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Erschienen in:
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2019 | OriginalPaper | Buchkapitel

Schengen Visa Policy-Making: Shifting Competence While Authorizing Discretion

verfasst von : Federica Infantino

Erschienen in: Schengen Visa Implementation and Transnational Policymaking

Verlag: Springer International Publishing

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Abstract

This chapter focuses on the legally binding and self-executing text that regulates the procedures and conditions for issuing Schengen visas—the Visa Code—adopted following Community decision-making rules in 2009. EU visa policy is a compensatory measure to free movement whose initial characteristics are discretion and, unlike other historical examples of border-free regions, restrictiveness. The Visa Code is not created from scratch. In regard to the objective of consular action—the assessment of the migratory ‘risk’—it shows continuities with the Common Consular Instructions, drafted during the original Schengen process to which Belgium and France have participated. However, the Visa Code is less precise. Several conditions specific to EU legislative policy-making underline the vagueness of law and broadly worded instructions. The EU legal framework emerges as a source of national discretion. The chapter addresses discontinuities with the original Schengen process, most notably those stemming from the ‘friendly and unified Europe’ policy frame that has underlined the position of new institutional players involved in the adoption of the Visa Code. The Visa Code reveals foreign affairs concerns since EU visa policy is an area in which the image of unified Europe and of a friendly European border is at stake.

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Vorheriges Kapitel Introduction
Nächstes Kapitel Morocco: One ‘Third Country’ but Three National Contexts
Fußnoten
1
Regulation (EC) No. 810/2009 of the European Parliament and of the Council (EC) No. 810/2009 of 13 July 2009 establishing a Community Code on Visas (Visa Code) (OJ L 243/1 of 15 September 2009).
 
2
Handbook for the processing of visa applications and the modification of issued visas. Commission Decision, 19 March 2010, C (2010) 1620 final.
 
3
A policy officer is a highly ranking permanent official of the European Commission. A policy officer is an administrator playing a key role in the EU’s legislative and budgetary processes.
 
4
The Single European Act is the first major amendment of the Treaty establishing the European Economic Community (EEC). It entered into force on 1 July 1987 (OJ L 169 of 29 June 1987).
 
5
Council Regulation (EC) No. 539/2001 of 15 March 2001 (OJ L 81/1 of 21 March 2001).
 
6
Common Consular Instructions on visas for the diplomatic missions and consular posts (2005/C 326/01) (OJ 2002 C 313/1).
 
7
Treaty on European Union (Treaty on Maastricht) signed in Maastricht, 7 February 1992, entered into force on 1 November 1993 (OJ C 191 of 29 July 1992).
 
8
Council Regulation (EC) No. 539/2001 of 15 March 2001 (OJ L 81/1 of 21 March 2001).
 
9
For a detailed analysis of the process, see Meloni (2006) and Guild (2001).
 
10
Council Regulation (EC) No. 1683/95 of 29 May 1995 laying down a uniform format for visas (OJ L 164, 14 July 1995).
 
11
The Treaty of Amsterdam amending the Treaty on European Union, the Treaties establishing the European Communities and certain related acts, signed on 2 October 1997 and entered into force on 1 May 1999 (OJ 1997 C 340/29).
 
12
Regulation (EC) No. 562/2006 of the European Parliament and of the Council of 15 March 2006 establishing a Community Code on the rules governing the movement of persons across borders (Schengen Borders Code, OJ L 105 of 13 April 2006).
 
13
Regulation (EC) No. 810/2009 of the European Parliament and of the Council of 13 July 2009 establishing a Community Code on Visas (Visa Code). OJ L 243, 15 September 2009.
 
14
The codecision procedure was introduced by the Maastricht Treaty on European Union (1992), and extended and made more effective by the Amsterdam Treaty (1999). With the Lisbon Treaty that took effect on 1 December 2009, the renamed ordinary legislative procedure became the main legislative procedure of the EU decision-making system.
 
15
Report on the proposal for a regulation of the European Parliament and of the Council establishing a Community Code on Visas (COM (2006) 0403—C6-0254/2006—2006/0142(COD)) Committee on Civil Liberties, Justice and Home Affairs Rapporteur: Henrik Lax (A6-0161/2008).
 
17
Ibid.
 
18
Proposal for regulation of the European Commission and of the Council amending the Common Consular Instructions on visas for diplomatic missions and consular posts in relation to the introduction of biometrics including provisions on the organization of the reception and processing of visa applications. COM (2006) 269 final.
 
20
Ibid.
 
21
Ibid.
 
22
Ibid.
 
23
On non-discrimination, see also Guiraudon (2007).
 
25
Ibid.
 
26
On the reasons that have led to the outsourcing of visa services, see Infantino (2016).
 
27
The visa working group is chaired by the European Commission. Since the entry into force of the Lisbon Treaty, the Schengen visa policy falls under the ‘Community regime.’ The visa working group is a so-called technical group with an aim at debating the ‘technical’ aspects of the implementation of the Schengen visa policy.
 
28
Article 5 of the Decision of 28 June 1999 laying down the procedures for the exercise of implementing powers conferred on the Commission (1999/468/EC) (OJ L 184 of 17 July 1999).
 
29
Handbook for the organization of visa sections and local Schengen cooperation. Commission Decision 11 June 2010 C (2010) 3667 final.
 
30
Article 32(1)(b): ‘If there are reasonable doubts as to the authenticity of the supporting documents submitted by the applicant or the veracity of their contents, the reliability of the statements made by the applicant or his intention to leave the territory of the Member States before the expiry of the visa applied for.’
 
31
Common lists of supporting documents have been drawn up for the following third countries: Commission Implementing Decision C(2017) 5853 of 30 August 2017 establishing the list of supporting documents to be submitted by applicants for short-stay visas in Australia, Bangladesh, Ethiopia, South Africa, Thailand, and Zambia; Commission Implementing Decision C(2016) 3347 of 6 June 2016 establishing the list of supporting documents to be presented by visa applicants in Iran, Iraq, and the Russian Federation; Commission Implementing Decision of 16 October 2015 establishing the list of supporting documents to be submitted by visa applicants in Afghanistan, India, Morocco, Singapore and Trinidad and Tobago; Commission implementing Decision no. (C(2016) 5947) of 23 September 2015 regarding the harmonized list of supporting documents to be submitted by visa applicants in Argentina, Brazil, Hong Kong and Macao and Tanzania; Commission Implementing C(2016) 5927 of 23 September 2016 amending Implementing Decision C(2014) 6141 final, as regards the list of supporting documents to be presented by visa applicants in Algeria; Commission Implementing Decision C(2015) 1585 of 16 March 2015 establishing the list of supporting documents to be presented by visa applicants in Angola, Armenia, Azerbaijan, Cuba, and Palestine; Commission Implementing Decision C(2014) 7594 of 22 October 2014 amending Implementing Decision C(2011) 5500 final, as regards the title and the list of supporting documents to be presented by visa applicants in China; Commission Implementing Decision C(2014) 6141 of 4 September 2014 establishing the list of supporting documents to be presented by visa applicants in Algeria, Costa Rica, Mozambique, and Uzbekistan; Commission Implementing Decision C(2014) 6146 of 3 September 2014 establishing the list of supporting documents to be presented by visa applicants in Cape Verde, Kenya, and the Philippines; Commission Implementing Decision C(2014) 5338 of 31 July 2014 establishing the list of supporting documents to be presented by visa applicants in Ireland; Commission Decision C(2012) 5310—UK (Edinburgh, London, and Manchester); Commission Decision C(2012) 4726—Egypt (Alexandria and Cairo) Commission Decision C(2011) 1152—Bosnia-Herzegovina, Sri Lanka, and Turkey (Ankara, Istanbul, Edirne, and Izmir) Commission Decision C(2011) 7192—China (in Beijing, Guangzhou, Chengdu, Shanghai, and Wuhan), Saudi Arabia, Indonesia, and Vietnam (in Hanoi and Ho-Chi Minh City) Commission Decision C(2011) 5500.
 
32
See chapter “Morocco:​ One ‘Third-Country’ but Three National Contexts” for the discussion of the aspects of visa policy implementation that are unregulated, such as the travel purposes for which a Schengen visa is applied for.
 
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Metadaten
Titel
Schengen Visa Policy-Making: Shifting Competence While Authorizing Discretion
verfasst von
Federica Infantino
Copyright-Jahr
2019
Buch
Schengen Visa Implementation and Transnational Policymaking

Print ISBN: 978-3-030-10646-1

Electronic ISBN: 978-3-030-10647-8

Copyright-Jahr: 2019

DOI
https://doi.org/10.1007/978-3-030-10647-8_2