Lisbon Treaty & future 1 Helen Toner. Outline … Freedom, Security & Justice? From Tampere to Hague...
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Transcript of Lisbon Treaty & future 1 Helen Toner. Outline … Freedom, Security & Justice? From Tampere to Hague...
Lisbon Treaty & future 1
Helen Toner
Outline …
Freedom, Security & Justice? From Tampere to Hague & Stockholm Lisbon Treaty; Competences and
decision-making – redressing democratic deficit?
Pact on Immigration & Asylum & Stockholm programme – agenda for the future
The new framework
‘A new supranational setting that is characterised by stronger democratic accountability, judicial control, efficient evaluation mechanisms for the full application of the rule of law and an ambitious, fundamental human rights strategy’ (Guild & Carrera) – these are all important themes
Lisbon Treaty decision-making Prior to Lisbon Treaty – intergovernmental
third pillar in Maastricht Amsterdam Treaty 1999: significant but
not complete Communitarisation 1999 Intergovernmental processes – unanimity,
limited EP role and Commission shared initiative with MS – moves slowly to the more ‘traditional’ Community method in first years
Lisbon Treaty decision-making Immediately before Lisbon Treaty: QMV & Co-decision: border controls,
some visa issues, TCN travel, asylum and irregular migration
QMV & Consultation: admin co-operation, common visa format & list
Unanimity & Consultation: legal migration
Lisbon Treaty decision-making Virtually all shifts to regular ‘normal’
decision-making legislative process ie QMV and co-decision
Will this make a difference? Much already changed anyway ... legal
migration most significant change And to what extent will Parliament
actually make a real difference?
The good the bad and the ugly?
Will this commonly perceived pattern continue?
First readings & Returns directive? Many first reading agreements – secret
‘trialogues’ have been roundly criticised Returns Directive major recent
legislation under co-decision – Acosta asks ‘has the Parliament become bad and ugly?’
The good the bad and the ugly?
Directive passed on first reading in EP after ‘trialogue’ compromise.
Key compromises on issues such as scope, voluntary departure, re-entry ban, remedies, a bit more success in amending Council position on detention and on unaccompanied minors.
The good the bad and the ugly? Why? Pragmatism, pressure from MS, fear
of something worse, procedural pressures to get agreement at first reading?
Is this undermining any potential benefit from input of EP and its LIBE committee?
Yet other indications are more positive with rejection of SWIFT agreement, VIS, position on fundamental rights, willingness to challenge to FR Directive etc?
National democracy? What new enhanced role for national
parliaments? Subsidiarity control mechanism strengthened especially in AFSJ (stronger than elsewhere).
Yet increased co-operation needs to work in practice – communication with, and between, national parliaments will be key.
Is it realistic to think that the timescales involved will really work effectively?
Lisbon Treaty competences
General Provisions – Article 67 TFEU Concepts of Freedom, Security and
Justice central? Security – focused on crime 67(3) Justice – focused on civil
proceedings 67(4) Freedom?? Where does that
appear!?
Immigration & Asylum Instead of ‘freedom’ of movement … ‘It shall ensure the absence of internal
border controls for persons and shall frame a common policy on asylum, immigration and external border control, based on solidarity between member states, which is fair towards third country nationals. For the purpose of this title, stateless persons shall be treated as third country nationals’
Borders & visas competences
Compare Art 77 TFEU with old Art 62 Three month limit dropped ‘Common policy’ on visas rather than
previous 4 categories … an extension? ‘Common’ policy vs ‘Uniform’ visa? Freedom to travel – beyond 3 months
to a ‘short period’!
Borders & visas competences
New competence re gradual establishment of integrated border management system for external borders
Line between this (opted-out) and customs co-operation (not opted-out) will have to be considered
Borders & visas competences
Passports & other now other documents also: if necessary to facilitate EU Cit’s rights ‘to move and reside freely’, and if not provided other power to do so
Passport and i/d for EU Citizens and id/residence cards for their family members security issues, could be covered by borders competence
Asylum competences Compare Art 78 TFEU, old Art 63(1) 64(2)
EC ‘Common policy’ on asylum rather than
previous refs often to ‘minimum standards’ Will this allow more ambition? With previous framework ‘difficult to see
how a genuinely common system could ever be established’ (Peers) and this may well now change?
Asylum competences Status vs Qualification? Asylum Status ‘valid throughout the
union’ – goes beyond competence relating to subsidiary protection. Range of possible approaches to interpreting this.
Temp protection: common system not just minimum, but only if ‘mass influx’ (which already had been in legislation)
More comprehensive limitation to TCNs
Asylum competences
Burden sharing power old 63(2) gone … but solidarity underpinning
Measures for benefit of individual MS
Partnership and co-operation with third countries - clearer competence
Immigration competences
Compare Art 79 with old 63(3) and (4) ‘Common policy’ – again more
intensive competence? Guiding principles: efficient
management, fair treatment of lawful resident TCN, enhanced measures against illegal migration and trafficking
Legal migration
79(2)a and b Clearer competence to regulate
rights within first state as well as migration to second state: (tho’ this seems already to have be assumed previously … albeit mostly in context of onward migration (LTR, Blue Card; but common framework?)
Legal migration
Express limitation in 79(5) re volumes of admissions
Only refers to art 79, volumes not rights once admitted, or procedures, not applicable to intra-community migration, only for those seeking employment (what does this mean, maybe primary purpose of admission?)
Irregular migration Compare 79(2)c&d, 79(3) TFEU with
63a(c), (d) and 63(3) Limited changes ‘illegal’ becomes
‘unauthorised’ and ‘removal’ alongside ‘repatriation’
Re-admission treaties – competence already implied and exercised, express recognition of this
Trafficking competence expressly clarified - though watch for split between migration and criminal law related issues …
Conclusion Some changes in the Lisbon Treaty –
mainly to competences rather than decision-making processes, and most significantly moving to competences specifically ‘common policy’ rather than often being tied to ‘minimum standards’ as before – culmination and completion of movement from intergovernmental to supranational legislative processes
Outline …
Area of Freedom, Security & Justice?
From Tampere to Hague & Stockholm
Pact on Immigration & Asylum & Stockholm programme – agenda for the future?
‘An Area’? – fragmentation
Fragmentation and opt-outs continues and even becomes ever more complex, as Peers suggests they are ‘in a world of their own’?
UK, Ireland and Denmark continue to have special arrangements – even greater extent than before (all FSJ)
‘An Area’? – fragmentation
Complex dilemma and difference of views on what happens when legislation amended – procedure to ‘expel’ if it becomes inoperable without opt-in
UK has opted into some second stage asylum amending legislation (Dublin, Eurodac) but not others. Will it still be bound by previous legislation?
Freedom
Freedom – freedom of movement as well as fundamental freedoms
How far has freedom of movement been truly achieved?
Security
Safety from external threats, could also include protection against persecution & torture
How far has securitisation been pushed at the expense of providing secure refuge for those who need it?
Justice
Law enforcement – but also respecting the rule of law, and access to justice
Has access to justice and judicial remedies been neglected in favour of enforcing removals and strict rules?
Tampere … 1999-2004
First five year programme – setting an ambitious agenda
High expectations about possibilities in Amsterdam
Agenda including Partnerships with countries of origin, CEAS, fair treatment of TCNs, management of migration flows
Successes and failures
Commission ambition, yet member states protecting existing provisions
First building blocks put in place, including much of first phase of CEAS
Key measures including Family Reunification, Long term residence, Dublin, Qualification Directive, Reception conditions
Successes and failures
Has been said that the agenda hasn’t exactly remained totally unfulfilled yet the content remains unfulfilling
Hague … 2004-2009
Securitisation emerges as much stronger theme after 9.11 in the Hague programme
Metaphor of ‘balance’ between security and liberty, between rights and law enforcement emerges more strongly and has been much criticised
Successes and failures (Com) Schengen borders lifted Final completion of the first stage of CEAS
and common visa policy – Visa Code strengthening clarity and remedies
Framework for integration developed Stronger action against illegal
immigration (Frontex, Returns directive) Implementation of initial directives into
national law
2009 - to the future
Pact on Immigration and Asylum 2008
Development of Stockholm Programme
Developing agenda for the next years
Pact on Immigration and Asylum
Political document developed under French Presidency – reflects some of the domestic French immigration agenda?
Aiming to have impact on development of Stockholm programme
Five key areas
Pact: legal immigration
‘Organise legal immigration to take account of the priorities, needs and reception capacities determined by each MS, and encourage integration’
Focus on MS competences and controls esp notable in comments on family reunification
Pact: irregular immigration
Control irregular migration by ensuring the return of irregular aliens to their country of origin
Regularisations discussed but proposed ‘ban’ didn’t survive into final version
Pact: Border controls
Make border controls more effective
Continued development of border controls, biometrics, Frontex
Pact: Asylum
Construct a Europe of Asylum Continued development of CEAS
Pact: external dimension
Comprehensive partnership with countries of origin/transit, encourage synergy between migration and development
Global approach to migration – again emphasises MS agreements with countries of origin
Evaluation? Themes – re-emergence of Nationalism
and Intergovernmentalism? Perpetuates tension between
Europeanisation and National control Transfer of elements of domestic
agendas to European level? Little or no reference to significant EU
initiatives/measures?
Evaluation?
Some developments between the July and September drafts … some elements removed as discussions proceeded (eg, reference to integration contract) and some added (combating discrimination), and more references to the Commission and its role, strengthening this recognition, regularisations also.
Stockholm Programme Drafted in 2009 – after the 2008 Pact and
at same time as coming into force of the Lisbon Treaty
Building on Commissions communications in 2009 COM(2009)262 and 2008
Puts the political priorities in place Key features/themes: ‘Putting solidarity
and responsibility at the heart of our response’
Access to Europe in Globalised world
Integrated External border management
Visa Policy
Asylum & migration
Europe of responsibility, solidarity and partnership …
Migration Consolidating global approach to
migration Migration and development In keeping with labour market
requirements Proactive policies for migrants and
rights Integration
Action plan Borders Amending Frontex Progress report on Eurosur Amending Borders code EES and RTP SIS II Development of Large-Scale IT systems
Agency EASO – methods for identifying protection
needs in ‘mixed flows’
Action plan Visa Western Balkans Handbook Further visa facilitation agreements VIS Communication re consular
co-operation/common application centres Evaluation of Visa Code, VIS Communication re ‘new concept of Visa
policy’
Action plan Migration
Communication on coherence with other policy areas, Annual reports, developing statistics
Global approach, development, labour market, migrant rights, integration, illegal immigration
Global approach
Further report on evaluation/development of Global Approach
Ongoing further dialogue, mobility partnerships
Migration & development
Communication on maximising positive and minimising negative effects of migration
Climate change communication Observatory network and co-
operation with third countries esp in Africa
Labour market
Seasonal employment, intra-country transfers
Reports on existing directives and follow-up
Communication on labour shortages Developing European Migration
Network
Migrants and rights, minors
Family Reunification – Green paper and future amendment of directive?
Development of Immigration Code in longer term
Further action on Integration Action Plan on unaccompanied
minors now published
Illegal immigration
Evaluation of readmission agreements
Evaluation of return policy Report on directives, possible
amendments Continued negotiation of
readmission agreements (Turkey Morocco China Bangladesh etc)
Action Plan Asylum Eurodac Development Joint processing communication Geneva Convention Accession
communication EASO evaluation – impact on practical co-
operation Communication on framework for transfer
of beneficiaries and mutual recognition Common methodology to reduce disparities
Action Plan Asylum
Reviewing national systems esp Capacity issues
Communication on solidarity Evaluation of possible mechanisms
for facilitating secondment procedures
Strategic partnership UNCHR
Action Plan Asylum
Resettlement programme evaluation and development
New approaches to access – targeting transit countries
New Regional Protection Programmes