Parltrack

OBJECTIF : modifier le règlement (CE) n° 562/2006 du Parlement européen et du Conseil établissant le code frontières Schengen ainsi que la convention d'application de Schengen pour tenir compte de l'expérience acquise depuis l'entrée en vigueur de ces instruments juridiques.

ACTE PROPOSÉ : Règlement du Parlement européen et du Conseil.

CONTEXTE : le 13 octobre 2006, le règlement (CE) n° 562/2006 du Parlement européen et du Conseil établissant un code frontières Schengen est entré en vigueur. Au terme de 4 années d'application, il est apparu nécessaire de prévoir un certain nombre de modifications techniques qui résultent des éléments suivants :

• de l'expérience pratique acquise par les États membres et la Commission dans l'application du code frontières Schengen, et notamment des résultats des évaluations Schengen ainsi que des rapports et demandes présentés par les États membres;
• du rapport de la Commission sur la mise en œuvre des dispositions relatives à l'apposition de cachets sur les documents de voyage des ressortissants de pays tiers conformément aux articles 10 et 11 du code frontières Schengen et du rapport de la Commission sur l'application du titre III (Frontières intérieures) du code frontières Schengen;
• du souci de cohérence par rapport à d'autres actes législatifs adoptés récemment, en particulier le code des visas (règlement (CE) n° 810/2009) et la directive sur le retour (directive 2008/115/CE).

La présente proposition contient donc des modifications qui apportent des clarifications et réduisent les possibilités d'interprétation divergente du texte actuel, ainsi que des modifications qui répondent aux problèmes concrets apparus au cours des premières années d'application du code frontières Schengen. Elle fournit en outre un cadre juridique explicite aux accords bilatéraux relatifs à la réalisation de vérifications conjointes aux frontières dans le cadre du trafic routier.

Les nouvelles initiatives, comme la création d'un système d'entrée/sortie de l'UE et d'un programme d'enregistrement des voyageurs propre à l'UE, feront l'objet de propositions spécifiques, qui seront examinées séparément.

ANALYSE D'IMPACT : aucune analyse d'impact n'a été réalisée.

BASE JURIDIQUE : article 77, par. 1 et 2, du traité sur le fonctionnement de l'Union européenne (TFUE).

CONTENU : les principales modifications proposées portent sur les points suivants:

• définitions : la proposition prévoit une définition claire de la méthode de calcul des «séjour[s] n'excédant pas 3 mois sur une période de 6 mois» (article 5). En effet, après l'arrêt rendu par la Cour de justice le 3 octobre 2006 dans l'affaire C-241/05, Bot et l'adoption d'une disposition analogue dans l'article 2, par. 2, point a), du code des visas, il apparaît nécessaire que le législateur fournisse des indications précises et faisant autorité sur cette question (la formulation reprise est maintenant celle du code visas) ; clarification de la définition du «titre de séjour» de sorte que pour éviter tout malentendu, un visa (qu'il s'agisse d'un visa de long ou de court séjour) ne puisse jamais être considéré comme un «titre de séjour» au sens du point 15 b) du règlement ;
• durée de validité de certains documents de voyage : une clarification est apportée à la durée de validité requise pour les documents de voyage des personnes ne détenant pas de visa (article 5) afin de répondre aux besoins concrets et d'harmoniser le texte avec l'article 12 du code des visas;
• création de couloirs séparés pour certains voyageurs : la proposition envisage la possibilité de créer des couloirs séparés pour les voyageurs exemptés de visa (article 9), afin d'assouplir davantage et d'accélérer les contrôles aux frontières en fonction des besoins concrets;
• apposition de cachets sur les documents de voyage des ressortissants de pays tiers : la situation des équipages ferroviaires sur les liaisons internationales est comparable à celle des pilotes ou des marins puisque ces trains sont tenus à un horaire fixe. Ces catégories de personnes devraient dès lors être exemptées de l'obligation de faire apposer un cachet sur leurs documents de voyage ;
• formation des gardes-frontières : la proposition prévoit des dispositions sur l'amélioration de la formation des gardes-frontières, afin qu'ils soient en mesure de détecter les situations de vulnérabilité particulière chez les mineurs non accompagnés et les victimes de la traite des êtres humains (article 15) ;
• services de secours : il est prévu d'insérer des dérogations pour l'entrée et la sortie des services de secours, de police et de sapeurs-pompiers dans les situations d'urgence (article 19). Une dérogation spéciale est en outre prévue pour les travailleurs offshore (comme les personnes travaillant sur des plateformes pétrolières ou dans des parcs éoliens en mer) à l'annexe VII, point 8, selon des règles analogues à celles régissant la pêche côtière ;
• vérifications à l'intérieur du territoire: de nombreux États membres n'appliquent pas l'article 22 de la convention d'application de l'accord de Schengen (obligation imposée aux ressortissants de pays tiers en séjour régulier qui se rendent dans d'autres États membres de signaler leur présence). Les difficultés pratiques que pose le contrôle du respect de cette obligation générale de signalement sont notoires et il n'a pas pu être démontré de façon convaincante que, sous l'angle du rapport coût/avantage, cette disposition avait une incidence significative sur l'identification des immigrants en situation irrégulière. Il a donc été proposé, dans un récent rapport de la Commission d'abroger l'article 22 de la convention ainsi que la référence correspondante qui figure à l'article 21, point d), du code frontières Schengen. La modification proposée ne remet pas en cause le droit des États membres de mettre en place des contrôles ciblés afin de lutter contre l'immigration clandestine sur leur territoire ;
• obligation de communication : il est prévu d'harmoniser les obligations de communication imposant expressément aux États membres d'informer la Commission de tout accord bilatéral conclu conformément au code frontières Schengen ;
• cadre juridique formel pour les franchissements de frontières communes (annexe VI): afin de permettre la conclusion d'accords bilatéraux entre États membres et pays tiers voisins sur la coopération en matière de contrôle aux frontières aux points de passage frontaliers communs, il est prévu de modifier l'annexe VI du code frontières Schengen pour autoriser expressément la conclusion d'accords bilatéraux sur la réalisation de contrôles conjoints aux frontières du trafic routier et pour établir un cadre juridique couvrant certaines questions essentielles telles que la situation des demandeurs de protection internationale ;
• autres modifications aux annexes : une série d'autres modifications techniques sont en outre apportées aux annexes du règlement pour tenir compte de l'évolution technique et de la mise œuvre pratique de ce dernier ;
• abrogation de certains articles de la convention : certaines règles relatives aux vérifications aux frontières ont été harmonisées par la législation de l'UE. Ceci affecte le pouvoir qu'ont les États membres de conclure des traités dans ce domaine. La conclusion d'accords bilatéraux entre un État membre et un pays tiers sur les vérifications aux frontières, sans autorisation spécifique correspondante dans le code frontières Schengen de conclure de tels accords bilatéraux, affecterait la législation de l'UE au sens de l'article 3, par. 2, et de l'article 2, par. 1, du TFUE. L'article 136 de la convention d'application de l'accord de Schengen contient des dispositions incompatibles avec ce principe. Il est donc prévu de l'abroger.

Á noter encore un certain nombre de modifications mineures visant à tenir compte de l'entrée en vigueur du traité de Lisbonne (remplacement de « UE » au lieu de « CE » dans le texte).

INCIDENCE BUDGÉTAIRE : la proposition n'a pas d'incidence sur le budget de l'UE.

ACTES DÉLÉGUÉS : la proposition contient des dispositions habilitant la Commission à adopter des actes délégués conformément à l'article 290 du traité sur le fonctionnement de l'Union européenne, concernant en particulier la surveillance des frontières et la modification des annexes.

PURPOSE: to amend Regulation (EC) No 562/2006 of the European Parliament and of the Council establishing a Community Code on the rules governing the movement of persons across borders (Schengen Borders Code) and the Convention implementing the Schengen Agreement to take account of the experience gained since the entry into force of these legal instruments.

PROPOSED ACT: Regulation of the European Parliament and of the Council.

BACKGROUND: on 13 October 2006, Regulation (EC) No 562/2006 of the European Parliament and of the Council establishing a Community Code on the rules governing the movement of persons across borders (Schengen Borders Code) entered into force. After four years of practical application, the need for a number of limited technical amendments has emerged. The main sources for these amendments are:

• practical experiences of the Member States and the Commission in the application of the Schengen Borders Code, including the results of Schengen evaluations and the reports and requests submitted by Member States;
• the Commission reporton the operation of the provisions on stamping of the travel documents of third-country nationals in accordance with Articles 10 and 11 of the Schengen Borders Code and Commission report on the application of Title III (Internal Borders) of the Schengen Borders Code;
• consistency considerations linked to other recently adopted legislation, in particular the Visa Code (Regulation (EC) No 810/2009) and the Return Directive (Directive 2008/115/EC).

This proposal contains amendments that improve clarity and narrow the scope for divergent interpretations of the existing text as well as amendments responding to practical problems that have arisen during the first years of the Schengen Borders Code. Furthermore it provides for an explicit legal framework for bilateral agreements related to joint border checks on road traffic.

New policy initiatives, such as the creation of an EU Entry/Exit System and an EU Registered Traveller Programme, will be the subject of specific proposals to be discussed separately.

IMPACT ASSESSMENT: no impact assessment was carried out.

LEGAL BASIS: Article 77(1) and 77(2) of the Treaty on the Functioning of the European Union (TFEU).

CONTENT:

The main proposed amendments concern the following issues:

Definitions: the proposal provides a clear definition of the method for calculating 'stays not exceeding three months per six month period' (Article 5). Following the judgment delivered by the ECJ on 3 October 2006 in Case C-241/05, Bot, and the adoption of a related parallel provision in Article 2(2)(a) of the Visa Code, clarified and authentic legislative guidance on this issue is needed for the Schengen Borders Code.

The definition of residence permit is also reshaped. In order to avoid any misunderstanding, it is made clear that visas (both long-stay and short-stay) can never be considered as 'residence permits' within the meaning of point 15(b).

Duration of the validity of certain travel documents: a clarification is made concerning the required period of validity of travel documents of non-visa holders (Article 5), in response to practical needs and in order to align the text with Article 12 of the Visa Code.

Creating separate lanes for certain travellers: the proposal foresees the possibility to create separate lanes for visa-free travellers (Article 9) in order to provide additional flexibility and speed up border control in accordance with practical needs.

Stamping of the travel documents of third-country nationals: the situation of train crews on international connections is comparable to pilots or seamen as these trains follow a fixed schedule. The Commission already announced that it would introduce an exemption from stamping for this category of persons.

Border guard training: the proposal provides measures to improve training of border guards in order to detect situations of particular vulnerability involving unaccompanied minors and victims of trafficking (Article 15).

Rescue services: in order to allow for derogations related to the entry and exit of members of rescue services, police and fire brigades acting in emergency situations an express legal framework is required (addition of a new category in Article 19, accompanied by related provisions in Annex VII) including the possibility to conclude bilateral agreements on this issue. In addition, a special exemption is made for offshore workers (such as workers on oil-platforms or on maritime windparks) in Annex VII, point 8, providing for rules comparable to coastal fishing.

Checks within the territory: many Member States do not implement Article 22 of the Schengen implementing Convention (reporting obligation for legally staying third-country nationals entering other Member States). Practical difficulties in verifying compliance with this general reporting obligation are broadly acknowledged and no convincing cost/benefit argument could be made to show that this rule has a significant impact on identifying illegally staying immigrants. The recent Commission report on the application of Title III (Internal Borders) of the Schengen Borders Code therefore proposed repealing Article 22 Schengen implementing Convention as well as the corresponding reference to it in Article 21(d) Schengen Borders Code. The proposed amendment does not affect the right of Member States to provide for targeted checks to fight illegal immigration in their territory.

Delegated acts: in order to align the provisions of the Schengen Borders with the Treaty on the Functioning of the European Union (TFEU), the power to adopt acts in accordance with Article 290 of the Treaty on the Functioning of the European Union should be delegated to the Commission in respect of the adoption of additional measures governing surveillance as well as amendments to the annexes.

Reporting obligations: alignment of reporting obligations, expressly obliging Member States to inform the Commission of all bilateral agreements authorised by the Schengen Borders Code.

An explicit legal framework for joint border crossings (Annex VI): in order to enable bilateral agreements to be concluded between Member States and neighbouring third countries on cooperation in border control with joint border crossing points, Annex VI of the Schengen Borders Code needs to be amended to expressly permit bilateral agreements for joint border checks on road traffic and to provide a legal framework on certain key issues, such as the situation of persons requesting international protection.

Amendments to the Annexes: a number of technical amendments have been made to the Annexes.

Repealing certain articles of the Convention: the rules relating to border checks have been harmonised by EU law. This affects the power of Member States to conclude treaties in this field. The conclusion of bilateral agreements between a Member State and a third country on border checks without specific permission to do so in the Schengen Borders Code would affect EU law within the meaning of Article 3(2) TFEU and Article 2(1) TFEU. Article 136 of the Convention implementing the Schengen Agreement is incompatible with this principle. It should therefore be repealed

It should be noted that throughout the text, a certain number of changes resulting from the entry into force of the Lisbon Treaty are proposed ('EU' instead of 'EC').

BUDGETARY IMPLICATIONS: this proposal has no implications for the EU budget.

PURPOSE: to amend Regulation (EC) No 562/2006 of the European Parliament and of the Council establishing a Community Code on the rules governing the movement of persons across borders (Schengen Borders Code) and the Convention implementing the Schengen Agreement to take account of the experience gained since the entry into force of these legal instruments.

PROPOSED ACT: Regulation of the European Parliament and of the Council.

BACKGROUND: on 13 October 2006, Regulation (EC) No 562/2006 of the European Parliament and of the Council establishing a Community Code on the rules governing the movement of persons across borders (Schengen Borders Code) entered into force. After four years of practical application, the need for a number of limited technical amendments has emerged. The main sources for these amendments are:

• practical experiences of the Member States and the Commission in the application of the Schengen Borders Code, including the results of Schengen evaluations and the reports and requests submitted by Member States;
• the Commission reporton the operation of the provisions on stamping of the travel documents of third-country nationals in accordance with Articles 10 and 11 of the Schengen Borders Code and Commission report on the application of Title III (Internal Borders) of the Schengen Borders Code;
• consistency considerations linked to other recently adopted legislation, in particular the Visa Code (Regulation (EC) No 810/2009) and the Return Directive (Directive 2008/115/EC).

This proposal contains amendments that improve clarity and narrow the scope for divergent interpretations of the existing text as well as amendments responding to practical problems that have arisen during the first years of the Schengen Borders Code. Furthermore it provides for an explicit legal framework for bilateral agreements related to joint border checks on road traffic.

New policy initiatives, such as the creation of an EU Entry/Exit System and an EU Registered Traveller Programme, will be the subject of specific proposals to be discussed separately.

IMPACT ASSESSMENT: no impact assessment was carried out.

LEGAL BASIS: Article 77(1) and 77(2) of the Treaty on the Functioning of the European Union (TFEU).

CONTENT:

The main proposed amendments concern the following issues:

Definitions: the proposal provides a clear definition of the method for calculating 'stays not exceeding three months per six month period' (Article 5). Following the judgment delivered by the ECJ on 3 October 2006 in Case C-241/05, Bot, and the adoption of a related parallel provision in Article 2(2)(a) of the Visa Code, clarified and authentic legislative guidance on this issue is needed for the Schengen Borders Code.

The definition of residence permit is also reshaped. In order to avoid any misunderstanding, it is made clear that visas (both long-stay and short-stay) can never be considered as 'residence permits' within the meaning of point 15(b).

Duration of the validity of certain travel documents: a clarification is made concerning the required period of validity of travel documents of non-visa holders (Article 5), in response to practical needs and in order to align the text with Article 12 of the Visa Code.

Creating separate lanes for certain travellers: the proposal foresees the possibility to create separate lanes for visa-free travellers (Article 9) in order to provide additional flexibility and speed up border control in accordance with practical needs.

Stamping of the travel documents of third-country nationals: the situation of train crews on international connections is comparable to pilots or seamen as these trains follow a fixed schedule. The Commission already announced that it would introduce an exemption from stamping for this category of persons.

Border guard training: the proposal provides measures to improve training of border guards in order to detect situations of particular vulnerability involving unaccompanied minors and victims of trafficking (Article 15).

Rescue services: in order to allow for derogations related to the entry and exit of members of rescue services, police and fire brigades acting in emergency situations an express legal framework is required (addition of a new category in Article 19, accompanied by related provisions in Annex VII) including the possibility to conclude bilateral agreements on this issue. In addition, a special exemption is made for offshore workers (such as workers on oil-platforms or on maritime windparks) in Annex VII, point 8, providing for rules comparable to coastal fishing.

Checks within the territory: many Member States do not implement Article 22 of the Schengen implementing Convention (reporting obligation for legally staying third-country nationals entering other Member States). Practical difficulties in verifying compliance with this general reporting obligation are broadly acknowledged and no convincing cost/benefit argument could be made to show that this rule has a significant impact on identifying illegally staying immigrants. The recent Commission report on the application of Title III (Internal Borders) of the Schengen Borders Code therefore proposed repealing Article 22 Schengen implementing Convention as well as the corresponding reference to it in Article 21(d) Schengen Borders Code. The proposed amendment does not affect the right of Member States to provide for targeted checks to fight illegal immigration in their territory.

Delegated acts: in order to align the provisions of the Schengen Borders with the Treaty on the Functioning of the European Union (TFEU), the power to adopt acts in accordance with Article 290 of the Treaty on the Functioning of the European Union should be delegated to the Commission in respect of the adoption of additional measures governing surveillance as well as amendments to the annexes.

Reporting obligations: alignment of reporting obligations, expressly obliging Member States to inform the Commission of all bilateral agreements authorised by the Schengen Borders Code.

An explicit legal framework for joint border crossings (Annex VI): in order to enable bilateral agreements to be concluded between Member States and neighbouring third countries on cooperation in border control with joint border crossing points, Annex VI of the Schengen Borders Code needs to be amended to expressly permit bilateral agreements for joint border checks on road traffic and to provide a legal framework on certain key issues, such as the situation of persons requesting international protection.

Amendments to the Annexes: a number of technical amendments have been made to the Annexes.

Repealing certain articles of the Convention: the rules relating to border checks have been harmonised by EU law. This affects the power of Member States to conclude treaties in this field. The conclusion of bilateral agreements between a Member State and a third country on border checks without specific permission to do so in the Schengen Borders Code would affect EU law within the meaning of Article 3(2) TFEU and Article 2(1) TFEU. Article 136 of the Convention implementing the Schengen Agreement is incompatible with this principle. It should therefore be repealed

It should be noted that throughout the text, a certain number of changes resulting from the entry into force of the Lisbon Treaty are proposed ('EU' instead of 'EC').

BUDGETARY IMPLICATIONS: this proposal has no implications for the EU budget.