KONČNO
A6-0060/2006
9.3.2006
***I
POROČILO
o predlogu odločbe Evropskega parlamenta in Sveta o vzpostavitvi poenostavljenega režima kontrole oseb na zunanjih mejah na podlagi enostranskega priznanja nekaterih dovoljenj za prebivanje, ki jih izdata Švica in Lihtenštajn, s strani držav članic za namen tranzita preko njihovih ozemelj
(KOM(2005)0381 – C6‑0254/2005 – 2005/0159(COD))
Odbor za državljanske svoboščine, pravosodje in notranje zadeve
Poročevalec:
Michael Cashman
PE 367.821v02-00
Oznake postopkov
* Postopek posvetovanja
večina oddanih glasov
**I Postopek sodelovanja (prva obravnava)
večina oddanih glasov
**II Postopek sodelovanja (druga obravnava)
večina oddanih glasov za odobritev skupnega stališča
absolutna večina poslancev Parlamenta za zavrnitev ali spremembo skupnega stališča
*** Postopek privolitve
absolutna večina poslancev Parlamenta, razen v primerih, navedenih v členih 105, 107, 161 in 300 Pogodbe ES in členu 7 Pogodbe EU
***I Postopek soodločanja (prva obravnava)
večina oddanih glasov
***II Postopek soodločanja (druga obravnava)
večina oddanih glasov za odobritev skupnega stališča
absolutna večina poslancev Parlamenta za zavrnitev ali spremembo skupnega stališča
***III Postopek soodločanja (tretja obravnava)
večina oddanih glasov za odobritev skupnega besedila
(Vrsta postopka je odvisna od pravne podlage, ki jo predlaga Komisija.)
Spremembe zakonodajnega besedila
Pri spremembah, ki jih predlaga Parlament, je spremenjeno besedilo označeno s krepkim poševnim tiskom . Besedilo, zapisano v navadnem poševnem tisku , označuje tehničnim službam namenjeni del zakonodajnega besedila s predlaganimi popravki, ki se upoštevajo pri pripravi končnega besedila (na primer, očitne napake ali izpustitve v zadevni jezikovni različici). O teh popravkih odločajo pristojne tehnične službe.
VSEBINA
OSNUTEK ZAKONODAJNE RESOLUCIJE EVROPSKEGA PARLAMENTA......................5
EXPLANATORY STATEMENT................................................................................................9
POSTOPEK..............................................................................................................................13
OSNUTEK ZAKONODAJNE RESOLUCIJE EVROPSKEGA PARLAMENTA
o predlogu odločbe Evropskega parlamenta in Sveta o vzpostavitvi poenostavljenega režima kontrole oseb na zunanjih mejah na podlagi enostranskega priznanja nekaterih dovoljenj za prebivanje, ki jih izdata Švica in Lihtenštajn, s strani držav članic za namen tranzita preko njihovih ozemelj
( KOM(2005)0381 – C6‑0254/2005 – 2005/0159(COD) )
(Postopek soodločanja: prva obravnava)
Evropski parlament ,
– ob upoštevanju predloga Komisije Evropskemu parlamentu in Svetu ( KOM(2005)0381 )
Še neobjavljeno v UL. ,
– ob upoštevanju člena 251(2) in člena 62(2) Pogodbe ES, na podlagi katerih je Komisija Parlamentu podala predlog ( C6‑0254/2005 ),
– ob upoštevanju člena 51 svojega Poslovnika,
– ob upoštevanju poročila Odbora za državljanske svoboščine, pravosodje in notranje zadeve ( A6‑0060/2006 ),
1. odobri predlog Komisije, kakor je bil spremenjen;
2. poziva Komisijo, naj zadevo ponovno predloži Parlamentu, če namerava svoj predlog bistveno spremeniti ali nadomestiti z drugim besedilom;
3. naroči svojemu predsedniku, naj stališče Parlamenta posreduje Svetu in Komisiji.
Besedilo, ki ga predlaga Komisija
Predlogi sprememb Parlamenta
Predlog spremembe
1
Uvodna izjava 9
(9) Pogoji za vstop, določeni v členu 5(1) Schengenske konvencije , morajo biti izpolnjeni, razen 5(1)b, v kolikor ta odločba vzpostavlja režim enakovrednosti med tranzitnim vizumom in dovoljenjem za prebivanje, ki ga izdata Švica in Lihtenštajn.
(9) Pogoji za vstop, določeni v členu 5(1) Uredbe (ES) št. .../2006 Evropskega parlamenta in Sveta z dne 15. marca o vzpostavitvi kodeksa Skupnosti o predpisih, ki urejajo gibanje oseb preko meja (kodeksa o schengenskih mejah) , morajo biti izpolnjeni, razen 5(1)b, v kolikor ta odločba vzpostavlja režim enakovrednosti med tranzitnim vizumom in dovoljenjem za prebivanje, ki ga izdata Švica in Lihtenštajn.
Obrazložitev
Po nasvetu pravne službe bi bilo treba sklicevanje na Schengensko konvencijo nadomestiti s sklicevanjem na kodeks o schengenskih mejah.
Predlog spremembe
2
Uvodna izjava 11
(11) Kar zadeva Republiko Islandijo in Kraljevino Norveško, predstavlja ta odločba nadaljnji razvoj določb schengenskega pravnega reda in tako sodi v okvir področja iz člena 1(A) Sklepa Sveta 1999/437/ES z 17. maja 1999 o nekaterih izvedbenih predpisih za uporabo Sporazuma, sklenjenega med Svetom Evropske unije in Republiko Islandijo ter Kraljevino Norveško, v zvezi s pridružitvijo teh dveh držav k izvajanju, uporabi in razvoju schengenskega pravnega reda .
(11) Kar zadeva Republiko Islandijo in Kraljevino Norveško, predstavlja ta odločba nadaljnji razvoj določb schengenskega pravnega reda v smislu sporazuma, ki so ga sklenili Svet Evropske unije ter Republika Islandija in Kraljevina Norveška o njuni pridružitvi k izvajanju, uporabi in razvoju schengenskega pravnega reda, kar spada v okvir področja, navedenega v členu 1(A) Sklepa Sveta 1999/437/ES z dne 17. maja 1999 o nekaterih izvedbenih predpisih za uporabo tega sporazuma .
Predlog spremembe
3
Uvodna izjava 12
(12) Skladno s členoma 1 in 2 Protokola o stališču Danske, ki je priložen k Pogodbi o Evropski uniji in Pogodbi o ustanovitvi Evropske skupnosti, Danska ne sodeluje pri sprejetju te odločbe s strani Sveta, ki zato za Dansko ni zavezujoča niti se v njej ne uporablja. Vendar se bo Danska glede na to, da ta odločba temelji na schengenskem pravnem redu v skladu z naslovom IV tretjega dela Pogodbe o ustanovitvi Evropske skupnosti, v skladu s členom 5 navedenega protokola v roku šestih mesecev po tem, ko Svet sprejme to odločbo, odločila , ali jo bo prenesla v svoje notranje pravo.
(12) Skladno s členoma 1 in 2 Protokola o stališču Danske, ki je priložen k Pogodbi o Evropski uniji in Pogodbi o ustanovitvi Evropske skupnosti, Danska ne sodeluje pri sprejetju te odločbe s strani Sveta, ki zato za Dansko ni zavezujoča niti se v njej ne uporablja. Danska se glede na to, da ta odločba temelji na schengenskem pravnem redu v skladu z določbami iz naslova IV tretjega dela Pogodbe o ustanovitvi Evropske skupnosti, v skladu s členom 5 navedenega protokola v roku šestih mesecev po tem, ko Svet sprejme to odločbo, odloči , ali jo bo prenesla v svoje notranje pravo.
Predlog spremembe
4
Uvodna izjava 13
(13) Ta odločba predstavlja nadgraditev schengenskega pravnega reda, pri katerem Združeno kraljestvo ne sodeluje v skladu s členoma 4 in 5 Protokola o vključitvi schengenskega pravnega reda v okvir Evropske unije, priloženega k Pogodbi o Evropski uniji in Pogodbi o ustanovitvi Evropske skupnosti, tako da Združeno kraljestvo ne sodeluje pri sprejetju te odločbe, ki zato za Združeno kraljestvo ni zavezujoča niti se v njem ne uporablja.
(13) Ta odločba predstavlja nadgraditev schengenskega pravnega reda, pri katerem Združeno kraljestvo ne sodeluje v skladu s Sklepom Sveta 2000/365/ES z dne 29. maja 2000 o prošnji Združenega kraljestva Velike Britanije in Severne Irske za sodelovanje pri izvajanju nekaterih določb schengenskega pravnega reda 1 . Združeno kraljestvo zato ne sodeluje pri njenem sprejetju , prav tako pa ta zanj ni zavezujoča niti se v njem ne uporablja.
UL L 131, 1.6.2000, str. 43.
Predlog spremembe
5
Uvodna izjava 14
(14) Ta odločba predstavlja nadgraditev schengenskega pravnega reda, pri katerem Irska ne sodeluje v skladu s členoma 4 in 5 Protokola o vključitvi schengenskega pravnega reda v okvir Evropske unije, priloženega k Pogodbi o Evropski uniji in Pogodbi o ustanovitvi Evropske skupnosti, tako da Irska ne sodeluje pri sprejetju te odločbe, ki zato za Irsko ni zavezujoča niti se v njej ne uporablja,
(14) Ta odločba predstavlja nadgraditev schengenskega pravnega reda, pri pri katerem Irska ne sodeluje v skladu s Sklepom Sveta 2002/192/ES z dne 28. februarja 2002 o prošnji Irske, da sodeluje pri izvajanju nekaterih določb schengenskega pravnega reda 1 . Irska zato ne sodeluje pri njenem sprejetju , prav tako pa ta zanjo ni zavezujoča niti se v njej ne uporablja.
1 OJ L 64, 7.3.2002., p. 20
Predlog spremembe
6
Člen 1, odstavek 1 a (novo)
1a. Izvajanje te odločbe ne vpliva na izvajanje kontrol oseb na zunanjih mejah v skladu s členi od 5 do 13 in od 18 do 19 Uredbe (ES) št. .../2006 [o vzpostaviti kodeksa Skupnosti o predpisih, ki urejajo gibanje oseb preko meja (kodeksa o schengenskih mejah)].
Obrazložitev
Po nasvetu pravne službe bi bilo treba za pokrije vseh določb, povezanih s kontrolami na zunanjih mejah, vključiti člen 5 kodeksa o schengenskih mejah, ki se nanaša na vstopne pogoje.
Predlog spremembe
7
Člen 5, odstavek 1 a (novo)
Uporablja se do datuma, ko za Švico in Lihtenštajn v skladu s členom 15 Sporazuma med Evropsko unijo, Evropsko skupnostjo in Švicarsko konfederacijo o pridružitvi Švicarske konfederacije k izvajanju, uporabi in razvoju schengenskega pravnega reda 1 , začnejo veljati določbe člena 21 Schengenske konvencije.
1 Council doc. 13054/04 accessible on http:/register.consilium.eu.int
Obrazložitev
Namen tega novega odstavka je razmislek o prehodnem značaju predloga.
EXPLANATORY STATEMENT
1. Context of the proposal
The current Schengen “ acquis ”
Art. 10, 18 and 21 of the Convention of 19 June 1990 implementing the Schengen Agreement of 14 June 1985 between the governments of the States of the Benelux economic union, the Federal Republic of Germany and the French Republic on the gradual abolition of checks at their common borders (the Schengen Convention) confirmed by Article 2 of Regulation (EC) No 539/2001 establishes the principle of mutual recognition of uniform visas, of long term visas and of residence permits issued by Member States fully implementing the Schengen acquis for transit and short stay purposes. This is a basic principle underpinning the creation of the area without internal borders. It enables a third country national holder of certain documents issued by a Member State fully participating in the Schengen area to enter and/or circulate freely within the common space without being subject to any additional requirement.
As regards residence permits issued by Switzerland and Liechtenstein, the existing Schengen acquis does not allow Member States fully implementing the Schengen acquis to recognise these for transit purposes into the Schengen territory.
Additionally, the new Member States have the obligation to apply the EC Regulation 539/2001
Council Regulation 539/2001 of 15 March 2001 listing the countries whose nationals must be in possession of visas when crossing the external borders and whose nationals are exempt from that requirement, OJ L 81, 21.3.2001, page 1, Regulation as last amended by Regulation (EC) No 851/2005 (OJ L 141, 04.06.2005, page 3) and to require transit visas to the third country nationals listed in the Annex 1 of the Regulation (e.g. Algeria, Tunisia, Morocco, Turkey, Serbia - Montenegro, etc) even if they are holders of valid Swiss / Lichtenstein residence permits.
Practical example: an Albanian from Kosovo holder of a Swiss residence permit wants to return to his country for the holidays period. He has to pass through Italy and Slovenia, so he needs a Schengen transit visa and also a Slovenian visa.
Switzerland, however, has been unilaterally recognising residence permits from old Schengen Member States for transit and short-term purposes since 2000 and is currently preparing the necessary legislation to extend this to all 25 Member States.
2. Content of the proposal
The present proposal will allow Member States fully implementing the Schengen acquis , including the third countries associated to the Schengen acquis and fully implementing it (such as Norway and Iceland) and new Member States to simplify the control at the external borders by unilaterally recognising residence permits issued by Switzerland and Liechtenstein for the purpose of transit through their territory.
The proposed system is limited to transit ; it does not affect the possibility of Member States to issue multi-entry visas for short stay.
The duration of the transit period may not exceed five days - this rule takes into account the existing rules on transit visas in the Common Consular Instructions as well as the geographical situation of new Member States.
The proposed regime is compulsory for Member States fully implementing the Schengen acquis , for Norway and Iceland and optional for new Member States during the transitory period till the date of their full integration into the common area, date from which the recognition regime becomes compulsory. This distinction is necessary in order to avoid imposing upon new Member States additional obligations during this period. Until then, new Member States have the possibility either to implement the new instrument or to continue issuing national visas as required by the Accession Act. Once a new Member State decides to apply the decision, there will not be any possibility to suspend it in order not to complicate the regime.
The new Member States shall notify the Commission within 10 working days of the entry into force of this Decision if they decide to opt in. There will not be any possibility to opt in at a later stage.
The proposed system answers an urgent need but is only transitory as Switzerland will soon become part of the Schengen area. Indeed, the Swiss have approved the bilateral agreements concerning Schengen and Dublin by referendum in June 2005 and confirmed it in September 2005. As regards Liechtenstein, it has an open border with Switzerland since a customs agreement of 1923. In order to avoid the establishment of controls at that common border, the Principality is also currently negotiating with the EU on its participation to the Schengen acquis .
3. Consequences in relation to the various protocols annexed to the Treaty
The proposed EP and Council Decision concerning the unilateral recognition by Member States of certain residence permits issued by Switzerland and Liechtenstein as equivalent to the transit visa falls within Title IV of the Treaty and is therefore affected by the “variable geometry” arising from the Protocols on the positions of the United Kingdom, Ireland and Denmark.
United Kingdom and Ireland are not taking part in the adoption of this Decision and are not bound by it or subject to its application, since they do not take part in the development of the Schengen acquis.
Denmark
Since this Decision constitutes a development of the Schengen acquis , Denmark shall decide within a period of six months whether it will implement it in its national law”.
Article 5 of the Protocol on the position of Denmark annexed to the EC Treaty
Norway and Iceland
According to the Agreement
Agreement pursuant to the first paragraph of Article 6 of the Protocol integrating the Schengen acquis , OJ L 176, 10.7.99, p. 35 of 1999 between the Council, Norway and Iceland which associates these two countries with the implementation, application and development of the Schengen acquis, Norway and Iceland implement and apply the provisions of all acts or measures amending or building upon the integrated Schengen acquis.
Norway and Iceland have also the possibility "to explain the problems they encounter in respect of" the measure and "to express themselves on any questions concerning the development of provisions of concern to them or the implementation thereof" in the "Mixed Committee" provided for in Article 4 of the Agreement.
4. Opinion of the Rapporteur
The EU acquis relating to the internal and external borders is currently being extensively developed. The present proposal is the latest contribution in an on-going development of the acquis . Other developments include: the Directive of 2004 on the right of citizens of the Union and their family members to move and reside freely within the territory of the Member States, the Schengen Borders Control Code approved by the Parliament and the Council in June 2005, the External Border Agency formally inaugurated in June 2005, the very recent Regulation concerning the local border traffic at the external land borders of the Member States.
The Rapporteur welcomes the present proposal which aims at solving very serious difficulties which have arisen from the situation whereby the Member States cannot recognise Swiss / Lichtenstein residence permits issued to third country nationals listed in the Annex 1 of the EC Regulation 539/2001
Council Regulation 539/2001 of 15 March 2001 listing the countries whose nationals must be in possession of visas when crossing the external borders and whose nationals are exempt from that requirement, OJ L 81, 21.3.2001, page 1, Regulation as last amended by Regulation (EC) No 851/2005 (OJ L 141, 04.06.2005, page 3) .
A large number of third country nationals listed in the Annex 1 of the EC Regulation 539/2001 live in Switzerland and Lichtenstein holding valid residence permits. For example, in Switzerland there are roughly 1.5 million foreigners with legal residence status
Federal Office for Migration - FOM, December 2005 and according to a survey by Switzerland’s Central Register of Foreign Nationals in April 2003, 514.250 persons would be affected by seasonal transit.
The present situation implies a huge administrative burden for the Member States’ Consular offices in Switzerland and Lichtenstein. Before the holiday periods, these Consulates have to deal with thousands of applications for visas that they have to treat in a timely manner. For example, in the past, the Italian Consulates have had sometimes to treat 300,000 applications. Other overburdened consulates are the Austrian, French, Hungarian and Slovenian ones. This implies huge costs, modern services and a lot of personnel, which is particularly demanding for geographically small countries of transit.
Furthermore, the current regime implies unjustified administrative procedures and costs for third countries citizens which is translated into efforts to build a whole dossier of application, very long queues at the embassies, high costs because of the price of the visa itself and associated costs (telephone, travel to the city where the consulates is located, etc.) All these formalities can take weeks and even months and can force people to take time of work, abandon their travel plans and even stop people from going abroad to see their family in case of urgency. This regime clearly has a negative effect on family and cultural ties, since it can restrict the access to their homeland to third country nationals residing in Switzerland and Lichtenstein.
This situation is even more difficult to comprehend since the persons concerned do not represent any risk of illegal immigration or any threat to public policy as they have been submitted to controls and screening by the Swiss / Lichtenstein authorities before the issuing of the residence permit . Moreover, the checks at the external borders are still to be carried out in compliance with Articles 6 to 13 and 18 to 19 of the European Parliament and Council Regulation (…) establishing a Community Code on the rules governing the movement of persons and according to the art 5 (1) of same regulation the following entry conditions still have to be fulfilled:
- possession of valid travel documents allowing to cross the border,
- documents justifying the purpose and conditions of the intended stay and the sufficiency of the means of subsistence,
- absence of an alert in the SIS for the purposes of refusing entry,
- lack of being considered to be a threat to public policy, internal security, public health or the international relations of any of the Schengen Member States.
For all these reasons, it is now imperative to adopt this Decision allowing the Member States fully implementing the Schengen acquis and new Member States to unilaterally recognise residence permits issued by Switzerland and Liechtenstein for the purpose of transit through their territory.
POSTOPEK
Naslov
Predlog odločbe Evropskega parlamenta in Sveta o vzpostavitvi poenostavljenega režima kontrole oseb na zunanjih mejah na podlagi enostranskega priznanja nekaterih dovoljenj za prebivanje, ki jih izdata Švica in Lihtenštajn, s strani držav članic za namen tranzita preko njihovih ozemelj
Referenčni dokumenti
KOM(2005)0381 – C6-0254/2005 – 2005/0159(COD)
Datum predložitve EP
22.8.2005
Pristojni odbor Datum razglasitve na zasedanju
LIBE 6.9.2005
Odbori, zaprošeni za mnenje Datum razglasitve na zasedanju
AFET 6.9.2005
Odbori, ki niso dali mnenja Datum sklepa
AFET 19.10.2005
Okrepljeno sodelovanje Datum razglasitve na zasedanju
Poročevalec/-ka Datum imenovanja
Michael Cashman
4.10.2005
Nadomeščeni/-a poročevalec/-ka
Poenostavljeni postopek – datum sklepa
Oporekanje pravni podlagi Datum mnenja JURI
Popravek finančne ocene sredstev Datum mnenja BUDG
Posvetovanje EP z Ekonomsko-socialnim odborom – datum sklepa na zasedanju
Posvetovanje z Odborom regij – datum sklepa na zasedanju
Obravnava v odboru
1.12.2005
24.1.2006
6.3.2006
Datum sprejetja
6.3.2005
Izid končnega glasovanja
+:
–:
0:
8
0]
0]
Poslanci, navzoči pri končnem glasovanju
Mihael Brejc, Jean-Marie Cavada, Agustín Díaz de Mera García Consuegra, Barbara Kudrycka, Inger Segelström
Namestniki, navzoči pri končnem glasovanju
Bill Newton Dunn, Vincent Peillon
Namestniki (člen 178(2)), navzoči pri končnem glasovanju
Rodi Kratsa-Tsagaropoulou
Datum predložitve
9.3.2006
Pripombe (na voljo samo v enem jeziku)
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