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Deelrapport Eurasylum Denmark Deelrapport Eurasylum Opvang van en bijstandverlening aan niet rechtmatig verblijvende en rechtmatig verblijvende, maar nog niet toegelaten vreemdelingen in Denemarken. Vooronderzoek uitgevoerd in opdracht van de Adviescommissie voor Vreemdelingenzaken (ACVZ), in het kader van het ACVZ-advies ‘Recht op menswaardig bestaan’ (Advies 34/2012), door Ulla Iben Jensen en Jens Vedsted-Hansen, Den Haag: ACVZ, 2011. Report on reception and assistance for aliens residing illegally in Denmark and for aliens who have residence rights but no entitlement to benefits and facilities. Preliminary Report to the ACVZ Report ‘Right to protection of human dignity’ (Advisory Report 34/2012) commissioned and funded by the Advisory Committee on Migration Affairs (ACVZ) in the Netherlands, by Ulla Iben Jensen en Jens Vedsted-Hansen, The Hague: ACVZ, 2011. DEnmaRk Table of Contents 1 Immigration in Denmark: Applicable Legislation and Actors ..............................41.1 Immigration Legislation and Actors ......................................................................... 4 1.1.1 Legislation ................................................................................. 4 1.1.2 Administrations in charge of immigration ........................................ 5 1.1.3 The role of courts ........................................................................ 8 1.2 Regular Residence and Entitlement to Social Rights and Benefits ................... 9 1.2.1 Legislation on regular residence ...................................................10 1.2.2 Link between residence status and entitlement to social rights .........16 1.3 The role of human rights in cases on aliens irregularly residing in Denmark ...23 1.4 Legal sanctions on offering assistance to illegally/irregularly residing migrants ...............................................................................................25 1.5 Recent or future legislative amendments with regard to irregularly residing ..... migrants ...............................................................................................26 2 Access to Reception and Emergency Reception ..................................................30 2.1 Reception .............................................................................................30 2.1.1 Applicable Legislation, Contents and Actors ....................................30 2.1.2 The Condition of Regular and/or Legal Residence ............................36 1 Deelrapport Eurasylum - Denmark 2.1.3 Litigation and Disputes................................................................36 2.2 Emergency reception ..............................................................................36 2.2.1 Applicable Legislation, Contents and Actors ....................................36 2.2.2 The Condition of Regular and/or Legal Residence ............................39 2.2.3 Litigation and disputes ................................................................40 3 Access to Assistance ......................................................................................41 3.1 Assistance pursuant to the Immigration Legislation ....................................41 3.2 Assistance pursuant to the Active Act .......................................................41 3.2.1 Applicable Legislation, Contents and Actors ....................................41 3.2.2 The Condition of Regular and/or Legal Residence ............................42 3.2.3 Disputes and Litigation................................................................43 3.3 Assistance Pursuant to the Service Act ......................................................43 3.3.1 Applicable Legislation, Contents and Actors ....................................43 3.3.2 The Condition of Regular and/or Legal Residence ............................44 3.3.3 Disputes and litigation ................................................................45 3.4 Assistance Pursuant to the Health Act .......................................................45 3.4.1 Applicable Legislation, Contents and Actors ....................................45 3.4.2 The Condition of Regular and/or Legal Residence ............................46 3.4.3 Disputes and litigation ................................................................46 4 Implementation and National Practice ...............................................................46 4.1 Actors Involved .....................................................................................47 4.1.1 Identification of the Actors ..........................................................47 4.1.2 Basis for Assistance and Reception ...............................................51 4.1.3 Evolution in Offering, Facilitating or Subsidizing Assistance/Reception .52 4.1.4 Future Changes .........................................................................54 4.2 Availability and Forms of Reception and Assistance .....................................54 4.2.1 Assistance/Reception Offered .......................................................54 4.2.2 Beneficiaries under the Existing Framework ...................................62 4.3 Reception and Assistance by Local Governments and Non-governmental ......... Organizations ........................................................................................65 4.3.1 Beneficiaries ..............................................................................65 4.3.2 Relationship with Central Government Policy ..................................66 4.4 Needs and Access to Assistance, Reception and Emergency Reception ...........68 4.4.1 Identification and Coverage of the Needs .......................................68 4.4.2 Access to Assistance, Reception and Emergency Reception ..............69 4.4.3 Identification of Vulnerable Groups and Urgent Circumstances ..........71 4.4.4 Refusal and Termination ..............................................................72 4.4.5 Issues ......................................................................................72 2 Deelrapport Eurasylum - Denmark 4.5 Prohibitions on Supporting Irregularly Residing Migrants and Regularly Residing Migrants who are not yet Admitted ..............................................74 4.6 Tensions with human rights .....................................................................75 5 Sources cited ................................................................................................79 6 Persons interviewed .......................................................................................85 3 Deelrapport Eurasylum - Denmark 1 Immigration in Denmark: applicable Legislation and actors 1.1 Immigration Legislation and Actors 1.1.1 Legislation In Denmark, the situation of aliens irregularly residing and regularly residing but not yet admitted, is regulated by the immigration legislation and the - generally applicable - legislation on social services and on health care.1 1.1.1.1 Immigration legislation The applicable immigration legislation is composed of Udlændingeloven (hereafter: the Aliens Act) and a number of corresponding executive orders, circulars, guidances and communications. This immigration legislation governs the entry, residence and departure of aliens. Sections 34-43, 46, 46e and 48-48e Aliens Act govern assistance and reception in particular. According to a number of these provisions, the Danish Immigration Service (or the Police) has a maintenance obligation of asylum seekers and aliens staying illegally in Denmark.2 In addition to this, Integrationsloven (hereafter: the Integration Act) applies to refugees and immigrants issued with a residence permit for Denmark.3 1.1.1.2 General social welfare legislation The applicable legislation on social services and health care is composed mainly of Aktivloven (hereafter: the Active Act), Serviceloven (hereafter: the Service Act), Sundhedsloven (hereafter: the Health Act) and the corresponding executive orders, guidance and communications. The Active Act and the Service Act form the legal basis for the municipalities to provide ordinary assistance to persons staying legally in Denmark; including to aliens staying legally in Denmark pursuant to the Aliens Act. In addition, the Active Act provides municipalities the possibility to offer acute/emergency assistance to persons not legally residing in Denmark in exceptional situations based on considerations of necessity/ emergency. The Health Act provides the legal basis for the regions to provide ordinary medical treatment to persons with residence in Denmark, i.e. persons listed in the National Register of Persons. Further, the Act provides the legal basis for the regions to offer acute/emergency assistance to persons not residing in Denmark. 1 It should be noted, that due to the Danish opt-out from European cooperation on Justice and Home Affairs, the Reception Directive does not apply to Denmark. 2 The Aliens Act Sections 42a-42h. 3 The Integration Act Section 2. 4 Deelrapport Eurasylum - Denmark 1.1.2 Administrations in charge of immigration As described further below, the responsibility of providing social assistance for asylum seekers and aliens illegally residing in Denmark is assumed by the Immigration Service, pursuant to the Aliens Act. As a result, the general social welfare legislation is subsidiary as regards these categories of aliens, apart from urgent medical assistance pursuant to the Health Act. 1.1.2.1 Immigration authorities/organizations The Danish Ministry for Refugee, Immigration and Integration Affairs4 assumes responsibility
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