Free movement of third-country nationals in the european union: The ilLusion of incLusion

European Law Review

Volumn 35, Issue 4, 2010, Pages 455-475

  Wiesbrock, Anja ^a  

^a MAASTRICHT UNIVERSITY   (Netherlands)

Author keywords

Discrimination; EU law; EU nationals; Free movement of persons; Highly skilled migrant workers; Nationality; Research; Residence; Students; Third country nationals

Indexed keywords

EID: 79751505005     PISSN: 03075400     EISSN: None     Source Type: Journal    
DOI: None     Document Type: Review

References (141)

1. European Council ConcLusions, June 17 2010, EUCO 13/10.
2. See also Europe 2020: a strategyFor smart, sustainable and incLusive growth COM(2010) 2020.
3. See Delivering an area of freedom, security and justice For Europe's citizens. Action Plan Implementing the Stockholm Programme COM(2010)171 final, p.4.
4. Directive 2004/38 on the right of citizens of the Union and their family members to move and reside freely within the territory of the Member States [2004] OJ L158/77.
5. In fact, it has been underlined that the ECJ played a substantial role in interpreting the concept of Union citizenship, which initially contained little novelties as far as the rights of EU citizens are concerned;
6. see G. De Bñrca, "Report on the Further Development of Citizenship in the European Union" (2001)120 Zeitschrfiflur Schweizerisches Recht 43.
7. See Grzelczyk v Centre Public d'Aide Sociale d'Ottignies Louvain Ia Neuve (C-184/99) [2001] E.C.R. 1-6 193;
8. [2002] 1 C.M.L.R. 19;
9. R. (on the application of Bidar) v Ealing LBC (C-209103) [2005] E.C.R. 1-2119;
10. [2005]2 C.M.L.R. 3;
11. Collins v Secretary of StateFor Workand Pensions (C-138/02) [2004]E.C.R. 1-2703;
12. [2004]2 C.M.L.R. 8;
13. Trojani v Centre Public d'Aide Sociale de Bruxelles (CPAS) (C-456/02) [2004] E.C.R. 1-7573;
14. [2004] 3 C.M.L.R. 38.
15. The role of the Court in the development of the concept of Union citizenship has been dealt with extensively in the literature, see For instance J.D. Mather, "The Court of Justice and the Union Citizen" (2005) 11 European Law Journal 722; A. Castro Oliveira, "Workers and Other Persons: Step-by-step from movement to citizenship-case law 1995-200 1" (2002) 39 C.M.L. Rev. 77.
16. D. Kostakopoulou, "European Union Citizenship: Writing the Future?" (2007) 13 European Law Journal 624.
17. W. Alexander, "Free Movement of Non-EC Nationals. A Review of the Case-Law of the Court of Justice" (1992) 3 European Journal of International Law 53.
18. See in particular Baumbast and R v Secretary of State For the Home Department (C-4 13/99) [2002] E.C.R. 1-7091;
19. [2002] 3 C.M.L.R. 23;
20. Mouvement contre le Racisme, l 'Antisemitisme ella Xenophobie ASBL (1V1RAX) v Belgium (C-459/99) [2002] E.C.R. 1-6591;
21. [2002] 3 C.M.L.R. 25;
22. Zhu and Chen v Secretary of StateFor the Home Department (C-200/02) [2004] E.C.R. 1-9925;
23. [2004] 3 C.M.L.R. 48;
24. Secretary of State For the Home Department v Akrich (C-109/01) [2003] E.C.R. 1-9607;
25. [2003] 3 C.M.L.R. 26;
26. Jia v Migrations verket (C-I/OS) [2007] E.C.R. I-I;
27. [2007] I C.M.L.R. 41;
28. Metock v Minister For Justice, Equality and Law ReForm (C- 127/08) [2008] E.C.R. 1-6241;
29. [2008] 3 C.M.L.R. 39.
30. The Court held in Vander Elsi v office des Migrations Internationales (C-43/93) [1994] E.C.R. 1-3803;
31. [1995] I C.M.L.R. 513 that such workers have a right of entry and residence in the Member States where the services are provided, but only to the extent necessary to provide the services and without any right to join the employment market of the host state.
32. See also Seco SA and Des quenne & Giral v Etablissement d 'Assurance contre Ia Vieillesse et I 'Invalidite (62/81 & 63/81) [1982] E.C.R. 223 and Rush Portuguesa Lda v office National d 'Immigration (C- 113/89) [1990] E.C.R. 1-1417; [19911 2 C.M.L.R. 818. For more details see J. Onslow-Cole, "The Right of Establishment and Provision of Services: Community Employers and Third-country nationals" in E. Guild (ed.), The Legal Framework and Social Consequences of Free Movement of Persons in the European Union (The Hague: Kluwer Law International, 1999), pp.63 et seq.
33. S. Carrera, "What Does Free Movement Mean in Theory and Practice in an Enlarged EU?" (2005) 11 European Law Journal 699;
34. F. Weiss and F. Wooldridge, Free movement ofpersons within the European Community (The Hague: Kluwer Law International, 2002);
35. S. Peers, "Free Movement, Immigration Control and Constitutional Conflict" (2009) 5 European Constitutional Law Review 173.
36. T. Kostakoulou, "Long-term resident third-country nationals in the European Union: normative expectations and institutional openings" (2002) 28 Journal of Ethnic and Migration Studies 443;
37. S. Boelaert-Suominen, "Non-EU Nationals and the Council Directive 2003/109/EC on the Status of Third-Country Nationals who are Long-Term Residents: Five Pace Forward and Possibly Three Paces Back" (2005) 42 C.M.L. Rev. 1203;
38. T. Halleskov, "The Long-Term Residents Directive: A Fulfilment of the Tampere Objective of near-Equality?" (2005)7 European Journal of Migration and Law 181.
39. Directive 2003/109 concerning the status of third-country nationals who are long-term residents [2004] OJ L16/44.
40. Directive 2004/114 on the conditions of admission of third-countiy nationals For the purposes of studies, pupil exchange, unremunerated training or voluntary service [2004] OJ L375/l 2.
41. Directive 2005/71 on a specific procedure For admitting third-country nationals For the purposes of scientific research [2005] OJ L289/15.
42. Directive 2009/50 on the conditions of entry and residence of third-country nationals For the purposes of highly qualified employment [2009] OJ L155/17.
43. See G. Blanke and A. MacGregor, "Free Movement of Persons within the EU: Current Entitlement of EU Citizens and Third-country Nationals-A Comparative Overview" (2002) 8 International Trade Law and Regulation.
44. A. Turmann, "A New European Agenda For Mobility" in CEPS-ECHR Task Force Report (2004).
45. Iglesias Sanchez, "Free movement as a precondition For Integration of third country nationals in the European Union" in E. Guild, K. Groenendijk and S. Carrera, IlliberalLiberal States: Immigration, Citizenship and Integi-ation in the EU (Ashgate, 2009);
46. A. Evans, "Third-country Nationals and the European Union" (1994) 5 European Journal of International Law 205.
47. T Hoogenboom, "Integration into society and free movement of non-EC nationals" (1992) 3 European Journal of International Law 38.
48. Stockholm Programme, Council document 17024/09, adopted by the European Council on December 10/11, 2009.
49. Tampere European Council (October 15 and 16, 1999), Presidency ConcLusions, no. 21.
50. point 6.1.4 of the Stockholm Programme.
51. point 6.1.5 of the Stockholm Programme.
52. Delivering an area of freedom, security and justice For Europe's citizens. Action Plan Implementing the Stockholm Programme COM(2010) 171 final, p.2.
53. R. Pender, "Competence, European Community Law and Nationals of non-Member States" (1990) 39 International and Comparative Law Quarterly 599.
54. Article 61 EC.
55. Article 63(4) EC.
56. arts 21-24 TFEU (ex 18-21 EC). Yet, it must be underlined that not all rights attached to EU citizenship are necessarily excLusive. For instance the rights to petition the European Parliament and to apply to the Ombudsman contained in art.24 TFEU contain a reference to arts 227 and 228 respectively, which contain a similarly-worded right applicable to "any natural or legal person residing or having its registered office in a Member State".
57. See R.W. Davis, "Citizenship of the Union⋯ Rights For All?" (2002) 27 E.L. Rev. 136.
58. Article 20(1) TFEU (ex 17(1) EC).
59. Kostakoulou, "Long-term resident third-country nationals in the European Union" (2002) 28 Journal of Ethnic and Migration Studies 443;
60. R. Hansen, "A European citizenship or a Europe of citizens? Third Country nationals in the EU" (1998)24 Journal of Ethnic and Migration Studies 751;
61. D. Kochenov, "Lus Tractum of many faces: European Citizenship and the difficult relationship between status and rights" (2009) 15 The Columbia Journal of European Law 224.
62. Article 1(1) of Regulation 1612/68 on freedom of movement For workers within the Community [1968] OJ L257/2.
63. Caisse d'Allocations Familiales v Meade (238/83) [1984] E.C.R. 2631 at [7].
64. Evans, "Third-country Nationals and the European Union" (1994) 5 European Journal of International Law 205;
65. G. Blanke and A. MacGregor, "Free Movement of Persons within the EU: Current Entitlement of EU Citizens and Third-country Nationals-A Comparative Overview" (2002) 8 International Trade Law and Regulation 173;
66. T. Hoogenboom, "Integration into Society and Free Movement of Non-EC Nationals" (1992) 3 European Journal of International Law 36;
67. M. Becker, "Managing Diversity in the European Union: Inclusive European Citizenship and Third-Country Nationals" (2004) 7 Yale Human Rights and Development Law Journal 138.
68. M. Hedemann-Robinson, "Third-Country Nationals, European Union Citizenship, and Free Movement of Persons: a Time For Bridges rather than Divisions" (1996) 1 Yearbook of European Law 332.
69. Kochenov, "Lus Tractum of many faces: European Citizenship and the difficult relationship between status and rights" (2009) 15 The Columbia Journal of European Law 224.
70. Vatsouras v Arbeilsgemeinschaft (ARGE) Nurnberg 900 (C-22/08 & C-23/08) June 4, 2009.
71. Vatsouras (C-22/08 & C-23/08) June 4, 2009 at [52].
72. For this opinion see C. Hublet, "The Scope of Article 12 of the Treaty of the European Communities Vis-à-VIs Third-Country Nationals: Evolution at Last?" (2009) 15 European Law Journal 757 and the references contained therein.
73. ČEZ (C- 115/08) October 27, 2009.
74. ČEZ (C-i 15/08) October 27, 2009 at [88]-[91].
75. For this opinion see M. de Mol, "Zaak C-i 15/08 Land Oberösterreich/CEZ" (2010) 3 SEW. TijdschrW voor Europees en economisch recht 127.
76. S. Iglesias Sanchez, "Free Movement of Third Country Nationals in the European Union? Main Features, Deficiencies and Challenges of the new Mobility Rights in the Area of Freedom, Security and Justice" (2009) 15 European Law Journal 797.
77. T. Kostakopoulou, "Long-term resident third-country nationals in the European Union: normative expectations and institutional openings" (2002) 28 Journal of Ethnic and Migration Studies 443.
78. Stockholm Programme, Council document 17024/09, adopted by the European Council on December 10/11,2009.
79. See point 2.2 of the Stockholm Programme.
80. Delivering an area of freedom, security and justice for Europe's citizens. Action Plan Implementing the Stockholm Programme COM(2010) 171 final.
81. It is notable that in the early 1990s, certain Community institutions had a much more ambitious agenda. The European Parliament as well as the European Economic and Social Committee put forward proposals aimed at granting EU citizenship and free-movement rights to all persons legally residing in a Member State for a certain period of time: European Parliament, Resolution on Freedom of Movement of Non-EEC Nationals [1990] OJ Cl 75;
82. European Parliament, Resolution on the Free Movement of Persons [19911 03 C 159/12-15;
83. European Economic and Social Committee, Opinion on the Status of Migrant Workers from Third Countries [1991] OJ C339/15.
84. Directive 2003/109 concerning the status of third-country nationals who are long-term residents [2004] OJ Li 6/44.
85. A. Skordas, "Immigration and the Market: The Long-Term Residents Directive" (2006) 13 Columbian Journal of European Law 13.
86. Halleskov "The Long-Term Residents Directive" (2005) 7 European Journal of Migration and Law 181.
87. Section 13(2) No.2 Settlement and Residence Act (Niederlassungs- und Aufenthaltsgesetz), Federal Law Gazette 100/2005 (NAG).
88. Section 38a(3)jo.l8(2), 10,20 and 21 Residence Act (Aufenthaltsgesetz), entered into force on January 1,2005 (AufenthG).
89. See for instance for the case of the Netherlands art. 1 7( l)(h) of the Aliens Act (Vreemdelingenwet 2000) (Vw 2000), which exempts long-term residents from another Member State from the obligation to acquire a provisional residence permit.
90. See for instance the discussions and case law regarding the requirement in the Netherlands to impose over a certain income for another 12 months;
91. Rechrbankc-Gravenhage, ziuingsplaats r-Herrogenbosch, 22 february 2008, AWB 07/31192, UN BC6358; ABRvS, 5 december 2008, 200802115/1, UN BG7504.
92. Section 14 NAG.
93. Section 44(1 )(d)jo.44a( I )jo.44(2a) AufenthG.
94. Article 5(2)(c) of the Integration Act (Wet Inburgering) (Wi).
95. Article R.3 13-34- ljo. art.L.3 13-4-1 of the Code on the Entry and Stay of Foreigners and the Right to Asylum (Code de I'entrée et du déjour des étrangers et du droit d'asile) (CESEDA).
96. Boelaert-Suominen, "Non-EU Nationals and the Council Directive 2003/109/EC on the Status of Third-Country Nationals who are Long-Term Residents" (2005)42 C.M.L. Rev. 1203.
97. A. Kocharov, "What intra-Community mobility for third-country workers?" (2008) 6 E.L. Rev. 917.
98. 17/3.3 Aliens Circular (Vreemdelingencirculaire 2000).
99. Section 38a(4)jo.39(4) AufenthG.
100. Article 16(5) of Directive 2003/86.
101. Metock (C-l27/08) [2008] E.C.R. 1-6241.
102. Chakroun (C-578/08) Decision of December 10, 2009.
103. See for this opinion also S. Carrera, "'Integration' as a Process of Inclusion for Migrants? The Case of Long-Term Residents in the EU" in H. Schneider, Migration, Integration and Citizenship. A Challenge for Europe s Future (Forum Maastricht, 2005).
104. For more details see A. Wiesbrock, Legal Migration to the European Union (The Hague: Martinus Nijhoff 2010).
105. See the case law of the ECJ, such as D Hoop v office National de I 'Emploi (C-224/98) [2002] E.C.R. 1-6191; [2002] 3 C.M.L.R. 12; Bidar (C-209/03) [2005] E.C.R. 1-2119; Morgan andBucher v Bezirksregierung Koin (C- 11/06 & C-l2/06) [2007] E.C.R. 1-9161;
106. [2009] 1 C.M.L.R. 1.
107. Government Bill 2005/06:129, Implementation of the EC Directives on transfer of passenger data and residence pemlits for students (Regeringens proposition 2005/06:129, Genomfdrande av EG-direktiven om overfdring av passageraruppger och uppehâ!lsiillstândfdr studier), p.68.
108. Decision of October 2, 2006 amending the Aliens Decree 2000 to implement Directive 2004/114 OJ L 375, explanatoiy note (Besluit van 2 oktober 2006 tot wijziging van het Vreemdelingenbesluit 2000 ter implementatie van de richtlijn 2004/1 14/EG, PbEU L 375, Nota van toelichting).
109. P Boeles et al., European Migration Law (Antwerpen: Intersentia, 2009), p.249.
110. See H. Waither, "Der Wettbewerb urn die besten Köpfe. Aufenthaltsrechtliche Grundlagen ifir das Studiurn von Auslandern in Deutschland" (2006) 10 Zeitschrflflir Auslanderrecht und Ausländerpolitik 354.
111. See for this opinion also S. Peers, "Key legislative developments on migration" (2005) 7 European Journal of Migration and Law 103.
112. Article 21 of Directive 2003/86.
113. Article 9(2) of Directive 2005/71.
114. Article 3(1) of Directive 2003/86.
115. See for this opinion also Boeles, European Migration Law, 2009, p.246.
116. Committee Report on Visiting Researchers-new rules for entry, stay and work (Betänkande av Gastforskarutredningen, Gastforskare-nya regler for inresa, vistelse och arbete), SOU 2006:93, p.96.
117. Regulation 2008:294 (F&ordning)
118. The provision complies with s.21 of the Convention implementing the Schengen Agreement of June 14, 1985 on the gradual abolition of checks at their common borders [2000] OJ L239/19.
119. Directive 2009/5 0 on the conditions of entry and residence of third-country nationals for the purposes of highly qualified employment [2009] OJ L155/17.
120. Proposal for a Council Directive on the conditions of entry and residence of third-country nationals for the purposes of highly qualified employment COM(2007) 637 final.
121. E. Collett, Blue Cards and the global battle for talents (European Policy Centre, 2009).
122. Article 18 of Directive 2009/5 0.
123. S. Peers, "Legislative Update: EC Immigration and Asylum Law. Attracting and Detening Labour Migration: The Blue Card and Employers Sanctions Directives" (2009) 11 European Journal of Migration and Law 400.
124. Article I 8(4)(b) jo. 13 of Directive 2009/5 0.
125. Article 18(4) of Directive 2009/5 0 refers to art. 11, which determines the general rules of procedure.
126. Article 14(4) of Directive 2009/50.
127. See final.art.20 of the Proposalfor a Council Directive on the conditions of entry and residence of third-country nationals for the purposes of highly qualified employment COM(2007) 637
128. Delivering an area of freedom, security and justice for Europe's citizens. Action Plan Implementing the Stockholm Programme COM(2010) 171 final, p.4.
129. Delivering an area offreedom, security and justice for Europe citizens COM(2010) 171 final, p.8.
130. See art.67(4) TFEU.
131. Chakroun (C-S 78/08) Decision of December 10, 2009 at [46].
132. See by analogy Commission v France (188/84) [1986] E.C.R. 419, as discussed in C. Barnard, The Substantive Law of the EU (Oxford University Press, 2007), p.590.
133. Under the former title IV of the first pillar, preliminary rulings of the ECJ could only be sought if there were no national legal remedies available. Thus, in contrast to the general procedure under ex art.234 EC, national courts other than the courts of last instance were excluded from the preliminary ruling jurisdiction of the ECJ. This special role of the Court in the AFSJ (the Area of Freedom, Security and Justice) has been abandoned with the Lisbon Treaty.
134. The ordinary preliminary ruling procedure of art.267 TFEU now applies to almost all pieces of primary and secondary law within the AFSJ (with the exception of operations carried out by the police or other law-enforcement services of a Member States or measures taken in order to maintain law and order and safeguard internal security).
135. See Delivering an area of freedom, security and justice for Europe's citizens. Action Plan Implementing the Stockholm Programme COM(2010)171 final.
136. Delivering an area offreedom, security and justice for Europe citizens COM(2010) 171 final, p.3.
137. Chakroun (C-578108) Decision of December 10, 2009 at [43].
138. The rights of third-country nationals have been referred to as mobility rights, rather than free movement rights, see Iglesias Sanchez, "Free Movement of Third Country Nationals in the European Union?" (2009) 15 European Law Journal 797, 801.
139. W.R. Bohning and J. Werquin, Some Economic, Social and Human Rights Considerations concerning the Future Status of Third-Country Nationals in the Single European Market (World Employment Programme Research Working Paper, 1990);
140. For a similar argumentation see also Skordas, "Immigration and the Market" (2006) 13 Columbian Journal of European Law 13.
141. Iglesias Sanchéz, "Free Movement of Third Country Nationals in the European Union?" (2009) 15 European Law Journal 797.