Accessing asylum in Europe: extraterritorial border controls and refugee rights under EU law
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| Main Author: | |
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| Format: | Book |
| Language: | English |
| Published: |
Oxford
Oxford University Press
2017
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| Edition: | First edition |
| Series: | Oxford studies in European law
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| Subjects: | |
| Online Access: | Inhaltsverzeichnis |
| Item Description: | Literaturverzeichnis Seite [479]-507 |
| Physical Description: | lxvii, 550 Seiten |
| ISBN: | 9780198701002 |
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| 245 | 1 | 0 | |a Accessing asylum in Europe |b extraterritorial border controls and refugee rights under EU law |c Violeta Moreno-Lax (Senior lecturer in law, Queen Mary University of London) |
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Table of Contents
Table of Cases xxiii
Table of Legislation xlüi
List of Abbreviations Ixv
1. Introduction: EU Pre-border Controls and Protection Seeker Flows 1
1. Background and subject matter 1
2. Objectives 5
3. Structure 9
PART I. THE EU SYSTEM OF PRE-BORDER CONTROL
AND ITS IMPLICATIONS FOR ACCESS
TO INTERNATIONAL PROTECTION IN EUROPE
2. Chronology and Conceptualization of ‘Integrated Border
Management5: The ‘Embodied Border5 Paradigm 13
1. Introduction: The ideal of borderless Europe and competing
rationales 13
2. A history of incremental integration: Towards ‘integrated border
management 14
2.1 From Rome to Maastricht: The exploratory phase 15
2.2 Formal intergovernmental cooperation within and without
Community structures 19
2.2.1 Schengen: The security drive gains force 19
2.2.2 Maastricht’s Third Pillar: A purpose-less, fruit-less cooperation? 21
2.3 Amsterdam: The communautarisation of the Schengen acquis and
Title IV EC 23
2.4 ‘Integrated border management’: The emergence of a new concept 27
3. Lisbon, Stockholm, and the post-Stockholm landscape:
Consolidating IBM 33
3.1 ‘Widening’ IBM: The digitalization of controls 35
3.2 ‘Thickening’ IBM: The militarization of controls 38
3.3 ‘Externalizing’ IBM: The extraterritorialization of controls 39
4. The border overall, irregular migration, and refugee flows:
The need for differentiation 41
5. Closing remarks: The embodied border and the EU fundamental
rights acquis 44
3. The Schengen Borders Code: Securitized Admission Criteria as the
Centrepiece of Integrated Border Management—Instilling Ambiguity 47
1. Introduction: Codifying Schengen 47
2. Admission criteria and related rules before codification 49
2.1 The Schengen legacy 49
2.1.1 The Schengen Agreement and the Schengen Convention 49
2.1.2 The Common Manual 52
XVI
Table of Contents
2.2 Post-Amsterdam EC measures 53
2.2.1 Implementing powers: Retaining sovereignty 53
2.2.2 Facilitating ‘legitimate’ travel 54
2.2.3 Increasing control to combat ‘illegal immigration 55
3. The Code: A common corpus of legislation for IBM 57
3.1 Travaux préparatoires and outcome of negotiations 58
3.2 Structure, principles, and scope 59
3.3 Admission criteria 60
3.4 Border controls: Checks and surveillance 62
3.5 Denial of entry 65
3.6 Internal controls: Police checks and réintroduction of
internal borders 66
4. The impact of the Schengen Borders Code on refugee flows 70
4.1 Are protection seekers covered by general admission criteria? 70
4.2 Are protection seekers covered instead by special provisions? 75
5. Closing remarks: Schengen criteria, protection seekers,
and legal (un-)certainty 78
4. Common Visa Policy: Bordering from Abroad—Applying Admission
Criteria before Departure 81
1. Introduction: Visas as pre-border controls 81
2. Visas and Security: History, format, and the VIS 82
2.1 The evolution of visa powers under the Treaties 82
2.2 Visa format and the VIS 84
3. Visa requirements: The ‘black’ lists 87
3.1 The pre-Amsterdam heritage: EC and Schengen visa lists 87
3.2 The Visa Regulation: Blacklisting criteria and outcomes 89
4. Visa issuing procedure: The Community Code on Visas 94
4.1 Pre-codification instruments 94
4.2 Community Code on Visas: Definitions, principles,
and scope 95
4.3 Application criteria and issuing process 96
4.4 Decisions and appeal rights 99
5. The impact of visas on refugee flows 100
5.1 Visa requirements of protection seekers 100
5.1.1 Visa Regulation provisions 100
5.1.2 Airport Transit Visa requirements 101
5.1.3 Other hidden lists? 103
5.2 Visa issuing procedure for international protection purposes 106
5.2.1 Limited territorial validity visas as ‘asylum visas’? 106
5.2.2 Additional procedural obstacles? 109
5.3 Access to visas in practice 111
6. Closing remarks: Visas, protection seekers, and the rule of law 114 5
5. Carrier Sanctions and ILOs: Anticipated Enforcement of Visa
Requirements through ‘Imperfect Delegation’—Diverting Flows,
Entrenching Unsafety 117
1. Introduction: Privatizing border control, thwarting irregular
movement 117
Table of Contents xvii
2. Carrier sanctions: The rise of anticipated enforcement
of admission rules 120
2.1 General framework: Oudine of delegated coercion 121
2.2 Specific rules on airlines: EU law as a ‘shaper of international
standards—legitimizing pre-emptive enforcement
of entry criteria 125
2.3 Special norms on shipping companies: The (limited) impact
of international rules on EU standards 129
3. Immigration liaison officers: Reinforcing delegation arrangements
of ‘remote border coercion 133
3.1 Pre-EU arrangements: The secrecy of Schengen ILOs 135
3.2 Post-Schengen experience: Opacity continued 137
4. The impact of carrier sanctions and ILOs on refugee flows 142
4.1 Carrier sanctions and forced migrants: The effects of
‘imperfect delegation 143
4.2 ILOs and protection seekers: The effects of‘hidden coercion 147
5. Closing remarks: Structural incompatibility of delegated coercion
with minimum legal guarantees? 150
6. Frontex: Joint Maritime Interdiction of Undifferentiated Flows—
Operationalizing Pre-emptive Controls 153
1. Introduction: Institutionalizing ‘border security5 153
2. Origins, structure, and mission 155
2.1 The genesis of Frontex 155
2.2 Mandate and attributions 158
2.3 Organization, composition, and accountability channels 160
3. Tasks and powers*. Competing or complementary rationales? 165
3.1 Risk analysis: Anticipating threats (discounting
fundamental rights?) 166
3.2 Training: Reintroducing fundamental rights? 169
3.3 Research: Establishing and operating EUROS UR 171
3.4 Cooperation with third parties: Promoting external collaboration,
diffusing responsibilities? 173
3.4.1 Cooperation with third countries 173
3.4.2 Cooperation with other EU bodies and international
organizations 178
4. Joint operations and European Border and Coast Guard Teams
(EBCGTs) 180
4.1 Mission planning 181
4.2 Deployment 182
4.3 Conclusion, early termination, and evaluation 185
4.4 EBCGTs and rapid interventions 186
5. Maritime surveillance and protection seekers 188
5.1 Hera 190
5.2 Hermes 191
5.3 Nautilus 193
5.4 Triton and Triton Tins' 194
6. Closing remarks: Pre-emptive interdiction and non-access
to refuge
197
xviii Table ofContents
PART II. THE RIGHTS OF PROTECTION SEEKERS
UNDER EU LAW AND THEIR IMPLICATIONS
FOR PRE-BORDER CONTROLS
7. The Fundamental Rights Acquis: An Integrative Approach’
to Interpretation—The Aggregate Standards’ Model 203
1. Introduction: Tracing the bases of the ‘integrative approach’
to fundamental rights 203
2. Human rights as international law 206
2.1 Human rights as treaty law 207
2.1.1 Direct effect 208
2.1.2 Indirect effect 209
2.2 Human rights treaties and the succession principle 210
2.3 Human rights as international customary law 212
2.4 ‘Substantive borrowing’ and ‘internal embedment’: Transforming
human rights into ‘fundamental rights’ within the EU legal order 214
3. Fundamental rights as general principles of EU law 217
3.1 Sources of general principles 218
3.2 Functions of general principles 222
4. Fundamental rights in primary law 223
4.1 Treaty provisions before Lisbon 224
4.2 Treaty provisions after Lisbon 225
5. The EU Charter of Fundamental Rights: Origins and evolution 226
6. Determining the Charter standard of protection: The ‘integrative
interpretation method 229
6.1 The Charter and the ECHR: Call for consistency 230
6.2 The Charter and the Treaties: Call for uniformity 233
6.3 The Charter and General Principles: Call for complementarity 234
6.4 The Charter and domestic traditions: From deference
to ‘Europeanization’? 235
6.5 Limitations: Proportionality and the effectiveness of rights 236
6.6 Organizing coexisting commitments: The ‘aggregate standards’ model 238
6.7 Article 53 CFR: Autonomy as isolation? 241
7. Closing remarks: Defining features of the ‘integrative approach5
to EU fundamental rights 245
8. EU Non-RefoulemenP. (The Irrelevance of) Territoriality
and Pre-Border Controls 247
1. Introduction: Extraterritorial borders, refugees,
and non-refoulement 247
2. Non-refoulement under: the 1951 Convention on
the Status of Refugees 249
2.1 Personal scope of application 250
2.2 Material scope of application 251
2.3 Territorial scope of application 253
2.3.1 Article 33 of the Refugee Convention 253
2.3.2 Lessons from international human rights law 259
2.3.2.1 The Human Rights Committee 259
2.3.2.2 The Committee Against Torture 262
2.3.3 Article 33 of the Refugee Convention in light
of international human rights law 263
Table of Contents
xix
3. Non-refoulement under the European Convention on Human Rights 266
3 .1 Personal scope of application 268
3.2 Material scope of application 269
3.3 Territorial scope of application 272
3.3.1 The role of the ‘territorial clause1 and the espace juridique
restriction 272
3.3.2 Jurisdiction as a threshold criterion and extraterritoriality as an
exception 273
3.3.3 Models of extraterritorial jurisdiction: Control over an area
or over persons abroad 275
3.3.3.1 The Al-Skeini taxonomy: The physical model
of effective controPand the importance
of de facto power 276
3.3.3.2 The Hirst categorization: The juridical paradigm
of official authority’ and the role of dejure control 280
4. Non-refoulement under EU Law 281
4.1 Sources and material content of EU non-refoulement 282
4.1.1 Non-refoulement in primary law 282
4.1.1.1 Non-refoulement as part of the right to asylum:
Article 18 CFR 282
4.1.1.2 Non-refoulement and protection from exposure
to ill-treatment: Articles 4 and 19(2) CFR 283
4.1.2 Non-refoulement in secondary law 286
4.2 Personal scope of application 289
4.3 Territorial scope of application 289
4.3.1 Territorial scope of the Charter? 290
4.3.1.1 Article 51 CFR*‘Implementing EU law’ 290
4.3.1.2 The irrelevance of‘jurisdiction (and territoriality) 292
4.3.2 Territorial scope of EU law? 294
4.3.3 Territorial scope of IBM (secondary law) rules? 296
5. The implications of non-refoulement for extraterritorial
entry controls 298
5.1 Non-refoulement and visas 298
5.1.1 Visas and refugees as a matter of diplomatic asylum 298
5.1.1.1 The Soering standard and State representations abroad 298
5.1.1.2 Qualifying Soering in the name of PIL 300
5.1.1.3 Strasbourg’s take on the ‘diplomatic exception
and the related ‘conflict of obligations’ scenario 305
5.1.1.4 Vost-Al-Saadoon developments: The duty of care 307
5.1.2 Visas and refugees as a matter of access to territorial asylum 308
5.1.2.1 Individual visa refusals 309
5.1.2.2 ‘Black listing and general visa requirements 311
5.2 Non-rtfoulement and refusal of boarding 313
5.2.1 Carriers as entities exercising elements
of governmental authority’ 313
5.2.2 Carriers as ‘directed or controlled’ by States (through ILOs) 316
5.2.3 A separate requirement of ‘jurisdictioh? 318
5.2.4 Imperfect delegation, asymmetric penalization, and composite
wrongful acts 319
5.3 Non-rfoulement and maritime interdiction 320
5.3.1 Matters of jurisdiction 320
5.3.1.1 Dejure j urisdiction: The implications of legal
competence abroad
320
XX
Table of Contents
5.3.1.2 Defacto control: Towards cause-and-effect jurisdiction 322
5.3.1.3 The situation under EU law: A ‘functional’ approach 324
5.3.2 Issues of attribution and responsibility 326
5.3.2.1 Cooperation through a common organ 327
5.3.2.2 Cooperation with third countries 329
5.3.3 The extent of positive obligations at sea 332
6. Concluding remarks: A functional approach to non-refoulement 333
9. The EU Right to Asylum: An Individual Entitlement
to (Access) International Protection 337
1. Introduction: Only a right ?ƒ asylum? 337
2. Access to asylum and the 1951 Refugee Convention:
The aggregate ‘right to leave to seek asylum’ from persecution 340
2.1 Refugees and the ‘right to flee’ 341
2.1.1 The right to leave every country including ones own 341
2.1.2 Permissible limitations and interdiction measures 343
2.1.3 The ‘opposability’ of the right to leave vis-à-vis every
Contracting Party 345
2.2 The right to leave as a precondition for access to asylum 348
2.2.1 The right to leave and its intersection with other (refugee) rights 348
2.2.2 Access to international protection under the 1951 Convention 350
2.2.3 The principle of non-penalization for unauthorized entry and
admission to refuge 352
3. Access to asylum and the European Convention on Human Rights:
A right to enter a procedure for determining protection needs 354
3.1 The (qualified) right to leave in the ECHR 355
3.2 Permissible limitations and immigration control: A right to leave
but only if pre-authorized? 357
3.3 Refugees, restrictions on exit/entry and the right to gain access
to asylum procedures 360
4. Access to asylum under EU Law: A subjective entitlement
to (seek and be granted) international protection 365
4.1 Asylum in Europe: From a right of States to (also) a right of
the individual 365
4.2 The evolution at EU level: Towards Article 18 CFR 368
4.3 The right to asylum in the Charter of Fundamental Rights 371
4.3.1 Personal scope of application 373
4.3.2 Material scope of application 375
4.3.2.1 The right to be granted territorial protection 377
4.3.2.2 The right to access an asylum procedure 379
4.3.3 Territorial scope of application 380
5. The implications of the right to asylum for extraterritorial
entry controls 384
5.1 Pre-border regulations and Article 18 CFR: The status quo 385
5.2 Compatibility check: Proportionality requirements of the
fundamental rights acquis 387
5.3 What about entry? An (implicit) right to gain effective access
to (territorial) asylum 389
5.4 Links to non-refoulement. The right to (leave to seek) asylum as
an absolute entidement 391
6. Concluding remarks: An EU ‘right to flee’ 393
Table of Contents xxi
10. Remedies, Procedural Guarantees (and the Unavoidability
of Admission to Territory) 395
1. Introduction: The effectiveness of rights 395
2. Remedies under the 1951 Convention on the Status of Refugees 396
2.1 Procedural guarantees implicit in Article 33(1) CSR51 396
2.2 The meaning of‘access to courts in Article 16 CSR51 400
2.3 Human rights parallels: Due process under Article 14(1) ICCPR 403
2.4 Implicit procedural safeguards against refoulement: Articles 7
ICCPR and 3 CAT 405
2.5 Appeal rights: Remedies against negative decisions at first instance 406
2.6 Suspensive effect as sine qua non of effective remedies 407
3. Remedies under the European Convention on Human Rights 409
3.1 The right to a fair trial: Article 6 ECHR 410
3.1.1 The determination of civil rights and obligations' 410
3.1.2 Access to court as the foremost guarantee: The right to institute
proceedings 411
3.1.3 Ancillary safeguards: Ensuring the fairness of procedures 413
3.1.3.1 Equality of arms and adversarial proceedings 413
3.1.3.2 Public hearing in ones presence 414
3.1.3.3 The duty of proper examination and to deliver
reaso ned decisio ns 415
3.1.3.4 Institutional guarantees: The right to an
‘independent and impartial tribunal' 416
3.1.4 Appeal rights 417
3.1.5 The exclusion of immigration proceedings from the ambit
of Article 6 ECHR 417
3.2 Procedural safeguards in immigration proceedings: Article 13 ECHR 418
3.2.1 Key features of an effective remedy: Reintroducing fair
trial guarantees? 418
3.2.2 Material scope of Article 13 ECHR: The notion of
arguable claim’ 419
3.2.3 Article 3 together with Article 13 ECHR: Positive duties
ensuing from non-refoulement 420
3.2.3.1 Ex ante/ex post investigation duties 421
3.2.3.2 A preventative approach: Obligation to instate dedicated
(and accessible) procedures 421
3.2.3.3 Independent, individual, and rigorous scrutiny
of complaints 423
3.2.3.4 Ancillary safeguards: Guaranteeing the exercisability
of remedies 423
3.2.3.5 Evidentiary rules: Burden and level of proof 424
3.2.3.6 Appeal rights 427
3.2.3.7 (Automatic) suspensive effect 428
4. Remedies under EU Law 429
4.1 National procedural autonomy: Equivalence, effectiveness, and
the ho - new-re medies’ rule 430
4.2 The principle of effective judicial protection 433
4.2.1 National procedural requirements v. the effectiveness of EU rights 433
4.2.2 Judicial review of administrative action by
a competent court' 435
4.2.3 The exhaustive examination of all facts and circumstances'
and interim relief
436
xxii Table of Contents
4.3 The invokability of judicial protection as an individual right:
Article 47 CFR 437
4.3.1 The input of Article 13 ECHR 438
4.3*2 The contribution of Article 6(1) ECHR 439
4.3.3 Appeals and suspensive effect 442
4.4 Overlapping protection: Article 41 CFR and the right to good
administration 443
4.4.1 The right to be heard 443
4.4.2 Access to ones file 444
4.4.3 The duty to provide reasons 445
5. The implications of the right to judicial protection
for extraterritorial entry controls 446
5.1 The (Un-)importance of harmonized (international protection)
procedures in the context of pre-border controls 446
5.2 The limits of national procedural autonomy when protection seekers
are involved 448
5.3 The (inadequate) approach of the EU legislator 450
5.3.1 Procedural guarantees inscribed in Frontex legislation 450
5.3.2 Procedural safeguards provided in Schengen visa regulations 453
5.3.3 Procedural protections regarding ILOs’ and carriers’
interventions 455
6. Concluding remarks: The inescapability of granting access
to territory 457
Conclusions: Taking EU Protection Seeker Rights Seriously 461
1. The Sein 461
1.1 The starting point: An open area of freedom security and justice 461
1.2 The pre-eminence of security and the projection of the border abroad 462
1.3 The ambiguous regulation of protection-based entry (and pre-entry) 464
1.4 The Trregularizadon of forced movement (towards the EU) 464
1.5 The impact of IBM measures on protection seekers 466
1.5.1 Schengen visas 466
1.5.2 Carrier sanctions and ILOs 467
1.5.3 Maritime interdiction 468
2. The Sollen 470
2.1 The ‘integrative interpretation approach 470
2.2 Member States’ (non-absolute) powers of border
and migration control 471
2.3 The irrelevance of territory: Jurisdiction, attribution, and the Fransson
paradigm 471
2.4 EU Non-refoulement 473
2.5 The right to (leave to seek) asylum in the CFR: The EU ‘right to flee’ 474
2.6 Effective judicial protection as an individual right 475
3. The options left: Adapt or abandon 477
Select Bibliography 479
Index 509 |
| any_adam_object | 1 |
| author | Moreno-Lax, Violeta |
| author_GND | (DE-588)1122467273 |
| author_facet | Moreno-Lax, Violeta |
| author_role | aut |
| author_sort | Moreno-Lax, Violeta |
| author_variant | v m l vml |
| building | Verbundindex |
| bvnumber | BV044472756 |
| classification_rvk | MK 5205 PS 3872 |
| ctrlnum | (OCoLC)1006379078 (DE-599)BSZ484644270 |
| discipline | Rechtswissenschaft Politologie |
| edition | First edition |
| format | Book |
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| id | DE-604.BV044472756 |
| illustrated | Not Illustrated |
| indexdate | 2025-02-20T07:08:29Z |
| institution | BVB |
| isbn | 9780198701002 |
| language | English |
| oai_aleph_id | oai:aleph.bib-bvb.de:BVB01-029873128 |
| oclc_num | 1006379078 |
| open_access_boolean | |
| owner | DE-29 DE-473 DE-BY-UBG DE-188 DE-11 DE-824 DE-863 DE-BY-FWS |
| owner_facet | DE-29 DE-473 DE-BY-UBG DE-188 DE-11 DE-824 DE-863 DE-BY-FWS |
| physical | lxvii, 550 Seiten |
| publishDate | 2017 |
| publishDateSearch | 2017 |
| publishDateSort | 2017 |
| publisher | Oxford University Press |
| record_format | marc |
| series2 | Oxford studies in European law |
| spellingShingle | Moreno-Lax, Violeta Accessing asylum in Europe extraterritorial border controls and refugee rights under EU law Europäische Union (DE-588)5098525-5 gnd Asylrecht (DE-588)4003338-7 gnd Grenzpolizeiliche Kontrolle (DE-588)4279393-2 gnd |
| subject_GND | (DE-588)5098525-5 (DE-588)4003338-7 (DE-588)4279393-2 |
| title | Accessing asylum in Europe extraterritorial border controls and refugee rights under EU law |
| title_auth | Accessing asylum in Europe extraterritorial border controls and refugee rights under EU law |
| title_exact_search | Accessing asylum in Europe extraterritorial border controls and refugee rights under EU law |
| title_full | Accessing asylum in Europe extraterritorial border controls and refugee rights under EU law Violeta Moreno-Lax (Senior lecturer in law, Queen Mary University of London) |
| title_fullStr | Accessing asylum in Europe extraterritorial border controls and refugee rights under EU law Violeta Moreno-Lax (Senior lecturer in law, Queen Mary University of London) |
| title_full_unstemmed | Accessing asylum in Europe extraterritorial border controls and refugee rights under EU law Violeta Moreno-Lax (Senior lecturer in law, Queen Mary University of London) |
| title_short | Accessing asylum in Europe |
| title_sort | accessing asylum in europe extraterritorial border controls and refugee rights under eu law |
| title_sub | extraterritorial border controls and refugee rights under EU law |
| topic | Europäische Union (DE-588)5098525-5 gnd Asylrecht (DE-588)4003338-7 gnd Grenzpolizeiliche Kontrolle (DE-588)4279393-2 gnd |
| topic_facet | Europäische Union Asylrecht Grenzpolizeiliche Kontrolle |
| url | http://bvbr.bib-bvb.de:8991/F?func=service&doc_library=BVB01&local_base=BVB01&doc_number=029873128&sequence=000001&line_number=0001&func_code=DB_RECORDS&service_type=MEDIA |
| work_keys_str_mv | AT morenolaxvioleta accessingasylumineuropeextraterritorialbordercontrolsandrefugeerightsundereulaw |
Indexes
THWS Würzburg Zentralbibliothek Lesesaal
| Call Number: |
1000 PS 3872 M843 |
|---|---|
| Copy 1 | ausleihbar Available Place a Hold |