Abstract
This chapter aims to explore the legal framework that characterises the management of the French-Italian border, through an analysis of most significant attribute of: (i) the Schengen regulations, in relation to the temporary reintroduction of border controls at internal borders, and French laws on identity checks (as recently amended); (ii) the bilateral agreements between France and Italy of 1997 on police cooperation and on the readmission of foreign people in irregular status condition; and (iii) the CESEDA rules applicable to refus d’entrée proceedings in France. The legal and practical consequences deriving from the application and violation of these norms underscore the glaring existence of an internal border regime that leaves much room for discretionary enforcement. This chapter is an attempt to disinter the structural dimension of an irregularity that seems to be coessential to the border itself.
Parts of the considerations made in this chapter have been published in the review of international affairs Cidob d’Afers Internacionals (Barbero and Donadio 2019), although formulated from a comparative angle and a different perspective.
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Notes
- 1.
It is worth noting cases of border-crossing attempts undertaken by covert travelling on the roof of trains or in the electrical cabins of wagons, by walking along the highway or on railway tracks or by walking through mountain passes such as the dangerous “Passo della Morte” in the Maritime Alps.
- 2.
- 3.
This uncertainty is reflected in the underlying case law. See, in this sense: Judgment of the Court of Justice of 22 June 2010, Melki and Abdeli, joined cases C-188/10 and C-189/10, ECLI:EU:C:2010:363; Judgement of the Court of Justice of 19 July 2012, Adil, Case C-278/12 PPU, ECLI:EU:C:2012:508; Judgment of the Court of Justice of 21 June 2017, Criminal proceedings against A, Case C-9/16, ECLI:EU:C:2017:483.
- 4.
This is the kind of control referred to under Article 23 SBC.
- 5.
Views expressed by a representative of the German Ministry of Internal Affairs, to Deutsche Welle (DW) [Accessed on 15 June 2020], here: https://www.dw.com/en/border-checks-in-eu-countries-challenge-schengen-agreement/a-51033603.
- 6.
Indeed, it is worth mentioning that the Committee on Civil Liberties, Justice and Home Affairs appears to confirm the latter interpretation, having evidenced in its annual report on the functioning of the Schengen area (2017/2256(INI)) that “many of the prolongations are not in line with the existing rules as to their extensions necessity or proportionality and are therefore unlawful”.
- 7.
COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE EUROPEAN COUNCIL AND THE COUNCIL Back to Schengen—A Roadmap (COM/2016/0120 final).
- 8.
It should be noted, however, that this count does not include reintroductions and prolongations carried out in the context of the recent COVID-19 pandemic. From around mid-March of 2020 to about mid-June of 2020 (the delivery date of this chapter), these measures have been in fact implemented ninety times.
- 9.
Council Implementing Decision (EU) 2017/246 of 7 February 2017 setting out a Recommendation for prolonging temporary internal border control in exceptional circumstances putting the overall functioning of the Schengen area at risk.
- 10.
Commission Recommendation (EU) 2017/820 of 12 May 2017 on proportionate police checks and police cooperation in the Schengen area.
- 11.
Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL amending Regulation (EU) 2016/399 as regard the rules applicable to the temporary reintroduction of border control at internal borders, COM/2017/0571 final—2017/0245 (COD).
- 12.
Amendments adopted by the European Parliament on 29 November 2018 on the proposal for a regulation of the European Parliament and of the Council amending Regulation (EU) 2016/399 as regard the rules applicable to the temporary reintroduction of border control at internal borders (COM (2017)0571 – C8-0326/2017 – 2017/0245(COD); European Parliament legislative resolution of 4 April 2019 on the proposal for a regulation of the European Parliament and of the Council amending Regulation (EU) 2016/399 as regard the rules applicable to the temporary reintroduction of border control at internal borders (COM (2017)0571 – C8-0326/2017 – 2017/0245(COD)).
- 13.
On the occasion of COP21 (21st Conference of the Parties).
- 14.
To be precise, the procedure used was that provided for in Articles 23 and 24 of Regulation (EC) 562/2006, until the codified version of the SBC (Regulation (EU) 2016/399) came into force.
- 15.
It should be noted that the Justice Court of the European Union, within the sentence of 13 December 2018, Bundesrepublik Deutschland vs Touring Tours und Travel GmbH and Sociedad de Transportes SA, joined cases C-412/17 and C474/17, ECLI:EU:C:2018:1005, stated that European Regulation (Regulation (EU) No 610/2013) opposes the checks executed by the transportation companies by bus, which offer regular cross-border services within the Schengen area, since they can be equated with border checks.
- 16.
https://www.gisti.org/spip.php?article5756 [Accessed on: 15 June 2020].
- 17.
Loi no 2017-1510 du 30 octobre 2017 renforçant la sécurité intérieure et la lutte contre le terrorisme.
- 18.
Loi n° 2018-778 du 10 septembre 2018 pour une immigration maîtrisée, un droit d’asile effectif et une intégration réussie.
- 19.
“Accordo fra il Governo della Repubblica italiana e il Governo della Repubblica francese sulla cooperazione transfrontaliera in materia di polizia e dogana”, translated into French law by Decree no. 2000-923 of September 18th, 2000, in force in both countries as of April 1st, 2000, and published in the Italian Official Journal under no. 90 of April 18th, 2001, and, in France, as J.O.R.F. no. 221 of September 23rd, 2000, p. 14964.
- 20.
“Accordo tra il Ministro dell’interno della Repubblica italiana e il Ministro dell’interno della Repubblica francese in materia di cooperazione bilaterale per l’esecuzione di operazioni congiunte di polizia”, ratified in Italy through Law no. 215/2015 of December 1st, 2015 (G.U. no. 5 of 08/01/2016), in force as of January 9th, 2016.
- 21.
“Accordo tra la Repubblica italiana e la Repubblica francese sulla riammissione delle persone in situazione irregolare, con annesso e tre allegati”, translated into French law under Decree no. 2000-652 of 07/04/2000, in force in both countries on January 12th, 1999, and published in Italy at G.U. suppl. ord. no. 164 of July 15th, 2000, p. 29 and, in France, on J.O.R.F. n.160 of December 7th, 2000, p. 10571.
- 22.
Preventing individuals from being able to illustrate and argue their case.
- 23.
In this regard, see the Judgment of the Court (Grand Chamber) of 7 June 2016, Sélina Affum v. Préfet du Pas-de-Calais and Procureur général de la Cour d’appel de Douai, case C-47/15, ECLI:EU:C:2016:408, paragraphs 84–86.
- 24.
This is a definition not provided for by either European or Italian regulations, which determines many problems in identifying the applicable regulation.
- 25.
In open violation of the obligations to establish structures specifically intended for unaccompanied minors, provided for by the Italian legislation (Article 19 of Legislative Decree no. 142/2015, modified by Article 4 of Law no. 47/2017).
- 26.
For an analysis of these operations, see Ferri (2017).
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Donadio, G. (2021). The Irregular Border: Theory and Praxis at the Border of Ventimiglia in the Schengen Age. In: Amigoni, L., Aru, S., Bonnin, I., Proglio, G., Vergnano, C. (eds) Debordering Europe. Migration, Diasporas and Citizenship. Palgrave Macmillan, Cham. https://doi.org/10.1007/978-3-030-56518-3_7
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