b (new) | ||||||||||||||||||||||||||||||||||
Text proposed by the Commission |
Amendment | |||||||||||||||||||||||||||||||||
|
(6b) The negotiation of new Union readmission agreements, which should take precedence over bilateral agreements between Member States and third countries, would guarantee a more effective implementation of this Regulation, within the framework of a more coherent return policy. | |||||||||||||||||||||||||||||||||
Amendment 14 Proposal for a regulation Recital 7 | ||||||||||||||||||||||||||||||||||
| ||||||||||||||||||||||||||||||||||
Amendment 15 Proposal for a regulation Recital 7 a (new) | ||||||||||||||||||||||||||||||||||
Text proposed by the Commission |
Amendment | |||||||||||||||||||||||||||||||||
|
(7a) If third countries entering into readmission agreements, either with the Union or the Member States, refuse to legally recognise the European travel document for return, a formal explanation for such refusal should be provided. | |||||||||||||||||||||||||||||||||
Amendment 16 Proposal for a regulation Recital 8 | ||||||||||||||||||||||||||||||||||
Text proposed by the Commission |
Amendment | |||||||||||||||||||||||||||||||||
(8) The European travel document for return should help reduce the administrative and bureaucratic burden on Member States' and third countries' administrations, including consular services, and it should contribute to reducing the length of the administrative procedures necessary for ensuring return and readmission of illegally staying third-country nationals. |
(8) The European travel document for return should help reduce the administrative and bureaucratic burden on Member States' and third countries' administrations, including consular services, and, without prejudice to the fundamental rights of returnees, including the right to asylum, protection in the event of removal, expulsion or extradition and the right to an effective remedy and to a fair trial, it should contribute to reducing the length of the administrative procedures necessary for ensuring return and readmission of irregularly staying third-country nationals. | |||||||||||||||||||||||||||||||||
Justification | ||||||||||||||||||||||||||||||||||
The Regulation shall apply without prejudice to the right to an effective remedy and to a fair trial provided for in Article 47of the Charter; to the right to asylum provided for in Article 18 of the Charter and to the protection in the event of removal, expulsion or extradition provided for in Article 19 of the Charter. | ||||||||||||||||||||||||||||||||||
Amendment 17 Proposal for a regulation Recital 9 | ||||||||||||||||||||||||||||||||||
Text proposed by the Commission |
Amendment | |||||||||||||||||||||||||||||||||
(9) This Regulation should only harmonise the format and technical specifications of a European travel document for return and should not harmonise rules on the issuing of such document. |
(9) This Regulation should only harmonise the format and security and technical specifications of a European travel document for return, in particular as regards safeguards against counterfeiting and falsification, and should neither specify the legal requirements of harmonising rules on the issuing of such document nor the merits of such harmonisation. | |||||||||||||||||||||||||||||||||
Amendment 18 Proposal for a regulation Recital 9 a (new) | ||||||||||||||||||||||||||||||||||
Text proposed by the Commission |
Amendment | |||||||||||||||||||||||||||||||||
|
(9a) Member States should take all the necessary steps to ensure the systematic use of the European travel document for return in order to ensure the effective return of migrants staying irregularly on the territory of the Union in compliance with Directive 2008/115/EC of the European Parliament and of the Council and in full respect for Union law. In order to improve the efficiency of the European travel document for return, it should be issued without delay. | |||||||||||||||||||||||||||||||||
Amendment 19 Proposal for a regulation Recital 9 b (new) | ||||||||||||||||||||||||||||||||||
| ||||||||||||||||||||||||||||||||||
Amendment 20 Proposal for a regulation Recital 11 | ||||||||||||||||||||||||||||||||||
Text proposed by the Commission |
Amendment | |||||||||||||||||||||||||||||||||
(11) The content and technical specifications of the European travel document for return should be harmonised in order to ensure high technical and security standards, in particular as regards safeguards against counterfeiting and falsification. The document should bear recognisable harmonised security features. High technical and security standards already exist and are set according to Article 2 of Council Regulation (EC) No 333/200211 , which should therefore be applied to the European travel document for return. |
(11) The content and technical specifications of the European travel document for return should be harmonised in order to ensure high technical and security standards, in particular as regards safeguards against counterfeiting and falsification. The document should bear recognisable harmonised security features. Requirements which conform to high technical and security standards already exist and are set according to Article 2 of Council Regulation (EC) No 333/200211, and these should therefore be applied to the European travel document for return. | |||||||||||||||||||||||||||||||||
_________________ |
_________________ | |||||||||||||||||||||||||||||||||
11 Council Regulation (EC) No 333/2002 of 18 February 2002 on a uniform format for forms for affixing the visa issued by Member States to persons holding travel documents not recognised by the Member State drawing up the form (OJ L 53, 23.2.2002, p. 4). |
11 Council Regulation (EC) No 333/2002 of 18 February 2002 on a uniform format for forms for affixing the visa issued by Member States to persons holding travel documents not recognised by the Member State drawing up the form (OJ L 53, 23.2.2002, p. 4). | |||||||||||||||||||||||||||||||||
Amendment 21 Proposal for a regulation Recital 11 a (new) | ||||||||||||||||||||||||||||||||||
Text proposed by the Commission |
Amendment | |||||||||||||||||||||||||||||||||
|
(11a) With a view to facilitating exchanges of information among themselves and with the agencies of the Union responsible for migration policy, the Member States should systematically keep a record of the European travel documents for return which have been issued. | |||||||||||||||||||||||||||||||||
Amendment 22 Proposal for a regulation Recital 12 | ||||||||||||||||||||||||||||||||||
| ||||||||||||||||||||||||||||||||||
Amendment 23 Proposal for a regulation Recital 14 | ||||||||||||||||||||||||||||||||||
| ||||||||||||||||||||||||||||||||||
Amendment 24 Proposal for a regulation Recital 14 a (new) | ||||||||||||||||||||||||||||||||||
Text proposed by the Commission |
Amendment | |||||||||||||||||||||||||||||||||
|
(14a) In due course an assessment of the impact of this Regulation on the implementation of return decisions should be carried out. In that connection, the Commission should take account of all return decisions irrespective of the basis on which they were taken. | |||||||||||||||||||||||||||||||||
Amendment 25 Proposal for a regulation Recital 23 | ||||||||||||||||||||||||||||||||||
Text proposed by the Commission |
Amendment | |||||||||||||||||||||||||||||||||
(23) This Regulation respects fundamental rights and observes the principles recognised by the Charter of Fundamental Rights of the European Union, in particular the protection in the event of removal, expulsion or extradition provided for in Article 19 of the Charter. |
(23) This Regulation respects the fundamental rights and observes the principles recognised by the Charter of Fundamental Rights of the European Union (the Charter), in particular human dignity as provided for in Article 1 of the Charter and the protection in the event of removal, expulsion or extradition provided for in Article 19 of the Charter. This Regulation should apply without prejudice to the right to an effective remedy and to a fair trial as provided for in Article 47 of the Charter and to the right to asylum as provided for in Article 18 of the Charter. | |||||||||||||||||||||||||||||||||
Amendment 26 Proposal for a regulation Article 1 | ||||||||||||||||||||||||||||||||||
| ||||||||||||||||||||||||||||||||||
Amendment 27 Proposal for a regulation Article 2 – paragraph 1 – point 3 a (new) | ||||||||||||||||||||||||||||||||||
Text proposed by the Commission |
Amendment | |||||||||||||||||||||||||||||||||
|
(3a) 'Union readmission agreements' means agreements which are based on reciprocal obligations and are concluded between the Union and third countries to facilitate the return of persons residing irregularly on the territory of the Union, in accordance with Article 79 (3) TFEU. | |||||||||||||||||||||||||||||||||
Amendment 28 Proposal for a regulation Article 3 | ||||||||||||||||||||||||||||||||||
| ||||||||||||||||||||||||||||||||||
Amendment 29 Proposal for a regulation Article 4 – paragraph 1 | ||||||||||||||||||||||||||||||||||
Text proposed by the Commission |
Amendment | |||||||||||||||||||||||||||||||||
1. The security features and technical specifications of the European travel document for return shall be those set in application of Article 2 of Council Regulation (EC) No 333/2002. |
1. The security features and technical specifications of the European travel document for return shall update those already set in application of Article 2 of Council Regulation (EC) No 333/2002 in order to include digital elements which can ensure the security and safety of the document issued. | |||||||||||||||||||||||||||||||||
Amendment 30 Proposal for a regulation Article 5 – paragraph 1 | ||||||||||||||||||||||||||||||||||
Text proposed by the Commission |
Amendment | |||||||||||||||||||||||||||||||||
The European travel document for return shall be issued free of charge for the third-country national. |
The European travel document for return shall be issued free of charge for the irregularly staying third-country national. | |||||||||||||||||||||||||||||||||
Amendment 31 Proposal for a regulation Article 7 a (new) | ||||||||||||||||||||||||||||||||||
Text proposed by the Commission |
Amendment | |||||||||||||||||||||||||||||||||
|
Article 7a | |||||||||||||||||||||||||||||||||
|
Review | |||||||||||||||||||||||||||||||||
|
1. The Commission shall review this Regulation no later than 18 months after its entry into force to assess, in detail, its impact on the effective enforcement of return decisions, and whether it is necessary to amend any of the features of the European travel document for return. | |||||||||||||||||||||||||||||||||
|
2. That review shall take account of returns in the context of Union readmission agreements, bilateral readmission agreements or other arrangements with third countries, as well as in the context of return-related cooperation with third countries not covered by formal agreements. | |||||||||||||||||||||||||||||||||
|
3. For the purposes of this review, Member States shall provide the Commission with all relevant information and statistics with regard to the issuing of the European travel document for return and the enforcement of return decisions, the recognition rate of the document in each third country, and the number of persons to whom more than one travel document for return has been issued. | |||||||||||||||||||||||||||||||||
|
4. The Commission shall present the results of its review to the Parliament and to the Council accompanied, if appropriate, by a legislative proposal to amend this Regulation. | |||||||||||||||||||||||||||||||||
Amendment 32 Proposal for a regulation Article 8 | ||||||||||||||||||||||||||||||||||
|
EXPLANATORY STATEMENT
The return of those who do not qualify for international protection within the EU must be a priority for the European Union. Improving the rate of returns for irregular migrants is vital for the integrity of the EU’s asylum system, for cooperation between EU Member States and third countries, and for maintaining the confidence of EU citizens. In order to stabilise the current migrant crisis, alleviate pressure upon Member States and EU Agencies, and increase capacity and resources within the EU, a long term solution needs to be provided.
The EU cannot continue to be content with its current return rate amongst failed categories of asylum seekers. The existing standard EU travel document requires significant overhaul in its format and its implementation in order to increase its recognition by third countries and be effective. By harmonizing the format of the travel document, Member States will reduce bureaucracy, variation, costs, and waiting periods, and hopefully increase recognition of the document by third countries.
To date, many third countries are not willing to accept returns papers that are issued by EU Member States because they are poor quality documents. The EU needs to ensure higher technical and security standards, in particular as regards safeguards against counterfeiting and falsification. The Rapporteur therefore proposes setting a technical standard for the photograph provided, enhancing the overall security features of the travel document, and providing translation of the travel documents in both EU languages and the language of the relevant third countries in order to speed up the process.
The Rapporteur also suggests a regular and thorough review and analysis of the workings of the travel document; including the recognition rate of the travel document by each third country, as well as examining any potential improvements which need to made. Such a process needs to be done regularly given the EU’s current migrant crisis. Instruments in the area of asylum and migration cannot be allowed to fail for years before their shortcomings are addressed.
Ensuring the exchange of information between Member States with regard to the issuing of travel documents and individuals listed as illegally staying third country nationals who possess no valid travel documents is essential in order to increase mutual recognition of asylum decisions across the EU, and avoid secondary movement of failed asylum seekers. Therefore, the Rapporteur suggests that copies of travel documents issued by Member States are imputed into the EURODAC system and the Schengen information system.
The rapporteur notes the need to promote the travel document through the work of the EU’s other agencies, the activities of the External Action Service, and any future developments of the FRONTEX and EASO Agencies. The Rapporteur stresses that in order for the travel document to be widely recognised and more effective, it is necessary for this document to be part of a determined pursuit by the EU to gain stronger and more effective readmission agreements with third countries. The recognition of the document should be a requirement of any future EU readmission and cooperation agreement.
PROCEDURE – COMMITTEE RESPONSIBLE
Title |
European travel document for the return of illegally staying third-country nationals |
||||
References |
COM(2015)0668 – C8-0405/2015 – 2015/0306(COD) |
||||
Date submitted to Parliament |
15.12.2015 |
|
|
|
|
Committee responsible Date announced in plenary |
LIBE 1.2.2016 |
|
|
|
|
Committees asked for opinions Date announced in plenary |
AFET 1.2.2016 |
DEVE 1.2.2016 |
|
|
|
Not delivering opinions Date of decision |
AFET 1.2.2016 |
DEVE 4.2.2016 |
|
|
|
Rapporteurs Date appointed |
Jussi Halla-aho 15.2.2016 |
|
|
|
|
Discussed in committee |
29.2.2016 |
21.4.2016 |
30.5.2016 |
|
|
Date adopted |
30.5.2016 |
|
|
|
|
Result of final vote |
+: –: 0: |
39 9 2 |
|||
Members present for the final vote |
Jan Philipp Albrecht, Martina Anderson, Malin Björk, Michał Boni, Caterina Chinnici, Rachida Dati, Agustín Díaz de Mera García Consuegra, Frank Engel, Tanja Fajon, Laura Ferrara, Monika Flašíková Beňová, Ana Gomes, Nathalie Griesbeck, Jussi Halla-aho, Monika Hohlmeier, Sophia in ‘t Veld, Sylvia-Yvonne Kaufmann, Timothy Kirkhope, Cécile Kashetu Kyenge, Marju Lauristin, Juan Fernando López Aguilar, Claude Moraes, Péter Niedermüller, Soraya Post, Birgit Sippel, Branislav Škripek, Csaba Sógor, Bodil Valero, Marie-Christine Vergiat, Beatrix von Storch, Josef Weidenholzer, Kristina Winberg |
||||
Substitutes present for the final vote |
Marina Albiol Guzmán, Hugues Bayet, Carlos Coelho, Pál Csáky, Ska Keller, Miltiadis Kyrkos, Artis Pabriks, Maite Pagazaurtundúa Ruiz, Salvatore Domenico Pogliese, Jaromír Štětina, Róża Gräfin von Thun und Hohenstein, Axel Voss |
||||
Substitutes under Rule 200(2) present for the final vote |
Reimer Böge, Edouard Ferrand, Othmar Karas, Ilhan Kyuchyuk, Keith Taylor, Lieve Wierinck |
||||
Date tabled |
6.6.2016 |
||||
FINAL VOTE BY ROLL CALL IN COMMITTEE RESPONSIBLE
39 |
+ |
|
ALDE |
Nathalie Griesbeck, Sophia in 't Veld, Ilhan Kyuchyuk, Maite Pagazaurtundúa Ruiz, Lieve Wierinck |
|
ECR |
Jussi Halla-aho, Timothy Kirkhope, Branislav Škripek |
|
EFDD |
Laura Ferrara, Kristina Winberg |
|
PPE |
Michał Boni, Reimer Böge, Carlos Coelho, Pál Csáky, Rachida Dati, Agustín Díaz de Mera García Consuegra, Frank Engel, Monika Hohlmeier, Othmar Karas, Artis Pabriks, Salvatore Domenico Pogliese, Jaromír Štětina, Csaba Sógor, Róża Gräfin von Thun und Hohenstein, Axel Voss |
|
S&D |
Hugues Bayet, Caterina Chinnici, Tanja Fajon, Monika Flašíková Beňová, Ana Gomes, Sylvia-Yvonne Kaufmann, Cécile Kashetu Kyenge, Miltiadis Kyrkos, Marju Lauristin, Juan Fernando López Aguilar, Claude Moraes, Péter Niedermüller, Birgit Sippel, Josef Weidenholzer |
|
9 |
- |
|
GUE/NGL |
Marina Albiol Guzmán, Martina Anderson, Malin Björk, Marie-Christine Vergiat |
|
S&D |
Soraya Post |
|
VERTS/ALE |
Jan Philipp Albrecht, Ska Keller, Keith Taylor, Bodil Valero |
|
2 |
0 |
|
EFDD |
Beatrix von Storch |
|
ENF |
Edouard Ferrand |
|
Key to symbols:
+ : in favour
- : against
0 : abstention