At the Supreme Court Sitting As a High Court of Justice HCJ 7146/12 MAA 1192/13 AAP 1247/13
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Unofficial translation At the Supreme Court Sitting as a High Court of Justice HCJ 7146/12 MAA 1192/13 AAP 1247/13 Before: President A. Grunis Deputy President M. Naor Justice E. Arbel Justice S. Joubran Justice E. Hayut Justice Y. Danziger Justice N. Hendel Justice U. Vogelman Justice Y. Amit The Petitioners in HCJ 7146/12: 1. Naget Serg Adam 2. Zamzam Bosra Ahmad 3. Abraham Masgana 4. Gebremariam Mehri 5. Amsalat Negossa Tekela 6. ASSAF Aid Organization for Refugees and Asylum Seekers in Israel 7. Hotline for Migrant Workers 8. Association for Civil Rights in Israel 9. Kav LaOved 10. African Refugee Development Center The Applicants in MAA 1192/13: 1. John Doe 2. Jane Doe The Appellants in AAP 1247/13: 1. Ta’ami (Tabi) Tahanges 2. Jane Doe 3. John Doe Applicant to join as amicus curiae in HCJ 7146/12: UN High Commissioner for Refugees Applicant to join as amicus curiae in HCJ 7146/12: Kohelet Policy Forum Versus The Respondents in HCJ 7146/12: 1. The Knesset 2. The Minister of the Interior 3. The Minister of Defense 4. The Attorney General 2 The Respondents in MAA 1192/13: 1. The Ministry of the Interior 2. Jane Doe 3. John Doe 4. John Doe 5. John Doe 6. Jane Doe The Respondents in AAP 1247/13: The Ministry of the Interior Applicant to join as amicus curiae in HCJ 7146/12: Fence for Life Movement Applicants to join as respondents in HCJ 7146/12: Corinne Galili and 17 Others HCJ 7146/12: Petition to grant an Order Nisi MAA 1192/13: Application for permission to appeal the ruling of Beersheva District Court dated January 17, 2013 in Adm. App. 21001-10-12, Adm. App. 21060-10-12, Adm. App. 21097-10-12; Adm. App. 42469-10-12; and Adm. App. 42465-10-12 granted by President Y. Alon AAP 1247/13: Appeal against the ruling of Beersheva District Court dated January 17, 2013 in Adm. Pet. 21001-10-12 and Adm. Pet. 21097019012 granted by President Y. Alon Session Date: 24 Sivan 5773 (June 2, 2013) For the Petitioners Atty. Yonatan Berman; Atty. Anat Ben-Dor; in HCH 7146/12: Atty. Oded Feller; Atty. Asaf Weitzen For the Applicants Atty. Yonatan Berman; Atty. Omer Shatz; in MAA 1192/13: Atty. Yiftah Cohen For the Appellants in Atty. Tomer Warsaw; Atty. Orit Ronen; AAP 1247/13 and Respondents Atty. Yael Rothschild 2-6 in MAA 1192/13: For the applicant to join as amicus Ms. Walpurga Engelbrecht, Representative of the UN curiae in HCJ 7146/12: High Commissioner for Refugees in Tel Aviv For the applicant to join as amicus Atty. Ariel Erlich; Dr. Aviad Bakshi curiae in HCJ 7146/12: For Respondent 1 Atty. Dr. Gur Blei in HCJ 7146/12: For Respondents 2-4 in HCJ 7146/12, Atty. Yochi Gnessin; Atty. Michal Michlin- 2 3 Respondent 1 in MAA 1192/13 Friedlander; Atty. Ran Rosenberg; Atty. Moriah and the Respondent in AAP 1247/13: Freeman For the applicant to join as a Atty. Amir Avni; Atty. Ofer Hanoch; respondent in HCJ 7146/12: Atty. Uri Harel For the Concord Center: Atty. Prof. Frances Raday Ruling Justice E. Arbel: The central issue placed before us is the question of the constitutionality of the Prevention of Infiltration Law (Offenses and Jurisdiction) (Amendment No. 3 and Temporary Provision), 5772-2012 (hereinafter: the Amendment), enacted by way of the amendment of the Prevention of Infiltration Law, 5714-1954 (hereinafter: the Law or the Prevention of Infiltration Law). The Amendment enables infiltrators against whom a deportation order has been issued by the minister of justice to be held in custody for a period of three years. 1. We have before us three cases whose hearing has been consolidated. The first and central of these is a constitutional petition (HCJ 7146/12) directly attacking the constitutionality of the Amendment. Alongside this, an appeal (AAP 7146/12) and a motion for permission to appeal (MAA 1192/13) were filed, both of which attack a ruling granted by the Court of Administrative Affairs, and which also raises the question of the constitutionality of the Amendment. The matter before us focuses on the Amendment to the Prevention of Infiltration Law, implementation of which has already begun. I shall, of course, discuss the details of the Amendment to the Law below; however, I shall note at this early juncture that the essence of the Amendment relates to the possibility of holding infiltrators against whom the minister of defense has issued a deportation order in custody for a period of three years. An infiltrator is defined in the Amendment (article 1 of the Prevention of Infiltration Law) as a person who is not a resident and who entered Israel otherwise than through a border post established by the minister of the interior in accordance with the Entry to Israel Law, 5712-1952 (hereinafter: the Entry to Israel Law). However, the Amendment 3 4 specifies instances in which the infiltrator is to be released on various grounds prior to the expiry of the above-mentioned period. The Amendment also establishes a series of arrangements relating to these provisions, including conditions of holding in custody, the appointment of a tribunal for the review of custody of infiltrators and the authorities of the tribunal, judicial review, etc. Background Review 2. Migration of humans for various reasons is a global phenomenon that has grown consistently over recent decades. The State of Israel has not been excluded from the global map of migration. Millions of men and women “wander from their countries seeking employment and personal and economic security” (see HCJ 4542/02 Kav LaOved Association v. Government of Israel, Piskei Din 61(1) 374, para. 23 of Justice Levy’s ruling and the references therein (2006) (hereinafter: Kav LaOved I)). Accordingly, the State of Israel has in recent years addressed difficult issues and dilemmas concerning the state’s migration policy and the manner in which it processes and treats legal and illegal migration. The various issues to be resolved differ from each other and raise distinct problems and diverse dilemmas. Thus substantive issues have been raised regarding application for family unification in Israel; the issue of foreign workers; asylum seekers and refugees. Most of the issues raise confrontations between national and public interests and the rights of the various migrants, including questions concerning the human rights, dignity and liberty of migrants and, conversely, questions of injury to citizens, the impact on the employment of local workers, and so forth. Balancing the interests and values placed on the scales is not easy and raises extremely difficult questions facing those engaged in this task. Any solution entails some injury to one of the interests or the conflicting rights. 3. This case relates to what the state terms “infiltrators,” and we shall also use this term in accordance with the definition in the Law. Infiltrators, then are persons who entered Israel as stated unlawfully and otherwise than through a regulated border post (see also the definition of infiltrator in article 1 of the Prevention of Infiltration Law). Such persons are to be distinguished from persons who entered Israel lawfully 4 5 through a border post, whether as tourists or as foreign workers, but who remained in the country unlawfully while violating the terms of the visa they had been granted. Most of the infiltrators arrived via the State of Israel’s border with Egypt, a border with a length of some 220 km, and which until recently was open, but is now blocked by a fence recently constructed along its length. The phenomenon of the infiltrators, which has expanded in the State of Israel, influences various areas of national life. There is a significant influence on internal security and public wellbeing. A profound change has been created in the fabric of life in the urban domain, alongside ramifications for the economy and industry. 4. According to figures of the Population and Immigration Authority, a cumulative total of some 54,500 infiltrators entered Israel through the end of 2011. The most updated figures, as of May 1, 2013, refer to 64,649 infiltrators who entered Israeli cumulatively, of whom 54,580 are present in Israel as of this date (see Israel Population and Immigration Authority – Annual Report, Freedom of Information Law, 2012, available at: http://www.piba.gov.il/PublicationAndTenderPages/ FreedomOfInformation.aspx; Statistics on Foreigners in Israel, Population and Immigration Authority, May 2013, available at: http://www.piba.gov.il/publicationandtender/foreignworkersstat/pages/default.aspx). 5. The breakdown of the statistics by years indicates a changing trend regarding the phenomenon of infiltration to Israel. In 2009 5,285 infiltrators entered Israel. In 2010 14,709 infiltrators entered via the border with Egypt. In 2011 17,258 infiltrators entered – an average of approximately 1,400 per month. However 2012 marked a turning point and the trend was reversed. In this year 10,412 infiltrators entered Israel, an average of approximately 870 a month. In 2013 the monthly number of infiltrators dropped dramatically. In January, 10 infiltrators were located on the border; in February, five; in March, three; and in April just 10 people were located on the border. The significance and reasons for this significant change in the trend are the subject of disagreement between the sides, as I shall discuss below. 6. The statistics further show that the vast majority of the infiltrators originate from Eritrea and Sudan. According to the latest statistics of the Population Authority, 5 6 66 percent of the infiltrators currently present in Israel come from Eritrea, 25 percent from Sudan, and the remainder from various countries.