Bridges Not Walls
Total Page：16
File Type：pdf, Size：1020Kb
Access to Protection: Bridges not Walls in the case of H frontespizio_Layout 1 10/10/14 09.35 Pagina 1 Access to Protection: Bridges not Walls ACCESS TO PROTECTION: BRIDGES NOT WALLS ACKNOWLEDGEMENTS This publication was written by Maria Cordeil de Donato with the invaluable support of Daniela Maccioni involved more specifically in research activities, in the frame of the Project ”Access to protection: a human right”, co-financed by the European Programme for Integration and Migration (EPIM) – Network of European Foundations. The contents of this publication are the sole responsibility of CIR, coordinator of the project, and can in no way reflect the views of EPIM. The report, in particular Chapter VII, brings together findings from Epim National Country reports produced by: Germany: Dominik Bender, Pro Asyl Foundation Greece: Spyros Koulocheris, Greek Council for Refugees Hungary: Aniko Bakonyi and Júlia Iván, Hungarian Helsinki Committee Italy: Maria de Donato, Daniela Di Rado and Daniela Maccioni, Italian Council for Refugees Malta: Jean-Pierre Gauci and Patricia Mallia, The People for Change Foundation Spain: Elena Muñoz Martínez, Spanish Commission for Refugee Aid Portugal: João Côrte-Real Vasconcelos, Mónica D’Oliveira Farinha, Daniela Battipaglia, Portuguese Council for Refugees We would like to sincerely thank all stakeholders who accepted to be interviewed for the purpose of this Report. We are also very grateful for the contributions made by Linda Sette, Assunta Stifano, Daniela De Fazio, Silvia Loschiavo, Jessica Jennifer Gonzalez to this Publication. Photos reproduced with the kind authorization of the Italian Navy Printed in October 2014 Inprinting SRL – Roma - 2 - - 3 - TABLE OF CONTENTS ACRONYMS ......................................................................................................... 5 RECOMMENDATIONS ............................................................................................. 7 INTRODUCTION .................................................................................................... 11 I. THE PROJECT “Access to Protection: a Human Right” ........................................... 15 I.1 The Project ..................................................................................................... 15 I.2 The Report “Access to Protection: Bridges not Walls” ............................................. 17 II. MAIN MIGRATION FLOWS AND ROUTES ............................................................... 18 III. THE PRINCIPLE OF NON-REFOULEMENT AND THE HIRSI DECISION ......................... 23 III.1 The Decision Hirsi Jamaa and Others v. Italy ...................................................... 23 III.2 The Principle of Non-refoulement ...................................................................... 27 IV. EU POLICIES AND LEGISLATION HAVING AN IMPACT ON ACCESS TO PROTECTION ..... 30 IV.1 The EU Policies following the Hirsi Decision ........................................................ 30 IV.1.1 Strategic Guidelines for Legislative and Operational Planning ...................... 30 IV.1.2 Task Force for the Mediterranean .......................................................... 32 IV.1.3 The EUROSUR Regulation and the External Sea Border Surveillance Regulation .. 33 IV.1.4 CEAS: Future Steps? ............................................................................ 35 IV.1.5 Return Policy ..................................................................................... 42 IV.2 The EU Legislative Instruments and the Principle of Non-refoulement ...................... 44 IV.2.1 The Visa Code .................................................................................... 45 IV.2.2 The Schengen Borders Code ................................................................. 48 IV.2.3 The Return Directive ............................................................................ 50 IV.2.4 Frontex ............................................................................................ 52 IV.2.4.1 Monitoring Mechanisms ..................................................................... 59 V. BORDER CONTROL AND SURVEILLANCE MEASURES ............................................... 65 V.1 External Border Control and Surveillance .............................................................. 65 V.1.1 Refusal of Entry and the Principle of Non-refoulement ................................ 67 V.1.2 Fingerprinting Obligations ..................................................................... 69 - 2 - - 3 - ACCESS TO PROTECTION: BRIDGES NOT WALLS V.2 Admission to the Territory and to Protection ........................................................ 73 V.2.1 Border Control at the Airports ................................................................ 77 V.2.2 Land Border Control ............................................................................. 89 V.2.3 Maritime Border Control ....................................................................... 100 V.3 The EU External Sea Borders Surveillance Regulation ............................................. 111 VI. EXTERNALISATION OF BORDER CONTROL MEASURES AND READMISSION AGREEMENTS ... 121 VI.1 Externalisation of Border Control Measures ......................................................... 122 VI.2 Readmission Agreements and the Principle of Non-refoulement .............................. 124 VI.2.1 Readmission Agreements concluded by the EU ......................................... 124 VI.2.2 Bilateral Readmission Agreements ......................................................... 129 VI.2.3 Concerns relative to the Implementation of Readmission Agreements ........... 130 VII. THE RIGHTS AND PROCEDURAL GUARANTEES RELATED TO THE ACCESS TO THE TERRITORY AND TO PROTECTION ............................................................................................ 136 VII.1 Right to Information .................................................................................... 136 VII.2 Right to Interpretation .................................................................................. 147 VII.3 Positive Obligation when adopting Removal Measures ......................................... 151 VII.4 Right to Legal Assistance and to Effective Remedy ............................................. 154 VII.5 Training Obligations ...................................................................................... 162 CONCLUSION ....................................................................................................... 171 - 4 - - 5 - ACRONYMS AIDA Asylum Information Database AMIF Asylum Migration and Integration Fund ANAFE Association Nationale d’Assistance aux Frontières pour les étrangers APDHA Asociaciòn Pro Derechos Humanos de Andalucìa ASGI Associazione per gli Studi Giuridici sull’Immigrazione (Immigration Law Studies Association) CARA Centri di Accoglienza Richiedenti Asilo (Reception centres for asylum seekers) CCC Common Core Curriculum CEAR Comisiòn Española de Ayuda al Refugiado CEAS Common European Asylum System CIE Centri di Identificazione ed Espulsione CIR Consiglio Italiano per i Rifugiati (Italian Council for Refugees) CJEU Court of Justice of the European Union COI Country of Origin Information CPSA Centri di Primo Soccorso ed Accoglienza (Centres for first aid and reception) CPT Committee for the Prevention of Torture CRC Convention on the Rights of the Child DCP Direct Contact Point EASO European Asylum Support Office EBF European Border Fund EC European Commission ECHR European Convention on Human Rights and Fundamental Freedoms ECJ European Court of Justice ECRE European Council on Refugees and Exiles ECtHR European Court of Human Rights EP European Parliament EPIM European Programme for Integration and Migration EU European Union EUBAM EU Border Assistance Mission EURA European Readmission Agreements EUROSUR European External Border Surveillance System FOO Frontex Operational Office FRA European Union Agency for Fundamental Rights FRC First Reception Centre FRO Fundamental Rights Officer - 4 - - 5 - ACCESS TO PROTECTION: BRIDGES NOT WALLS FRONTEX European Agency for the Management of Operational Cooperation at the External Borders of the Member States of the European Union GCR Greek Council for Refugees HHC Hungarian Helsinki Committee ICC International Coordination Centre ICCPR International Covenant on Civil and Political Rights ILO Immigration Liaison Officer IOM International Organization for Migration ISF Internal Security Funds JLD Judge of Freedom and Detention JRO Joint Return Operations NGO Non-Governmental Organization OFPRA Office for the Protection of Refugees and Stateless Person PACE Council of Europe’s Parliamentary Assembly PCF The People for Change Foundation PCR Portuguese Council for Refugees PEP Protected Entry Procedure RABIT Rapid Border Intervention Teams SPRAR Sistema di Protezione per i Richiedenti Asilo e Rifugiati (Protection System for Asylum Seekers and Refugees ) TFEU Treaty on the Functioning of European Union UDHC Universal Declaration of Human Rights UN United Nations UNHCR United Nations High Commissioner for Refugees VLTV Visa with Limited Territorial Validity - 6 - - 7 - RECOMMENDATIONS TO THE EU AND MEMBER STATES X The EU should ensure effective access to the territory and to individualised relevant procedures in accordance with the principle of non-refoulement and the right to asylum as enshrined in the EU Charter of Fundamental Rights. X The EU should intervene with Member States to halt the unlawful collective