Freedom, Security and Justice in the European Union

WhenJusticeandHomeAffairscooperationwasofficiallyintroducedintheEu- peanlegal orderby theTreaty ofMaastricht, severalnewpolicy fields slowly enteredEuropeanlaw:asylumandimmigrationlaw,criminallaw,policestudies. SincetheTreatyofAmsterdamthisnewpolicyareaisreferredtoastheAreaof Freedom,SecurityandJustice. Ithasbeendividedintotwomainsubjects:b- ders,visa,asylumandimmigration,andcivillawinthefirstpillar;andpoliceand judicialcooperationinthethirdpillar. Importantelementsarecommoncontrolsattheexternalbordersfollowingthe abolishmentofinternalcontrols. Asaconsequenceofthecompletionoftheint- nalmarketacommonvisa,asylumandimmigrationpolicyhasbeenputinplace. PolicecooperationbetweennationalauthoritiesandinthecontextofEuropolisan importanttoolforguaranteeingadequatesecurityconditionsforcitizensofthe MemberStates. Criminallawcooperationisnecessarytocombatcrime. ThroughtheTampereProgrammeof1999,theAreawasdevelopedatare- tivelyhighspeed. Eventssuchas11September2001and11March2004have illustratedtheneedandurgencyforclosecooperationincriminallawthroughout Europe,notleasttocombatterrorism. InNovember2004,theEuropeanCouncil launchedthefollow-upprogrammeof‘Tampere’:theHagueProgramme,along withadetailedActionPlaninJune2005. ThedepartmentofEuropeanLawoftheLawSchoolofErasmusUniversity RotterdamhasfromthebeginningtakentheAreaofFreedom,SecurityandJ- ticeasoneofthefocalpointsofitsresearch. Oneoftheachievementswasthe publicationofahandbookbyDeZwaanandBultena:RuimtevanVrijheid,Veil- heidenRechtvaardigheid[AreaofFreedom,SecurityandJustice],in2002. A specialcourseforstudentsofcriminologyandDutchlawistaughtattheLaw Schoolaswell,andthesubjectispartoftheresearchintheResearchSchoolfor SafetyandSecurityinSocialIssues(OnderzoeksschoolMaatschappelijkeVeil- heid). InviewofthisfocusontheAreaofFreedom,SecurityandJustice,andinview ofthepotentiallyfar-reachinginfluenceoftheHagueProgrammefortheEu- peancitizens,thedepartmentofEuropeanLaworganizedatwodaysinternational conferenceon23and24June2005inRotterdam,withover120participantsfrom alloverEurope. Prominentspeakersfrompolitics(EuropeanCommissionerFr- tini,DutchMinisterofJusticeDonner),thecivilservice(fromtheEuropeanC- mission,fromtheCouncil,andfromnationalministries),nongovernmentalor- nizations, and from the academic world (speakers from Turkey, the UK, and Germany for instance) discussed the new developments from many different angles. VIII Thisbookrepresentsthereflectionoftheconference:manyspeakersandp- ticipantscooperatedtoproducethisfirstevaluationoftheHagueProgramme. In viewofitsdifferentcharacteronlycivillawcooperationisnotcoveredinthis publication. WewouldliketothankLauraSchepersfortakingcareofallthedetailsinthe texts,andPeterMorrisforfine-tuningthelanguage. Wecouldnothaveorganized theconferencewithoutthehelpofNathalieWeberandAnnetSchuurmanofour conferencebureau. Rotterdam,May2006 JaapdeZwaan FloraGoudappel IX TableofContents Summaryofcontents. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . V Foreword. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . VII Listofabbreviations. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . XV Introductoryspeeches Piet-HeinDonner TheHagueProgramme. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3 FrancoFrattini TheHagueProgramme:ourfutureinvestmentindemocraticstabilityand democraticsecurity. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 AlexanderSorel Asylum,migrationandbordercontrolsintheHagueProgramme. . . . . . . . . . 11 1. Introduction. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11 2. TheTampereProgramme. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11 3. TheHagueProgramme. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12 3. 1 TheCommonEuropeanAsylumSystem. . . . . . . . . . . . . . . . . . . . . . . . . 13 3. 2 Legalmigration. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13 3. 3 Integrationofthird-countrynationals. . . . . . . . . . . . . . . . . . . . . . . . . . . . 14 3. 4 Theexternaldimensionofasylumandmigration. . . . . . . . . . . . . . . . . . . 14 3. 5 Managementofmigrationflows. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14 4. Conclusion. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15 MarjorieA. C. Bonn EstablishingtheHagueProgramme,strengtheningfreedom,security andjustice. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17 Bordersandvisa SilviaRomein EUborderandvisapolicy:currentstateofaffairs. . . . . . . . . . . . . . . . . . . . . . . 23 1. Introduction. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23 1. 1 Contentsofthispaper. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23 1. 2 Historicalbackground. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23 X 2. TheEuropeanborderandvisapolicies:anoverview. . . . . . . . . . . . . . . . . . . . 27 2. 1 Internalborderissues. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27 2. 2 Externalborderissues. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28 2. 2. 1 Introduction. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28 2. 2. 2 SchengenInformationSystem . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29 2. 2. 3 Integratedmanagementoftheexternalborders. . . . . . . . . . . . . . . 31 2. 2. 4 ACommunityCodeontherulesgoverningthemovementof personsacrossborders. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32 2. 2. 5 Localbordertraffic. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33 2. 2. 6 Theobligationofcarrierstocommunicatepassengerdata. . . . . . . 35 2. 3 Visas. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35 2. 3. 1 Introduction. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35 2. 3. 2 Policyforvisas(para. 2bi). . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36 2. 3. 3 ProceduresandconditionsforissuingvisasbyMember States(para. 2bii). . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37 2. 3. 4 Uniformformatforvisas(para. 2biii). . . . . . . . . . . . . . . . . . . . . . 39 2. 3. 5 Uniformvisa(para. 2biv). . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 40 2. 3. 6 VisaInformationSystem(VIS). . . . . . . . . . . . . . . . . . . . . . . . . . . .