austria_table_of_correspondence_en

Directive 2004/38/EC on the right of citizens of the Union and their family members to move and reside freely within the territory of the Member-States

Milieu Ltd AUSTRIA Europa Institute, Edinburgh University

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Name of legal analyst: Univ.-Prof. Dr. Werner Schroeder, LL.M. Date Table completed: October 2008 Contact details: Department of European Law and Public International Law, University of Innsbruck

Innrain 52, A-5020 Innsbruck, Austria Tel: +43 512 507 8320 Fax: +43 512 507 2651

Country AUSTRIA

Introduction

According to the distribution of competences within the Austrian federal State, most aspects covered by the Directive fall into the competence of the Federation while only a small part remains on the Laender level. Therefore, most of the Directive provisions have been transposed into Austrian law by federal laws, namely the Aliens Police Act (FPG) and the Settlement and Residence Act (NAG) which were both enacted as part of the “Aliens Law Package 2005”. Article 23 of the Directive was transposed by the Federal law amending the Alien Employment Law. There exist structural defects with regard to the transposition of the Directive by Austria. The core problem is the fact the Federal Government decided not to enact a specific and comprehensive transposition law, but to make the transposition measures part of a general reform package which created and amended a series of federal laws in the field of aliens law. The package did not only serve to transpose Directive 2004/38/EC, but was also considered to transpose several other EC acts. Furthermore, the Aliens Law Package was seen as an opportunity to realise a general reform of Austrian asylum and aliens police as well as settlement and residence law. Hence, the transposing provisions are not concentrated in a single legal instrument. The consequence is the existence of a plurality of relevant national legal instruments. Also, the inner logic and structure of the transposing provisions substantially differ from the Directive’s ones. As a result, the Austrian transposition of the Directive is characterised by structural incoherence and lack of transparency.

Analysed legislation in conformity? (click as appropriate)

YES NO or/and Stricter Incomplete or/and Incorrect G I



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Abbreviations Full title of legal act (German) Full title of legal act (English translation)

FPG Bundesgesetz über die Ausübung der Fremdenpolizei, die Ausstellung von Dokumenten für Fremde und die Erteilung von Einreisetitel (Fremdenpolizeigesetz 2005), BGBl I Nr 100/2005

Federal Act relating to the practice of the aliens police, the issuing of documents for aliens and the granting of entry permits – Austrian Aliens Police Act 2005, Federal Law Gazette I No 100/2005

NAG Bundesgesetz über die Niederlassung und den Aufenthalt (Niederlassungs- und Aufenthaltsgesetz 2005), BGBl I Nr 100/2005

Federal Act relating to settlement and residence in Austria, Federal Law Gazette I No 100/2005

NAG-DV Verordnung zur Durchführung des Niederlassungs- und Aufenthaltsgesetzes (Niederlassungs- und Aufenthaltsgesetz-Durchführungsverordnung 2005), BGBl II Nr 451/2005

Regulation relating implementing the Federal Act relating to settlement and residence in Austria, Federal Law Gazette II No 451/2005

AuslBG Ausländerbeschäftigungsgesetz, BGBl Nr 218/1975 Aliens Employment Act, Federal Law Gazette No 218/1975

AVG Allgemeines Verwaltungsverfahrensgesetz, BGBl Nr 51/1991 General Administrative Procedure Act, Federal Law Gazette No 51/1991

EGVG Einführungsgesetz zu den Verwaltungsverfahrensgesetzen 1991, BGBl Nr 50/1991

Introductory Act to the Administrative Procedure Acts 1991, Federal Law Gazette Nr 50/1991

EMRK Konvention zum Schutz der Menschenrechte und Grundfreiheiten vom 4. November 1950 (Europäische Menschenrechtskonvention 1950), BGBl Nr 210/1958 idF BGBl III Nr 30/1998

Convention for the Protection of Human Rights and Fundamental Freedoms of 4 November 1950 (European Human Rights Convention of 1950), Federal Law Gazette No 210/1958, as amended by Federal Law Gazette III No 30/1998

Prot Nr 4 EMRK Protokoll Nr. 4 zur Konvention zum Schutze der Menschenrechte und Grundfreiheiten, durch das gewisse Rechte und Freiheiten gewährleistet werden, die nicht bereits in der Konvention oder im ersten Zusatzprotokoll enthalten sind, vom 16. September 1963 (4. Zusatzprotokoll zur Europäischen Menschenrechtskonvention), BGBl Nr 434/1969 idF BGBl III Nr 30/1998

Protocol No 4 to the Convention for the Protection of Human Rights and Fundamental Freedoms, securing certain rights and freedoms other than those already included in the Convention and in the first Protocol thereto of 16 September 1963 (Protocol No 4 to the European Human Rights Convention of 1963), Federal Law Gazette No 434/1969, as amended by Federal Law Gazette III No 30/1998

GebührenG Gebührengesetz 1957, BGBl Nr 267/1957 Fees and Duties Act 1957, Federal Law Gazette No 267/1957

GewO Gewerbeordnung 1994, BGBl Nr 314/1994 Trade, Commerce and Industry Regulation Act, Federal Law Gazette No 314/1994

MeldeG Bundesgesetz über das polizeiliche Meldewesen (Meldegesetz 1991), BGBl Nr Federal Act relating to the procedure for reporting to the police, Federal Law Gazette No



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9/1992 9/1992

PassG Bundesgesetz betreffend das Passwesen für österreichische Staatsbürger (Paßgesetz 1992), BGBl Nr 839/1992

Federal Act relating to passport affairs of Austrian citizens, Federal Law Gazette No 839/1992

StGG Staatsgrundgesetz vom 21. Dezember 1967 über die allgemeinen Rechte der Staatsbürger für die im Reichsrate vertretenen Königreiche und Länder, RGBl No 142/1867

Basic Law of 21 December 1867 on the General Rights of Nationals in the Kingdoms and Laender represented in the Council of the Realm, Realm Law Gazette No 142/1867)

RV Regierungsvorlage betreffend Bundesgesetz, mit dem das Bundes-Verfassungsgesetz geändert wird, ein Asylgesetz 2005, ein Fremdenpolizeigesetz 2005 und ein Niederlassungs- und Aufenthaltsgesetz erlassen sowie das Fremdengesetz 1997, das Bundesbetreuungsgesetz, das Personenstandsgesetz, das Bundesgesetz über den unabhängigen Bundesasylsenat, das Einführungsgesetz zu den Verwaltungsverfahrensgesetzen 1991, das Sicherheitspolizeigesetz, das Gebührengesetz 1957, das Familienlastenausgleichsgesetz 1967, das Kinderbetreuungsgeldgesetz und das Tilgungsgesetz 1972 geändert werden (Fremdenrechtspaket 2005), 952 d.B. (XXII. GP)

Government Bill relating to the Aliens Law Package of 2005, Annex No 529 to the Minutes of the National Council (22nd legislative period)

Q … Question No …, according to “Big Refont“ document, as provided by Milieu

ToC Gov Table of Correlation, as provided by the Austrian Government to the Commission on 6 December 2006

Further abbreviations (related to the citation of legal norms):

• § Section • Abs paragraph (para) • Z Number (No) • Lit littera (lit) • i.c.w. in combination with



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Art Citation of the Article of the Directive Corresponding national

provision (legal ref. & art.) Complete text of national provision (in language of

Member State)

Translation into English of national provision

Fully in accord?

(y/n)

Comments/Problems

Chapter I GENERAL PROVISIONS Art. 2.1

Definitions For the purposes of this Directive: 1) "Union citizen" means any person having the nationality of a Member State;

(A) § 2 Abs. 4 Z 8 FPG i.c.w. § 2 Abs. 4 Z 1 FPG (B) § 2 Abs 1 Z 4 NAG

„EWR-Bürger: ein Fremder, der Staatsangehöriger einer Vertragspartei des Abkommens über den Europäischen Wirtschaftsraum (EWR-Abkommen) ist;“ „Fremder: wer die österreichische Staatsbürgerschaft nicht besitzt;“ „EWR-Bürger: ein Fremder, der Staatsangehöriger einer Vertragspartei des Abkommens über den Europäischen Wirtschaftsraum (EWR-

“"EEA citizen" : an alien who is a national of a Contracting Party to the Agreement creating the European Economic Area (EEA Agreement)” “"Alien" : a person who does not possess Austrian nationality” “’EEA citizen’ : an alien who is a national of a Contracting Party to the Agreement creating the European Economic Area (EEA Agreement)”

Y

The definitions must be seen in the context of the three laws in which the material provisions of the Directive have been transposed primarily: - (A) FPG: right of exit and entry right to residence for up to three months, restrictions on the right of entry and residence - (B) NAG: residence for more than three months - (C) AuslBG: right to take up employment (see Art 23) Effective transposition: - All EU Member States are Contracting Parties to the Agreement creating the European Economic Area (EEA), thus all Union citizens are, by definition, “EEA citizens” - Since only “aliens” are comprised by the definition, Austrian citizens fall out of the scope of application of most of the provisions of the FPG. However, with regard to free movement from and to Austria as well as residence within Austria, they have a legal status (partly due to constitutional law) which is at least comparable to the one of Union citizens (see Art 3.1 and Art. 4.1). Effective transposition: - All EU Member States are Contracting Parties to the Agreement creating the European Economic Area (EEA), thus all Union citizens



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Art Citation of the Article of the Directive Corresponding national provision (legal ref. & art.)

Complete text of national provision (in language of

Member State)


Fully in accord?

(y/n)

Comments/Problems

i.c.w. § 2 Abs 1 Z 1 NAG (C) § 1 Abs 1 AuslBG § 2 Abs 1 AuslBG § 2 Abs 6 AuslBG

Abkommen) ist; „Fremder: wer die österreichische Staatsbürgerschaft nicht besitzt“ „Dieses Bundesgesetz regelt die Beschäftigung von Ausländern (§ 2) im Bundesgebiet.“ „Als Ausländer im Sinne dieses Bundesgesetzes gilt, wer nicht die österreichische Staatsbürgerschaft besitzt.“ „EWR-Bürger sind Ausländer, die Staatsangehörige einer Vertragspartei des Abkommens über den Europäischen Wirtschaftsraum (EWR-Abkommen) sind.“

“’Alien : a person who does not possess Austrian nationality” “This Federal law governs the employment of aliens (Article 2) in Austria.” “’Alien in this Federal Law means a person who does not possess Austrian nationality.” “’EEA citizens are aliens who are nationals of a Contracting Party to the Agreement creating the European Economic Area (EEA Agreement).”

are, by definition, “EEA citizens” - Since only “aliens” are comprised by the definition, Austrian citizens fall out of the scope of application of the NAG. However, with regard to free movement from and to Austria as well as residence within Austria, they have a legal status (partly due to constitutional law) which is at least comparable to the one of Union citizens (see Art 3.1). Effective transposition - concerning definition of “EEA citizen” see supra - Austrian citizens are not covered, since, according to § 1 Abs 1, the AuslBG only applies to aliens, defined in § 2 Abs 1 as non Austrian citizens. Since no restrictions apply to the right of employment of Austrian citizens, there is no problem for Austrian citizens falling within the scope of application of the Directive.

Art. 2.2 (a)

2) “Family member” means: (a) the spouse;

(A) § 2 Abs. 4 Z 11 FPG

„begünstigter Drittstaatsangehöriger: der Ehegatte, […], insofern dieser Drittstaatsangehörige den freizügigkeitsberechtigten EWR-Bürger oder Schweizer Bürger, von dem sich seine gemeinschaftsrechtliche Begünstigung herleitet, begleitet oder ihm nachzieht;“

“"Favoured third country national" : the spouse […], provided that this third country national accompanies or joins the EEA citizen or Swiss citizen who is entitled to freedom of movement and from whom his benefit under Community law is derived”

Y See also Art 3.1 Effective transposition. In the context of the FPG there is the definition of the term “begünstigter Drittstaatsangehöriger” the relevant definition in stead of the term “family member” because of its specifics under substantive law.



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Member State)


Fully in accord?

(y/n)

Comments/Problems

§ 2 Abs. 4 Z 12 FPG (B) § 52 Z 1 NAG (C) § 1 Abs 2 lit l AuslBG

„Familienangehöriger: wer Drittstaatsangehöriger und Ehegatte […], ist (Kernfamilie);“ „Angehörige […] wenn sie […] Ehegatte sind“ „deren drittstaatsangehörige Ehegatten“

“"Family member" : who is third country national and spouse […] (core family)” “Relatives […] who are a spouse” “whose third-country national spouses”

Literal transposition Literal transposition

Art. 2.2 (b)

(b) the partner with whom the Union citizen has contracted a registered partnership, on the basis of the legislation of a Member State, if the legislation of the host Member State treats registered partnerships as equivalent to marriage and in accordance with the conditions laid down in the relevant legislation of the host Member State;

Y Austria does not recognise the legal institute of registered partnership and does not treat registered partnerships as equivalent to marriage, thus No transposition (necessary)

Art. 2.2 (c)

(c) the direct descendants who are under the age of 21 or are dependants and those of the spouse or partner as defined in point (b);

(A) § 2 Abs. 4 Z 11 FPG (B) § 52 Z 2 NAG

„[…], eigene Verwandte und Verwandte des Ehegatten eines EWR-Bürgers oder Schweizer Bürgers oder Österreichers, die ihr Recht auf Freizügigkeit in Anspruch genommen haben, in gerader absteigender Linie bis zur Vollendung des 21. Lebensjahres, darüber hinaus, sofern ihnen Unterhalt tatsächlich gewährt wird, […]“ „Angehörige […] wenn sie […] Verwandter des EWR-Bürgers oder seines Ehegatten in gerader absteigender Linie bis zur Vollendung des 21. Lebensjahres und darüber hinaus sind, sofern ihnen von diesen Unterhalt tatsächlich gewährt wird“

“[…], EEA citizen's or Swiss citizen’s own relatives and his/her spouse's relatives, who have claimed their right to freedom of movement, in a straight descending line until reaching the age of 21, and after that time, if they are actually provided with maintenance, […]” “Relatives […] if they […] are a relatives of the EEA citizen or of his spouse in a directly descending line until they reach the age of 21 and after that time, if they are actually provided with maintenance by them.”

N, Incorrect

Effective transposition. The FPG does not mention partners as defined in point (b), because Austria does not recognise the institute of registered partnership at all. The "and" in the FPG and the NAG is not a conformity problem. The transposition covers direct descendants who are under 21 and even after that time if they are in fact provided with maintenance as the Directive requires. However, the English translation of the FPG and the NAG provided by the Government is not totally clear as to that point. Almost literal transposition - “partner” is not mentioned; see comment to Art 2.2 (b)



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Member State)


Fully in accord?

(y/n)

Comments/Problems

(C) § 1 Abs 2 lit l AuslBG

„(drittstaatsangehörige) Kinder (einschließlich Adoptiv- und Stiefkinder), die noch nicht 21 Jahre alt sind oder denen der EWR-Bürger oder der Ehegatte Unterhalt gewährt“

“(third-country) children (including adopted and step-children) [who] are aged under 21 years or who are provided with maintenance by the EEA citizen or his spouse””

- Regarding the addition of “actually” in the NAG (“actually provided with maintenance” resp “tatsächlich Unterhalt gewährt”) compared to the Directive (“dependants” resp “Unterhalt gewährt”), should not cause problems in the light of the Lebon and Jia jurisprudence. Almost literal transposition - the “partner” is not mentioned (see Comment to Art 2.2 (b) Incorrect transposition - the provision speaks of “children” instead of “direct descendants”

Art. 2.2 (d)

(d) the dependent direct relatives in the ascending line and those of the spouse or partner as defined in point (b);

§ 2 Abs. 4 Z 11 FPG (B) § 52 Z 3 NAG (C) § 1 Abs 2 lit l AuslBG

„[…] eigene Verwandte und Verwandte des Ehegatten in gerader aufsteigender Linie, sofern ihnen Unterhalt tatsächlich gewährt wird, insofern dieser Drittstaatsangehörige den freizügigkeitsberechtigten EWR-Bürger oder Schweizer Bürger, von dem sich seine gemeinschaftsrechtliche Begünstigung herleitet, begleitet oder ihm nachzieht“ „Angehörige […] wenn sie […] Verwandter des EWR-Bürgers oder seines Ehegatten in gerader aufsteigender Linie sind, sofern ihnen von diesen Unterhalt tatsächlich gewährt wird“ „drittstaatsangehörige Eltern des EWR-Bürgers und seines Ehegatten, denen der EWR-Bürger oder der Ehegatte

“[…]own relatives and the spouse's relatives in a straight ascending line, if they are actually provided with maintenance, provided that this third country national accompanies or joins the EEA citizen or Swiss citizen who is entitled to freedom of movement and from whom his benefit under Community law is derived” “Relatives […] if they […] are a relative of the EEA citizen or his spouse in a directly ascending line, if they are actually provided with maintenance by them” “third-country parents of the EAA citizen and his spouse who are provided with maintenance

N, Incorrect

Effective transposition. The FPG does not mention partners as defined in point (b), because Austria does not recognise the institute of registered partnership at all. The reference to actually provided with maintenance” resp “Unterhalt tatsächlich gewährt”) compared to the Directive (“dependants” resp “Unterhalt gewährt”), should not cause problems in the light of the Lebon and Jia jurisprudence. Almost literal transposition - the “partner” is not mentioned (see Comment to Art 2.2 (b) - Regarding the addition of “actually”, see Art 2.2 (c) and above. Almost literal transposition - the “partner” is not mentioned (see Comment to Art 2.2 (b)



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Member State)


Fully in accord?

(y/n)

Comments/Problems

Unterhalt gewährt“

by the EEA citizen or his spouse”

Incorrect transposition - the provision speaks of “parents” instead of “direct relatives in the ascending line”

Art. 2.3 3) "Host Member State" means the Member State to which a Union citizen moves in order to exercise his/her right of free movement and residence.

Y No direct transposition But no problem since pertinent national provisions refer to Austria or to the Federal territory (“Bundesgebiet”) when the Directive refers to the Host State (e.g. § 51 Z 1 NAG)

Art. 3.1 Beneficiaries This Directive shall apply to all Union citizens who move to or reside in a Member State other than that of which they are a national, and to their family members as defined in point 2 of Article 2 who accompany or join them.

(A) § 2 Abs 4 Z 8 FPG § 2 Abs 4 Z 11 FPG § 2 Abs.1 PassG

„EWR-Bürger: ein Fremder, der Staatsangehöriger einer Vertragspartei des Abkommens über den Europäischen Wirtschaftsraum (EWR-Abkommen) ist“ „begünstigter Drittstaatsangehöriger: […] insofern dieser Drittstaatsangehörige den freizügigkeitsberechtigten EWR-Bürger oder Schweizer Bürger, von dem sich seine gemeinschaftsrechtliche Begünstigung herleitet, begleitet oder ihm nachzieht“ „Österreichische Staatsbürger (Staatsbürger) bedürfen zur Ausreise aus dem Bundesgebiet und zur Einreise in dieses eines gültigen Reisedokumentes (Reisepaß oder Paßersatz), […]. Einem Staatsbürger, der über kein gültiges Reisedokument verfügt, jedoch seine Staatsbürgerschaft und seine Identität glaubhaft machen kann, darf, […], die Einreise nicht versagt werden.“

“"EEA citizen" : an alien who is a national of a Contracting Party to the Agreement creating the European Economic Area (EEA Agreement)” “"Favoured third country national": […] provided that this national of a third country accompanies or joins the EEA citizen or Swiss citizen who is entitled to freedom of movement and from whom his benefit under Community law is derived” “Austrian citizens (nationals) need a valid travel document (passport or passport substitute) in order to leave the Federal territory or to enter into it […] A national who does not carry a valid travel document on him, but is able to accredit his citizenship and his identity, […] must not be prevented from entering.”

N, Incorrect

Incorrect transposition. - Even though family members who are Union citizens are not included in the definitions of the FPG, family members who are Union citizens do have original rights provided by the FPG (§ 84). - Moreover Austrian citizens are excluded from the definition but as far as the Directive is transposed by the FPG they have a legal status (partly due to constitutional law) which is at least comparable to the one of Union citizens (see the cited provisions of the PassG and of the StGG; the latter is part of the Austrian constitution as well as of the Protocol No 4 to the European Convention on Human Rights which also enjoys constitutional status in Austria). - The condition that the third-country national “accompanies the EAA citizen […] or […] travels after him” is in conformity with the requirements of the Directive, especially since the Austrian provision uses the terms "begleitet" and "nachzieht" which correspond to the German version of Article 3.1 of



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Member State)


Fully in accord?

(y/n)

Comments/Problems

Art 2 Abs 1 & 2 Prot 4-EMRK Art 6 Abs 1 StGG (B) § 51 NAG i.c.w. § 2 Abs 1 Z 14 NAG § 52 Z 1-3 NAG

„(1) Jedermann, der sich rechtmäßig im Hoheitsgebiet eines Staates aufhält, hat das Recht, sich dort frei zu bewegen und seinen Wohnsitz frei zu wählen. (2) Jedermann steht es frei, jedes Land einschließlich seines eigenen zu verlassen.“ „Jeder Staatsbürger kann an jedem Orte des Staatsgebietes seinen Aufenthalt und Wohnsitz nehmen, […].“ „EWR-Bürger, die ihr Recht auf Freizügigkeit in Anspruch nehmen und sich länger als drei Monate im Bundesgebiet aufhalten […]“ „Recht auf Freizügigkeit: das gemeinschaftliche Recht eines EWR-Bürgers, sich in Österreich niederzulassen“ „Angehörige von freizügigkeitsberechtigten EWR-Bürgern (§ 51), die selbst EWR-Bürger sind […] wenn sie 1. Ehegatte sind; 2. Verwandter des EWR-Bürgers oder seines Ehegatten in gerader absteigender Linie bis zur Vollendung des 21. Lebensjahres und darüber hinaus sind, sofern ihnen von diesen Unterhalt tatsächlich gewährt wird; 3. Verwandter des EWR-Bürgers

“(1) Everyone lawfully within the territory of a state shall, within that territory, have the right to liberty of movement and freedom to choose his residence.” “(2) Everyone shall be free to leave every country, including his own.” “Every national can take up residence and domicile at any place inside the boundaries of the state, […].” “EEA citizens who are claiming their right to freedom of movement and who are residing for more than three months within the Federal territory […]” “"right to freedom of movement" : the EEA citizen’s right under Community law to settle in Austria” “Relatives of EEA citizens who are entitled to freedom of movement (§51) […], who are themselves EEA citizens, […] if they are: 1. a spouse; 2. a relative of the EEA citizen or of his spouse in a directly descending line until they reach the age of 21 and after that time, if they are actually provided with maintenance by them. 3. a relative of the EEA citizen

the Directive ("begleiten" and "nachziehen"). (a) Union citizens: Effective transposition - applies to Union citizens who are claiming their right to freedom of movement - “three months” rule is not a problem because the problems of entry, exit and residence for up to three months are dealt with in the FPG (A) - but: Austrian citizens are excluded from this definition even if they have claimed their right to freedom of movement under Community law, since they are no “aliens” according to the definition of § 2 Abs 1 Z 1 NAG (see Art 2.1) - no problem with purely internal cases (as they do not affect EU law), but cases of double citizenship (e.g. an Austrian-French citizen) as well as Austrians returning from EU countries to Austria are not covered by the transposition even though they



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Member State)


Fully in accord?

(y/n)

Comments/Problems

§ 54 Abs 1 NAG i.c.w. § 52 Z 1-3 NAG § 57 NAG i.c.w. § 52 Z 1-3 NAG OR i.c.w. § 54 Abs 1 i.c.w. § 52 Z 1-3 NAG

oder seines Ehegatten in gerader aufsteigender Linie sind, sofern ihnen von diesen Unterhalt tatsächlich gewährt wird; […] und diesen begleiten oder zu ihm nachziehen.“ „Angehörige von freizügigkeitsberechtigten EWR-Bürgern (§ 51), die nicht EWR-Bürger sind und die die in § 52 Z 1 bis 3 genannten Voraussetzungen erfüllen“ „Die Bestimmungen der §§ 51 bis 56 finden auch […] auf Angehörige von Österreichern, sofern diese ihr Recht auf Freizügigkeit in Anspruch genommen haben, Anwendung.“

or his spouse in a directly ascending line, if they are actually provided with maintenance by them; […] and if they accompany or join him. “Relatives of EEA citizens entitled to freedom of movement (§51) who are not EEA citizens and who meet the requirements referred to in §52(1) to (3) […]” “The provisions of §§51 to 56 shall also apply […] to relatives of Austrians, if they have claimed their right to freedom of movement.”

fall within the scope of Community law according to the ECJ - however, with regard to the right to free movement from and to Austria as well as the right of residence within Austria, they have a legal status (partly due to constitutional law) which is at least comparable to the one of Union citizens (see the cited provisions of the StGG of 1867 which is part of the Austrian constitution as well as of Protocol No 4 to the European Convention on Human Rights which also enjoys constitutional status in Austria). (b) family members: Incorrect transposition, since all situations in which family members accompanying or joining the primary beneficiaries are covered - § 52: family members (see Art 2.1) of non-Austrian Union citizens who are Union citizens themselves - § 54 Abs 1: family members (see Art 2.1) of non-Austrian Union citizens who are not a national of a Member State - § 57: family members (Art 2.1) of an Austrian citizen who has claimed his/her right to freedom of movement, irrespective of whether they are Union citizens (i.c.w. § 52 NAG) or not (i.c.w. § 54 Abs 1 i.c.w. § 52 NAG) - However, the transposing phrase “or provided that he travels after him” is more restrictive than the wording of the Directive (“join them”), since it excludes cases in which the future family members



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Member State)


Fully in accord?

(y/n)

Comments/Problems

(C) § 1 Abs 2 lit l AuslBG § 3 Abs 8 AuslBG

„Die Bestimmungen dieses Bundesgesetzes sind nicht anzuwenden auf […] freizügigkeitsberechtigte EWR-Bürger, deren drittstaatsangehörige Ehegatten und Kinder (einschließlich Adoptiv- und Stiefkinder), die noch nicht 21 Jahre alt sind oder denen der EWR-Bürger oder der Ehegatte Unterhalt gewährt, sowie drittstaatsangehörige Eltern des EWR-Bürgers und seines Ehegatten, denen der EWR-Bürger oder der Ehegatte Unterhalt gewährt, sofern sie zur Niederlassung nach dem Niederlassungs- und Aufenthaltsgesetz (NAG), BGBl I Nr 100/2005 berechtigt sind.“ „Familienangehörigen gemäß § 1 Abs 2 lit l […] ist auf deren Antrag von der regionalen Geschäftsstelle des Arbeitsmarktservice eine Bestätigung auszustellen, dass sie vom Geltungsbereich dieses Bundesgesetzes ausgenommen sind.“

“The provisions of this Federal law do not apply to […] EEA citizens entitled to freedom of movement whose third-country spouses and children (including adopted and step-children) aged under 21 or provided with maintenance by the EEA citizen or his spouse, as well as third-country parents of the EEA citizen and his spouse who are provided with maintenance by the EEA citizen or his spouse, as long as they are entitled to settle in accordance with the Settlement and Residence Act (NAG), BGBl. I No. 100/2005.” "On application family members to whom § 1 Abs 2 lit 1 applies […] shall be issued by the regional office of the Public Employment Service with a certificate that they are excepted of the scope of this federal law."

arrive in Austria independently of the EU citizen and marry him/her only there. However, if interpreted in conformity with the Directive, this provision should not cause transposition problems. Effective transposition: - As to the definition of “EEA citizen” within the meaning of the AuslBG see Art 2.1. - Thus, all Union citizens (except Austrian citizens), whether primary beneficiaries or family members who are nationals of a Member State, are excluded from the scope of application of the AuslBG according to its § 1 Abs 1 lit l case 1 (“freizügigkeitsberechtigte EWR-Bürger”). This means that they do not need a special permit under the AuslBG to legally take up employment in Austria. Hence, as for Austrian citizens, there is no restriction for them regarding access to the labour market., - Austrian citizens are excluded from the law’s scope of application due to § 1 Abs 1 AuslBG according to which it is only applicable to aliens. Austrian citizens do not need a special permit to take up employment and have unrestricted access to the labour market. - All family members (within the meaning of Art 2 para 2 of the Directive) who are not nationals of a Member State fall also out of the scope of application according to § 1 Abs 1 lit l second case AuslBG.



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Member State)


Fully in accord?

(y/n)

Comments/Problems

Art. 3.2 (a)

Without prejudice to any right to free movement and residence the persons concerned may have in their own right, the host Member State shall, in accordance with its national legislation, facilitate entry and residence for the following persons: (a) any other family members, irrespective of their nationality, not falling under the definition in point 2 of Article 2 who, in the country from which they have come, are dependants or members of the household of the Union citizen having the primary right of residence, or where serious health grounds strictly require the personal care of the family member by the Union citizen;

(A) no provision (B) § 52 Z 5 NAG § 56 Abs 1 & 3 NAG i.c.w. § 52 Z 5 NAG

„Angehörige von freizügigkeitsberechtigten EWR-Bürgern (§ 51), die selbst EWR-Bürger sind […] wenn sie […] 5. sonstige Angehörige des EWR-Bürgers sind, a) die vom EWR-Bürger bereits im Herkunftsstaat Unterhalt tatsächlich bezogen haben, b) die mit dem EWR-Bürger bereits im Herkunftsstaat in häuslicher Gemeinschaft gelebt haben, oder c) bei denen schwerwiegende gesundheitliche Gründe die persönliche Pflege zwingend erforderlich machen, und diesen begleiten oder ihm nachziehen.“ „(1) Angehörigen im Sinne des § 52 Z […] 5 von freizügigkeitsberechtigten EWR-Bürgern (§ 51), die selbst nicht EWR-Bürger sind, kann auf Antrag eine quotenfreie ‚Niederlassungsbewilligung –

EEA family members “Relatives of EEA citizens (§51) entitled to freedom of movement, who are themselves EEA citizens, […] if they: 5. are other relatives of the EEA citizen: a) who have already actually received maintenance from the EEA citizen in the country of origin, b) who have been members of the EEA citizen’s household in the country from which they have come, or c) where serious health grounds strictly require personal care, and if they accompany or join him.” Third country nationals family members “(1) Relatives, within the meaning of §52 […] (5) of EEA citizens entitled to freedom of movement (§51), who are not EEA citizens themselves, may

N, Incomplet

e

No transposition by the FPG. No overall correctness. The NAG is the act regulating the right of residence for more than three months whereas the FPG is the act regulating the right of exit and entry, right to residence for up to three months, restrictions on the right of entry and residence. This is a crucial point which causes several problems, e.g., Art 3.2 is not transposed by the FPG, only by the NAG. Effective transposition: - Concerning concept of “other family members” almost literal transposition. - Regarding the addition of “actually”, see Art 2.2 (c). German version of the Directive (which is authentic as the English one) says “zwingend erforderlich machen” which is transposed literally by the Austrian text -Concerning duty to facilitate residence, this can be found in all constellations: - § 52: if the “other family members” are Union citizens themselves, they have the same position as family members according to Art 2.1 even more than facilitation - § 56: if the “other family members” are not nationals of a Member State, they “may be granted” a settlement permit (possibly also including a work permit see (C). However, they have no right to it.



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Member State)


Fully in accord?

(y/n)

Comments/Problems

§ 57 NAG i.c.w. § 52 Z 5 NAG OR i.c.w. § 56 Abs 1 & 3 NAG i.c.w. § 52 Z 5 NAG (C) § 1 Abs 1 AuslBG § 1 Abs 2 lit l AuslBG

Angehöriger’ erteilt werden, wenn sie die Voraussetzungen des 1. Teiles erfüllen. Unbeschadet eigener Unterhaltsmittel hat der zusammenführende EWR-Bürger jedenfalls auch eine Haftungserklärung abzugeben. (3) Angehörigen nach Abs 1 kann eine ‚Niederlassungsbewilligung – beschränkt’ erteilt werden, wenn 1. sie die Voraussetzungen des 1. Teiles erfüllt haben, 2. ein Quotenplatz vorhanden ist und 3. eine Berechtigung nach dem Ausländerbeschäftigungsgesetz vorliegt.“ „Die Bestimmungen der §§ 51 bis 56 finden auch […] auf Angehörige von Österreichern, sofern diese ihr Recht auf Freizügigkeit in Anspruch genommen haben, Anwendung.“ [see Art 3.1]

on application be granted a quota-free "settlement permit - relative", if they meet the requirements of Part 1. Without prejudice to their own means of maintenance, the uniting EEA citizen shall in any event also make a liability declaration. (3) Relatives under (1) may be granted a "settlement permit - restricted" if: 1. they have met the requirements of Part 1, 2. a quota place is available and 3. an entitlement exists under the Aliens Employment Act.” Austrian nationals’ family members “The provisions of §§51 to 56 shall also apply to […] relatives of Austrians, if they have claimed their right to freedom of movement.” [see Art 3.1]

- § 57: “other family members” of an Austrian citizen who has claimed his/her right to freedom of movement are treated accordingly, depending on whether they are Union citizens - themselves (equal treatment according to § 52 Z 5 NAG) or non Union citizens (facilitation of residence according to § 56 Abs 1 & 3 NAG) Effective transposition: - if the “other family members” are Union citizens (except Austrian citizens), they will be excluded from the scope of application according to § 1 Abs 1 lit l AuslBG (equal treatment with regard to family member within the realm of Art 2.2) - Austrian citizens are excluded due to § 1 Abs 1 AuslBG anyway - if the “other family members” are not nationals of a Member State, they will need a permit on the basis of §§ 3, 4 AuslBG. In case of ‚Niederlassungsbewilligung – Angehöriger’ (Abs 1), they are not allowed to be employed. However, when they get ‚Niederlassungsbewilligung – beschränkt’ (Abs 3) and a corresponding permit under the



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Member State)


Fully in accord?

(y/n)

Comments/Problems

AuslBG, they can work (§ 4 Abs 3 Z 7 AuslBG)

Art. 3.2 (b)

(b) the partner with whom the Union citizen has a durable relationship, duly attested.

(A) No provision (B) § 52 Z 4 NAG § 56 Abs 1 & 3 NAG i.c.w. § 52 Z 4 NAG

„Angehörige von freizügigkeitsberechtigten EWR-Bürgern (§ 51), die selbst EWR-Bürger sind […] wenn sie […] 4. Lebenspartner sind, der das Bestehen einer dauerhaften Beziehung im Herkunftsstaat nachweist; […] und diesen begleiten oder ihm nachziehen.“ „(1) Angehörigen im Sinne des § 52 Z 4 […] von freizügigkeitsberechtigten EWR-Bürgern (§ 51), die selbst nicht EWR-Bürger sind, kann auf Antrag eine quotenfreie ‚Niederlassungsbewilligung – Angehöriger’ erteilt werden, wenn sie die Voraussetzungen des 1. Teiles erfüllen. Unbeschadet eigener Unterhaltsmittel hat der zusammenführende EWR-Bürger jedenfalls auch eine Haftungserklärung abzugeben. (3) Angehörigen nach Abs 1 kann eine ‚Niederlassungsbewilligung – beschränkt’ erteilt werden, wenn 1. sie die Voraussetzungen des 1. Teiles erfüllt haben, 2. ein Quotenplatz vorhanden ist und 3. eine Berechtigung nach dem Ausländerbeschäftigungsgesetz vorliegt.“

EEA family members “Relatives of EEA citizens (§51) entitled to freedom of movement, who are themselves EEA citizens, […] if they: 4. are a partner who can prove the existence of a durable relationship in the country of origin, […] and if they accompany or join him” Third country family members “(1) Relatives, within the meaning of §52 4 […], of EEA citizens entitled to freedom of movement (§51), who are not EEA citizens themselves, may on application be granted a quota-free "settlement permit - relative", if they meet the requirements of Part 1. Without prejudice to their own means of maintenance, the uniting EEA citizen shall in any event also make a liability declaration. (3) Relatives under (1) may be granted a "settlement permit - restricted" if: 1. they have met the requirements of Part 1, 2. a quota place is available and 3. an entitlement exists under the Aliens Employment Act.”

N, Incorrect

No transposition by the FPG. Incorrect transposition: Concerning concept of “partner”: almost literal transposition, but NAG definition demands that the durable relationship was already existent in the country of origin (“Herkunftsstaat”), whereas the Directive does not contain such a requirement (that signifies that the relationship could possibly also come into existence in the host Member State). The German version of the Directive says “dauerhafte Beziehung” as does the NAG. Only the semi-official translation of the NAG puts “permanent” instead of “durable”. Concerning duty to facilitate residence, this can be found in all constellations: - § 52: if the partner is also a Union citizen, he/she will have the same position as family members according to Art 2.1 even more than facilitation - § 56: if the partner is not a national of a Member State, he/she may be granted a settlement permit; see Art 3.2 (a) - § 57: the partner of an Austrian citizen who has claimed his right to freedom of movement is treated accordingly, depending on whether he/she is Union citizen (equal treatment according to § 52 Z 4 NAG) or non Union citizen



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Member State)


Fully in accord?

(y/n)

Comments/Problems

§ 57 NAG i.c.w. § 52 Z 4 NAG OR i.c.w. § 56 Abs 1 & 3 NAG i.c.w. § 52 Z 4 NAG (C) § 1 Abs 1 AuslBG § 1 Abs 2 lit l AuslBG

„Die Bestimmungen der §§ 51 bis 56 finden auch […] auf Angehörige von Österreichern, sofern diese ihr Recht auf Freizügigkeit in Anspruch genommen haben, Anwendung.“ [see Art 3.1]

Austrian nationals’ family members “The provisions of §§51 to 56 shall also apply to […] relatives of Austrians, where they have claimed their right to freedom of movement.” [see Art 3.1]

(facilitation of residence according to § 56 Abs 1 & 3 NAG) Effective transposition: - if the partner is also a Union citizen (except an Austrian citizen), he/she is will be excluded from the scope of application according to § 1 Abs 1 lit l AuslBG (equal treatment with regard to family member within the realm of Art 2.2) - Austrian citizens are excluded due to § 1 Abs 1 AuslBG anyway - If the “partner” is not national of a Member State, he/she will need a permit on the basis of §§ 3, 4 AuslBG. In case of ‚Niederlassungsbewilligung – Angehöriger’ (Abs 1), he/she is not allowed to be employed. However, when he/she gets ‚Niederlassungsbewilligung – beschränkt’ (Abs 3) and a corresponding permit under the AuslBG, he/she can work (§ 4 Abs 3 Z 7 AuslBG)

The host Member State shall undertake an extensive examination of the personal circumstances and shall justify any denial of entry or residence to these people.

§ 37 AVG

„Zweck des Ermittlungsverfahrens ist, den für die Erledigung einer Verwaltungssache maßgebenden Sachverhalt festzustellen und den Parteien Gelegenheit zur Geltendmachung ihrer Rechte und rechtlichen Interessen zu geben.

„It is the purpose of the investigation procedure to ascertain the state of facts relevant for processing an administrative matter and to enable the parties to claim their rights and legal interests. […]“

N, Incorrect

Incorrect transposition as to the FPG: The fact that the representative authority in visa proceedings “shall assess whether it is satisfied that a fact must or must not be assumed to have been proved” (§ 11 Abs 1 FPG) does not fulfil the requirement of an



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Member State)


Fully in accord?

(y/n)

Comments/Problems

§ 39 Abs 2 AVG § 45 Abs 2 AVG AND § 58 Abs 2 AVG i.c.w. Art 2 Abs 1 & Abs 2 lit A Z 1 & 2 EGVG

[…]“ „Soweit die Verwaltungsvorschriften hierüber keine Anordnungen enthalten, hat die Behörde von Amts wegen vorzugehen und unter Beobachtung der in diesem Teil enthaltenen Vorschriften den Gang des Ermittlungsverfahrens zu bestimmen.“ “Im Übrigen hat die Behörde unter sorgfältiger Berücksichtigung der Ergebnisse des Ermittlungsverfahrens nach freier Überzeugung zu beurteilen, ob eine Tatsache als erwiesen anzunehmen ist oder nicht.” „Bescheide sind zu begründen, wenn dem Standpunkt der Partei nicht vollinhaltlich Rechnung getragen oder über Anträge von Beteiligten abgesprochen wird.“ „(1) Die Verwaltungsverfahrensgesetze regeln das Verfahren der nachstehend bezeichneten Verwaltungsorgane, soweit sie behördliche Aufgaben besorgen […]“ „(2) Von den Verwaltungsverfahrensgesetzen sind anzuwenden: A. das AVG und das VStG […] auf das behördliche Verfahren 1. der Behörden der allgemeinen staatlichen Verwaltung in den

“To the extent that the administrative rules and regulations do not contain any provisions thereon, the authority shall proceed ex officio and determine the proceeding of the investigation procedure in accordance with the rules and regulations contained in this part. […]“ “Also, the authority shall evaluate, in its free judgment, carefully taking into consideration the result of the investigation procedure, whether a fact is to be assumed as substantiated or not.” „Whenever the point of view of the party is not fully shared or decisions are taken on objections or submissions of persons involved, the reasons therefore shall be stated in the ruling." „(1) The procedure to be followed by the following administrative bodies, acting as public authorities, is laid down in the administrative procedure acts […]“ “(2) The following of the administrative procedure acts shall be applied: A. the AVG ([sc General] Administrative Procedure Act) and the VStG (Administrative Penal Act) […] to the official

extensive examination. No specific, but almost effective transposition as to the NAG: There is no special provision transposing these rules, but the authorities are supposed to respect a duty of examining the factual situation and of justifying their decisions (including a decision of denial of entry or residence) on the basis of the General Administrative Procedure Act 1991. However, there is no duty to take into account the personal circumstances but only the general one of examining the relevant facts of a case.



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Member State)


Fully in accord?

(y/n)

Comments/Problems

(A) i.c.w. § 11 Abs 1 and Abs 4 FPG (B) i.c.w. § 3 Abs 1 NAG

Ländern; 2. der unabhängigen Verwaltungssenate in den Ländern“ „(1) In Verfahren vor den österreichischen Vertretungsbehörden haben Antragsteller unter Anleitung der Behörde die für die Feststellung des maßgeblichen Sachverhalts erforderlichen Urkunden und Beweismittel selbst vorzulegen; die Vertretungsbehörde hat nach freier Überzeugung zu beurteilen, ob die Tatsachen als erwiesen anzunhemen ist oder nicht. Eine Entscheidung, die dem Standpunkt des Antragstellers nicht vollinhaltlich Rechnung trägt, darf erst ergehen, wenn die Partei Gelegenheit zur Behebung von Formgebrechen und zu einer abschließenden Stellungnahmen hat“ „(4)[ …] Dem Betroffenen sind die Gründe der öffentlichen Ordnung, Sicherheit oder Gesundheit, die der ihn betreffenden Entscheidung zugrunde liegen, genau und umfassend mitzuteilen, es sei denn, dass Gründe der Sicherheit der Republik Österreich dieser Mitteilung entgegenstehen. […]“ „Behörde nach diesem Bundesgesetz ist der zuständige

procedures of 1. the authorities of the general public administration in the Laender; 2. the Independent Administrative Penals of Appeal in the Laender” “(1) In proceedings before Austrian representative authorities, applicants shall, under the instructions of the authority, themselves submit the documents and evidence necessary to establish the relevant facts; the representative authority shall evaluate whether a fact is to be assumed as substantiated or not. A decision which does not take full account of the applicant's point of view may be made only if the party has had the opportunity to rectify formal irregularities and to make final observations. “(4) […] The reasons of public order, security or health on which the decision affecting the person concerned are based shall be communicated to him precisely and in full unless reasons of the security of the Republic of Austria prevent such communication. […]” “The authority under this Federal Act shall mean the state



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Member State)


Fully in accord?

(y/n)

Comments/Problems

Landeshauptmann […]“ governor […]” Chapter II RIGHT OF EXIT AND ENTRY Art. 4.1 Right of Exit

Without prejudice to the provisions on travel documents applicable to national border controls, all Union citizens with a valid identity card or passport and their family members who are not nationals of a Member State and who hold a valid passport shall have the right to leave the territory of a Member State to travel to another Member State.

Art 2 Abs 2 Prot 4-EMRK § 2 Abs 1 PassG § 15 Abs 1 FPG § 17 Abs 4 FPG

„Jedermann steht es frei, jedes Land einschließlich seines eigenen zu verlassen.“ „Österreichische Staatsbürger (Staatsbürger) bedürfen zur Ausreise aus dem Bundesgebiet und zur Einreise in dieses eines gültigen Reisedokumentes (Reisepaß oder Paßersatz), […]. Einem Staatsbürger, der über kein gültiges Reisedokument verfügt, jedoch seine Staatsbürgerschaft und seine Identität glaubhaft machen kann, darf, […], die Einreise nicht versagt werden.“ „Fremde brauchen, soweit durch Bundesgesetz oder durch zwischenstaatliche Vereinbarung nicht anderes bestimmt ist oder nicht anderes internationalen Gepflogenheiten entspricht, zur rechtmäßigen Einreise in das Bundesgebiet ein gültiges Reisedokument (Passpflicht).“ „EWR-Bürger […] erfüllen die Passpflicht auch mit einem Personalausweis und dürfen auf Grund eines solchen Reisedokumentes einreisen, sich im Bundesgebiet aufhalten und ausreisen.“

“(2) Everyone shall be free to leave every country, including his own.” “Austrian citizens (nationals) need a valid travel document (passport or passport substitute) in order to leave the Federal territory or to enter into it […] An Austrian national who does not carry a valid travel document on him, but is able to proof his citizenship and his identity, […] must not be prevented from entering.” “For the purpose of legal entry into Federal territory, aliens need a valid travel document (passport requirement) unless otherwise provided by Federal Act or international agreement or in accordance with different international practice.” “EEA citizens […] also meet the passport requirement with a personal identity card and may enter Austria, reside within the Federal territory and leave the Federal territory on the basis of such a travel document.”

N, Incomplet

e

Incomplete transposition. - Provisions of the StGG as well as of the Protocol No 4 to the European Convention on Human Rights assign to everyone the right to leave the territory of Austria. -As to the obligation to carry a passport or identity card there is effective transposition in regard to Union citizens (for Austrian citizens by § 2 PassG, for all other Union citizens by § 17 FPG). However in regard to the family members who are not nationals of a Member State transposition is unclear because the obligation to carry a passport is subject to the provision of entry (§ 15 FPG), which must be applied by analogy to the right of exit.

Art. 4.2 No exit visa or equivalent formality may be imposed on the persons to whom paragraph 1 applies.

Y Effective transposition. No visa is required for exit.



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Member State)


Fully in accord?

(y/n)

Comments/Problems

Art. 4.3 Member States shall, acting in accordance with their laws, issue to their own nationals, and renew, an identity card or passport stating their nationality.

§ 3 Abs. 1 PassG § 19 Abs. 1 PassG

„Reisepässe werden ausgestellt als 1. gewöhnliche Reisepässe, 2. Dienstpässe, 3. Diplomatenpässe. Der Besitz eines Reisepasses schließt die Ausstellung eines Personalausweises, der Besitz eines Personalausweises die Ausstellung eines Reisepasses nicht aus.“

„Passports are issued as 1. ordinary passports, 2. official passports, 3. diplomatic passports.” “The holding of a passport does not exclude the issuing of an identity card; the holding of an identity card does not exclude the issuing of a passport.”

Y Effective transposition by Articles 3, 4 and 19 of the Passport Law. § 19 refers to identity cards.

Art.4.4 The passport shall be valid at least for all Member States and for countries through which the holder must pass when travelling between Member States. Where the law of a Member State does not provide for identity cards to be issued, the period of validity of any passport on being issued or renewed shall be not less than five years.

§ 13 Abs. 1 PassG § 11 Abs. 1 PassG

„Gewöhnliche Reisepässe, Dienstpässe und Diplomatenpässe sind mit einem Geltungsbereich für alle Staaten der Welt auszustellen, […].“ „Gewöhnliche Reisepässe sind mit einer Gültigkeitsdauer von zehn Jahren, gerechnet ab dem Zeitpunkt der vollständigen Erfassung der Daten durch die Behörde, auszustellen, […].“

„Ordinary passports, official passports and diplomatic passports shall be valid for all countries in the world […].“ “Ordinary passports shall be valid for ten years from completion of collecting the relevant data by the competent authority.”

Y Effective transposition by Articles 11 and 13 of the Passport Law. The time limit of 10 years applies in Austria even if Austrian provides for ID cards.

Art. 5.1 Right on Entry 1. Without prejudice to the provisions on travel documents applicable to national border controls, Member States shall grant Union citizens leave to enter their territory with a valid identity card or passport and shall grant family members who are not nationals of a Member State leave to enter their territory with a valid passport.

§ 15 Abs 1 FPG § 17 Abs 4 FPG

„Fremde brauchen, soweit durch Bundesgesetz oder durch zwischenstaatliche Vereinbarung nicht anderes bestimmt ist oder nicht anderes internationalen Gepflogenheiten entspricht, zur rechtmäßigen Einreise in das Bundesgebiet ein gültiges Reisedokument (Passpflicht).“ „EWR-Bürger […] erfüllen die Passpflicht auch mit einem Personalausweis und dürfen auf Grund eines solchen Reisedokumentes einreisen, sich im Bundesgebiet aufhalten und ausreisen.“

“For the purpose of legal entry into Federal territory, aliens need a valid travel document (passport requirement) unless otherwise provided by Federal Act or international agreement or in accordance with different international practice.” “EEA citizens […] also meet the passport requirement with a personal identity card and may enter Austria, reside within the Federal territory and leave the Federal territory on the basis of such a travel document.”

Y Effective transposition. In respect of Austrian citizens see Art. 4.



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Member State)


Fully in accord?

(y/n)

Comments/Problems

No entry visa or equivalent formality may be imposed on Union citizens.

§ 30 Abs 1 FPG § 84 FPG § 17 Abs 4 FPG

„Fremde, die auf Grund allgemein anerkannter Regeln des Völkerrechts, eines Staatsvertrages, eines Bundesgesetzes oder eines unmittelbar anwendbaren Rechtsaktes der Europäischen Union in Österreich Sichtvermerks- und Niederlassungsfreiheit genießen, benötigen zur Einreise in das Bundesgebiet kein Visum.“ „EWR-Bürger und Schweizer Bürger haben das Recht auf Aufenthalt für einen Zeitraum von drei Monaten; § 30 Abs. 1 gilt. Darüber hinaus besteht ein Aufenthaltsrecht nach Maßgabe des 4. Hauptstückes des 2. Teiles des Niederlassungs- und Aufenthaltsgesetzes.“ „EWR-Bürger […] erfüllen die Passpflicht auch mit einem Personalausweis und dürfen auf Grund eines solchen Reisedokumentes einreisen, sich im Bundesgebiet aufhalten und ausreisen.“

“Aliens who, on the basis of generally recognised rules of international law, a state treaty, a Federal Act or a directly applicable legal instrument of the European Union, enjoy visa exception and freedom of settlement in Austria, require no visa for the purpose of entering the Federal territory.” “EEA citizens and Swiss citizens have the right of residence for up to three months; §30(1) shall apply. Additionally, there is a right of residence under Chapter 4 of Part 2 of the Settlement and Residence Act.” “EEA citizens […] also meet the passport requirement with a personal identity card and may enter Austria, reside within the Federal territory and leave the Federal territory on the basis of such a travel document.”

Y Effective transposition.

Art. 5.2 2. Family members who are not nationals of a Member State shall only be required to have an entry visa in accordance with Regulation (EC) No 539/2001 or, where appropriate, with national law. For the purposes of this Directive, possession of the valid residence card referred to in Article 10 shall exempt such family members from the visa requirement.

§ 85 Abs 1 FPG

„Begünstigte Drittstaatsangehörige (§ 2 Abs. 4 Z 11) haben das Recht auf Aufenthalt für einen Zeitraum von drei Monaten, unterliegen aber der Sichtvermerkspflicht. § 21 Abs. 8 gilt. Darüber hinaus besteht ein Aufenthaltsrecht nach Maßgabe des 4. Hauptstückes des 2. Teiles des Niederlassungs- und Aufenthaltsgesetzes. Inhaber von

“Favoured third country nationals §2(4)(11) have the right of residence for up to three months but are subject to the visa requirement. §21(8) shall apply. Additionally, there is a right of residence under Chapter 4 of Part 2 of the Settlement and Residence Act. Holders of permanent residence cards (§54 NAG) are entitled to enter

N, Incorrect

Incorrect Austrian legislation refers to 54NAG is the permanent residence card issued by the Austrian authorities, whereas the Directive refers to the residence card issued by any MS. Incorrect transposition. There is a conformity problem because the provision refers to permanent residence cards issued by Austrian authorities. This is



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Member State)


Fully in accord?

(y/n)

Comments/Problems

§ 21 Abs 8 FPG

Daueraufenthaltskarten (§ 54 NAG) sind zur sichtvermerksfreien Einreise berechtigt.“ „Drittstaatsangehörige, die auf Grund eines Staatsvertrages, eines Bundesgesetzes oder eines unmittelbar anwendbaren Rechtsaktes der Europäischen Union zwar Niederlassungsfreiheit aber nicht Sichtvermerksfreiheit genießen, haben nach Maßgabe dieses Staatsvertrages, Bundesgesetzes oder Rechtsaktes Anspruch auf Erteilung eines Visums.“

without visas.” “Nationals of third countries who, on the basis of a national treaty, a Federal Act or a directly applicable legal instrument of the European Union enjoy freedom to settle but not freedom from the visa requirement shall be entitled to have a visa granted in accordance with such national treaty, Federal Act or legal instrument.”

emphasised by quoting the crucial provision under the NAG. But the Directive refers to residence cards issued by any MS.

Member States shall grant such persons every facility to obtain the necessary visas. Such visas shall be issued free of charge as soon as possible and on the basis of an accelerated procedure.

§ 21 Abs 8 FPG § 5 Abs. 2 FPG

„Drittstaatsangehörige, die auf Grund eines Staatsvertrages, eines Bundesgesetzes oder eines unmittelbar anwendbaren Rechtsaktes der Europäischen Union zwar Niederlassungsfreiheit aber nicht Sichtvermerksfreiheit genießen, haben nach Maßgabe dieses Staatsvertrages, Bundesgesetzes oder Rechtsaktes Anspruch auf Erteilung eines Visums.“ „Der Bundesminister für Inneres kann, wenn dies der Erleichterung des Reiseverkehrs dient oder im Interesse der Zweckmäßigkeit, Raschheit und Einfachheit gelegen ist, durch Verordnung die Fremdenpolizeibehörden erster Instanz ermächtigen, bei bestimmten Grenzübergangsstellen Visa zu erteilen.“

“Nationals of third countries who, on the basis of a national treaty, a Federal Act or a directly applicable legal instrument of the European Union enjoy freedom to settle but not freedom from the visa requirement shall be entitled to have a visa granted in accordance with such national treaty, Federal Act or legal instrument.” “The Federal Minister for the Interior may by order authorise the Aliens Police Authorities at first instance to issue visas at particular border crossing points if this will serve to lighten holiday traffic or if it is appropriate in the interests of expediency, rapidity and simplicity.”

N, Incomplet

e

Incomplete transposition. - There are no or no clear provisions granting concerned facilities to obtain the necessary visas. - There are no special provisions about an accelerated procedure. It is not guaranteed by national provisions that the visa is issued as soon as possible. - Effective transposition as to the exemption from fees



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Member State)


Fully in accord?

(y/n)

Comments/Problems

§ 5 Abs. 3 FPG § 85 Abs. 2 FPG

„Die Erteilung von Visa mit Ausnahme von Flugtransitvisa obliegt ausschließlich jenen Fremdenpolizeibehörden erster Instanz, auf die sich eine Ermächtigung gemäß Abs. 2 bezieht. […]“ „Amtshandlungen im Zusammenhang mit der Erteilung von Visa an begünstigte Drittstaatsangehörige sind von den Stempelgebühren und den Verwaltungsabgaben befreit.“

“The granting of visas, apart from air transit visas, shall be the exclusive responsibility of those Aliens Police Authorities at first instance to which an authorisation pursuant to (2) applies. […]” “Official acts in connection with the granting of visas to favoured third country nationals are exempt from stamp charges and administrative fees.”

Art. 5.3 3. The host Member State shall not place an entry or exit stamp in the passport of family members who are not nationals of a Member State provided that they present the residence card provided for in Article 10.

Art.10.2 of the Regulation (EC) No 562/2006

“Die Reisedokumente von Drittstaatsangehörigen, die Familienangehörige eines Unionsbürgers sind, auf den die Richtlinie 2004/38/EG Anwendung findet, die aber die Aufenthaltskarte nach Artikel 10 der genannten Richtlinie nicht vorzeigen, werden bei der Ein- und Ausreise abgestempelt. Die Reisedokumente von Drittstaatsangehörigen, die Familienangehörige von Drittstaatsangehörigen sind, die das Gemeinschaftsrecht auf freien Personenverkehr genießen, die aber die Aufenthaltskarte nach Artikel 10 der Richtlinie 2004/38/EG nicht vorzeigen, werden bei der Ein- und Ausreise abgestempelt.“

„The travel documents of nationals of third countries who are members of the family of a Union citizen to whom Directive 2004/38/EC applies, but who do not present the residence card provided for in Article 10 of that Directive, shall be stamped on entry or exit. The travel documents of nationals of third countries who are members of the family of nationals of third countries enjoying the Community right of free movement, but who do not present the residence card provided for in Article 10 of Directive 2004/38/EC, shall be stamped on entry or exit.”

Y Effective transposition - No explicit transposition, but see Article 10 of the Regulation (EC) No 562/2006 of the European Parliament and of the Council of 15 March 2006 establishing a Community code on the rules of the movement of persons across borders (Schengen Borders Code).

Art. 5.4 4. Where a Union citizen, or a family member who is not a national of a Member State, does not have the necessary travel documents or, if required, the necessary visas, the Member State concerned shall, before turning

NT

No transposition.



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Fully in accord?

(y/n)

Comments/Problems

them back, give such persons every reasonable opportunity to obtain the necessary documents or have them brought to them within a reasonable period of time or to corroborate or prove by other means that they are covered by the right of free movement and residence.

Art.5.5 5. The Member State may require the person concerned to report his/ her presence within its territory within a reasonable and non-discriminatory period of time. Failure to comply with this requirement may make the person concerned liable to proportionate and non-discriminatory sanctions.

§ 2 Abs 1 MeldeG § 2 Abs. 2 MeldeG § 2 Abs. 3 MeldeG

„Wer in einer Wohnung oder in einem Beherbergungsbetrieb Unterkunft nimmt oder eine solche Unterkunft aufgibt, ist zu melden.“ „Nicht zu melden sind 1. Menschen, denen in einer Wohnung nicht länger als drei Tage Unterkunft gewährt wird; 2. ausländische Staatsoberhäupter, Regierungsmitglieder und diesen vergleichbare Persönlichkeiten sowie deren Begleitpersonen; 3. Fremde, die im Besitz eines gemäß § 84 des Fremdengesetzes 1997, BGBl. I Nr. 75, vom Bundesminister für auswärtige Angelegenheiten ausgestellten gültigen Lichtbildausweises sind, soweit sie in Wohnungen Unterkunft nehmen; 4. Menschen, die auf Grund einer Entscheidung oder Verfügung eines Gerichtes oder einer Verwaltungsbehörde angehalten werden. 5. (Anm.: aufgehoben durch BGBl. I Nr. 101/2003)“ „Sofern sie nach den Bestimmungen dieses Bundesgesetzes schon anderswo gemeldet sind, sind Menschen

“Any person who moves into or vacates accommodation in residence or in lodgings is required to register.” “Exemption from registration is granted to 1. Persons who do not stay in a residence for more than three days; 2. Foreign heads of state, administration officials and similar figures and their companions; 3. Aliens who are in possession of a valid photo ID in accordance with article 84 of the Aliens Act 1997, BGBl. I No. 75, issued by the Federal Minister for Foreign Relations, as long as said aliens move into accommodation in residences; 4. Persons who are detained on the basis of a ruling or decision of a court or administrative authority. 5. Removed by BGBl. I No. 101/2003” “Persons who are registered elsewhere in accordance with the provisions of this Federal law do not need to register if they

Y Effective transposition - Austria has made use of the option provided by Art. 5.5 of the Directive. In general any person is obliged to register on equal terms by the Registration Act because it is applicable to everyone independent of nationality. - Additional EEA citizens and their family members must register within three month provided for under Article 53 Abs 1 NAG (see Art 8.1). Relatives of EEA citizens who are not EEA citizens have to apply in time for a permanent residence permit under Article 54 Abs 1 NAG (see Art. 9.1). - The fine of up to 200 Euro is a non-discriminatory sanction. The sanctions under the MeldeG can be higher (§ 22 Abs 1 MeldeG provides for a fine up to 762 Euro).



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Member State)


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(y/n)

Comments/Problems

§ 3 Abs 1 MeldeG § 3 Abs. 2 MeldeG § 3 Abs. 3 MeldeG

nicht zu melden, 1. denen in einer Wohnung nicht länger als zwei Monate unentgeltlich Unterkunft gewährt wird; 2. die als Pfleglinge in einer Krankenanstalt aufgenommen sind; 3. die als Minderjährige in Kinder-, Schüler-, Studenten-, Jugend- oder Sportheimen untergebracht sind; 4. die als Angehörige des Bundesheeres, der Bundespolizei, der Zoll- oder Justizwache oder die im Rahmen eines Katastrophenhilfsdienstes in einer Gemeinschaftsunterkunft untergebracht sind.“ „Wer in einer Wohnung Unterkunft nimmt, ist innerhalb von drei Tagen danach bei der Meldebehörde anzumelden.“ Für jeden anzumeldenden Menschen ist der Meldezettel entsprechend vollständig auszufüllen. Befindet sich die Wohnung in einem Gebäude mit mehreren Adressen, so ist die Bezeichnung der Wohnung gemäß § 14 Abs. 2 des Postgesetzes 1997 zu verwenden. „Für die Anmeldung sind der entsprechend ausgefüllte Meldezettel und öffentliche Urkunden erforderlich, aus denen die Identitätsdaten (§ 1 Abs. 5a) des Unterkunftnehmers –

1. Do not stay in a residence for more than two months free of charge; 2. Are taken in as wards in a hospital; 3. Are housed as minors in children’s homes, boarding schools, student hostels, youth hostels or club houses; 4. Are housed as members of the Federal Armed Forces, Federal Police, Federal Police Force, customs officers or prison service or within the context of an emergency relief service in collective accommodation.” “Any person who accepts accommodation in a residence must register with the registration office within three days.” “A registration form must be completed in full for each person registering. If the residence is located in a building with several addresses, the name of the residence must be used in accordance with Article 14(2) of the Postal Act 1997.” “Registering parties must supply a duly completed registration form and official documents confirming their identity (Article 1(5a)), excluding the register of residents number; the



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Member State)


Fully in accord?

(y/n)

Comments/Problems

§ 77 Abs. 1 Z 5 NAG

ausgenommen die Melderegister-zahl - hervorgehen; dieser ist verpflichtet, an der Feststellung seiner Identität mitzuwirken. Erfolgt die Anmeldung mit Hauptwohnsitz und ist der zu Meldende bereits im Bundesgebiet mit Hauptwohnsitz angemeldet, so ist die Abmeldung oder Ummeldung (§ 11 Abs. 2) für diese Unterkunft gleichzeitig bei der nunmehr für den Hauptwohnsitz zuständigen Meldebehörde vorzunehmen.“ „[Wer] […] eine Anmeldebescheinigung oder eine Daueraufenthaltskarte nach §§ 53 und 54 nicht rechtzeitig beantragt, begeht eine Verwaltungsübertretung und ist mit Geldstrafe bis zu 200 Euro zu bestrafen.“

accommodated person is required to cooperate in the identification process. If registration is carried out using a principal residence and if the registering party is already registered as having a principal residence in Austria, de-registration or re-registration (Article 11(2)) must be carried for this accommodation at the same time with the registration office responsible for the principal residence.” “Any person who […] fails to apply at the proper time for a reporting certificate or a permanent residence card under §§53 and 54, shall commit an administrative misdemeanour and be liable to a fine of up to €200.”

Chapter III RIGHT OF RESIDENCE Art. 6.1 Right of residence for up to three

months 1. Union citizens shall have the right of residence on the territory of another Member State for a period of up to three months without any conditions or any formalities other than the requirement to hold a valid identity card or passport.

§ 84 FPG § 30 Abs. 1 FPG

„EWR-Bürger und Schweizer Bürger haben das Recht auf Aufenthalt für einen Zeitraum von drei Monaten; § 30 Abs. 1 gilt. Darüber hinaus besteht ein Aufenthaltsrecht nach Maßgabe des 4. Hauptstückes des 2. Teiles des Niederlassungs- und Aufenthaltsgesetzes.“ „Fremde, die auf Grund allgemein anerkannter Regeln des Völkerrechts, eines Staatsvertrages, eines Bundesgesetzes oder eines unmittelbar anwendbaren

“EEA citizens and Swiss citizens have the right of residence for up to three months; §30(1) shall apply. Additionally, there is a right of residence under Chapter 4 of Part 2 of the Settlement and Residence Act.” “Aliens who, on the basis of generally recognised rules of international law, a state treaty, a Federal Act or a directly applicable legal instrument of the European Union, enjoy visa

Y, (Not for

jobseekers)

Effective transposition, except for jobseekers. Jobseekers have the right of residence for up to 3 months. The special legal status of jobseekers (right to residence without registration obligation for up to 6 months) is not transposed in the Austrian law. See the comments on Article 14.4 (b) of the Directive.



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(y/n)

Comments/Problems

§ 17 Abs. 4 FPG

Rechtsaktes der Europäischen Union in Österreich Sichtvermerks- und Niederlassungsfreiheit genießen, benötigen zur Einreise in das Bundesgebiet kein Visum.“ „EWR-Bürger […] erfüllen die Passpflicht auch mit einem Personalausweis und dürfen auf Grund eines solchen Reisedokumentes einreisen, sich im Bundesgebiet aufhalten und ausreisen.“

exception and freedom of settlement in Austria, require no visa for the purpose of entering the Federal territory.” “EEA citizens […] also meet the passport requirement with a personal identity card and may enter Austria, reside within the Federal territory and leave the Federal territory on the basis of such a travel document.”

Art. 6.2 2. The provisions of paragraph 1 shall also apply to family members in possession of a valid passport who are not nationals of a Member State, accompanying or joining the Union citizen.

§ 85 Abs. 1 FPG „Begünstigte Drittstaatsangehörige (§ 2 Abs. 4 Z 11) haben das Recht auf Aufenthalt für einen Zeitraum von drei Monaten, unterliegen aber der Sichtvermerkspflicht. § 21 Abs. 8 gilt. Darüber hinaus besteht ein Aufenthaltsrecht nach Maßgabe des 4. Hauptstückes des 2. Teiles des Niederlassungs- und Aufenthaltsgesetzes. Inhaber von Daueraufenthaltskarten (§ 54 NAG) sind zur sichtvermerksfreien Einreise berechtigt.“

“Favoured third country nationals §2(4)(11) have the right of residence for up to three months but are subject to the visa requirement. §21(8) shall apply. Additionally, there is a right of residence under Chapter 4 of Part 2 of the Settlement and Residence Act. Holders of permanent residence cards (§54 NAG) are entitled to enter without visas.”

Y Effective transposition. The last two sentences of the provision just refer to the right of residence for more than three months. The first sentence of the provision states that third county family members “have the right to stay for a period of there months”. Therefore restrictions like holding a residence card are not stipulated as to the right of residence for up to three months.

Art.7.1 (a)

Right of residence for more than three months All Union citizens shall have the right of residence on the territory of another Member State for a period of longer than three months if they: (a) are workers or self-employed persons in the host Member State; or

§ 2 Abs 2 NAG

„Niederlassung ist der tatsächliche oder zukünftig beabsichtigte Aufenthalt im Bundesgebiet zum Zweck 1. der Begründung eines Wohnsitzes, der länger als sechs Monate im Jahr tatsächlich besteht; 2. der Begründung eines Mittelpunktes der Lebensinteressen oder 3. der Aufnahme einer nicht bloß

“"Settlement" shall mean actual residence or intended future residence within the Federal territory for the purpose: 1. of establishing a place of abode which exists in actual fact for longer than six months in a year; 2. of establishing a focus of a person's life or 3. commencing gainful employment which is not merely

Y Effective transposition: - as to (i) EEA citizens, ii) the specific status of Austrian citizens, iii) the reference to right to freedom of movement and iv) the “three months rule” see Art 2.1 and 3.1 - The NAG concept of “settlement” (“Niederlassung”) is not synonymous to the Community law notion of “residence” (“Aufenthalt”) . - However, the fact that a person



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Fully in accord?

(y/n)

Comments/Problems

§ 51 NAG § 51 Z 1 NAG

vorübergehenden Erwerbstätigkeit.“ “EWR-Bürger, die ihr Recht auf Freizügigkeit in Anspruch nehmen und sich länger als drei Monate im Bundesgebiet aufhalten, sind zur Niederlassung berechtigt, wenn sie […]” „1. in Österreich Arbeitnehmer oder Selbständige sind;“

temporary.” “EEA citizens who are claiming their right to freedom of movement and who are resident for more than three months within the Federal territory shall be entitled to settle if they […]: “1. are employees or self-employed in Austria”

“shall be entitled to settle” (“zur Niederlassung berechtigt”) inherently includes the right of residence in Austria for a principally unlimited period. - In contrast, the national concept of “residence” (“Aufenthalt”) is weaker than that (see RV, § 2 Abs 2 NAG). Literal transposition

Art.7.1 (b)

(b) have sufficient resources for themselves and their family members not to become a burden on the social assistance system of the host Member State during their period of residence and have comprehensive sickness insurance cover in the host Member State; or

§ 51 Z 2 NAG “2. für sich und ihre Familienangehörigen über eine ausreichende Krankenversicherung verfügen und nachweisen, dass sie über ausreichende Existenzmittel verfügen, so dass sie während ihrer Niederlassung keine Sozialhilfeleistungen in Anspruch nehmen müssen”

“2. have comprehensive sickness insurance cover for themselves and their family members and proof that they have sufficient resources for themselves and their family members not to become a burden on the social assistance system of the host Member State during their period of residence”

Y Almost literal transposition - Concerning sickness insurance, the NAG (“adequate”) is even less restrictive than the Directive (“comprehensive”); see Art 37 - Regarding the criterion of “sufficient resources” there is literal transposition, but there is a requirement of proof which is not contained in the Directive. As the approach is comparable to that of Art 7.1 lit c (§ 51 Z 3 NAG) where there is also a formal (albeit less restrictive) requirement, the two provisions could have been mixed up. In view of the proof requirement enshrined in Art 8.3 second indent, this should not be a problem though.

Art.7.1 (c)

(c) – are enrolled at a private or public establishment, accredited or financed by the host Member State on the basis of its legislation or administrative practice, for the principal purpose of following a course of study, including vocational training; and

§ 51 Z 3 NAG

“3. eine Ausbildung bei einer rechtlich anerkannten öffentlichen oder privaten Schule oder Bildungseinrichtung absolvieren und […]”

“3. are being educated at a legally recognised public or private school or training institution and […]”

Y Effective transposition: The NAG definition should be wide enough to cover the constellations envisaged by the directive, however - “being educated” (“absolvieren”) is perhaps more restrictive than “being enrolled”. However it could be considered enough since the Directive establishes a casual link, since the purpose of being enrolled is



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(y/n)

Comments/Problems

to follow a course of study, including vocational training, which implies education and formation. Since training institutions are covered by the Austrian provision, it would seem broad enough to cover all categories envisaged by the Directive. - “financed” is missing but this is not a problem since the Austrian legislation clearly covers public and private schools and training institutions. - “legally recognised” (“rechtlich anerkannt”) should equal “accredited […] on the basis of its legislation or administration practice” - “training institution” (“Bildungseinrichtung”) should also cover “vocational training”

- have comprehensive sickness insurance cover in the host Member State and assure the relevant national authority, by means of a declaration or by such equivalent means as they may choose, that they have sufficient resources for themselves and their family members not to become a burden on the social assistance system of the host Member State during their period of residence; or

§ 51 Z 3 NAG i.c.w. § 51 Z 2 NAG

“[…] die Voraussetzungen der Z 2 erfüllen” [see Art 7.1 (b)]

“[…] and meet the requirements of indent 2” [see Art 7.1 (b)]

Y Effective transposition: The material prerequisites of this provision are the same as those of Art 7.1 (b), namely sickness insurance and sufficient resources. Insofar there is no problem with the reference to the provision. However, the NAG provision requires “proof” of those material provisions whereas the Directive asks for assurance by means of “a declaration or by such equivalent means as they may choose” which appears to be more favourable than the Austrian act. However this limitation of the Austrian act seems to be overcome by the requirements of proof included when transposing Article 8(3) third indent which requires a “declaration or equivalent means”. § 53 Abs 2 Z 3 NAG demands “a declaration or other



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documents” (“Erklärung oder sonstige Dokumente”) in this regard (see Art 8.3 third indent).

Art.7.1 (d)

(d) are family members accompanying or joining a Union citizen who satisfies the conditions referred to in points (a), (b) or (c).

§ 52 NAG i.c.w. § 51 Z 1-3 NAG § 57 NAG i.c.w. § 52 NAG i.c.w. § 51 Z 1-3 NAG

“Angehörige von freizügigkeitsberechtigten EWR-Bürgern (§ 51), die selbst EWR-Bürger sind, sind zur Niederlassung berechtigt, wenn sie […] diesen begleiten oder zu ihm nachziehen” (§51 [see Art 7.1 (a), (b), (c)] „Die Bestimmungen der §§ 51 bis 56 finden auch […] auf Angehörige von Österreichern, sofern diese ihr Recht auf Freizügigkeit in Anspruch genommen haben, Anwendung.“

„Relatives of EEA citizens (§51) entitled to freedom of movement, who are themselves EEA citizens, shall be entitled to settle if they […] accompany or join him.” (§51 [see Art 7.1 (a), (b), (c)] “The provisions of §§51 to 56 shall also apply […] to relatives of Austrians, where they have claimed their right to freedom of movement”

Y Effective transposition: - § 52 NAG covers family members who are Union citizen themselves (which is also the scope of application ratione personae of the Directive provision in question; Art 7.2 a contrario) and who accompany or join the primary beneficiary (who is not an Austrian citizen). - § 57 extends this regime to family members (who are themselves Union citizens) of Austrian citizens in the abovementioned sense (Art 3.1). - The Directive’s reference to cases (a), (b) and (c) is guaranteed by § 52 NAG’s own reference to § 51 NAG which covers all those constellations; see Art 7.1 (a), (b) and (c) in this regard. - It has already been mentioned that §§ 52, 57 NAG include family members within the realm of Art 2.1 of the Directive (§ 52 Z 1-3), and also “other family members” and the “partner”, as defined in Art 3.2 (§ 52 Z 4 & 5). Insofar, facilitation signifies equal treatment.

Art. 7.2 2. The right of residence provided for in paragraph 1 shall extend to family members who are not nationals of a Member State, accompanying or joining the Union citizen in the host Member State, provided that such Union citizen satisfies the conditions referred to in paragraph 1 (a), (b) or (c).

§ 54 Abs 1 NAG i.c.w. § 51 Z 1-3 NAG § 57 NAG i.c.w. § 54 Abs 1 NAG i.c.w. § 51 Z 1-3 NAG

“Angehörige von freizügigkeitsberechtigten EWR-Bürgern (§ 51), die nicht EWR-Bürger sind und die die in § 52 Z 1 bis 3 genannten Voraussetzungen erfüllen, sind zur Niederlassung berechtigt.” „Die Bestimmungen der §§ 51 bis 56 finden auch […] auf Angehörige von Österreichern,

“Relatives of EEA citizens entitled to freedom of movement (§51) who are not EEA citizens and who meet the requirements referred to in §52(1) to (3) shall be entitled to settlement.” “The provisions of §§51 to 56 shall also apply […] to their relatives as well as to relatives of

Y Effective transposition: - § 54 Abs 1 NAG covers family members who are not nationals of a Members State and who accompany or join the primary beneficiary (who is not an Austrian citizen). - § 57 extends this regime to family members (who are not nationals of a Member State) of Austrian citizens in the abovementioned sense (Art 3.1). - The Directive’s reference to cases



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Comments/Problems

sofern diese ihr Recht auf Freizügigkeit in Anspruch genommen haben, Anwendung.“

Austrians, where they have claimed their right to freedom of movement.”

(a), (b) and (c) is guaranteed by § 57 NAG’s own reference to § 54 Abs 1 NAG which refers, on its part, to § 51 Z 1-3 NAG. - It has already been mentioned that §§ 54 Abs 1, 57 NAG only include the family members according to Art 2.1 of the Directive (§ 52 Z 1-3 NAG), but not “other family members” and the “partner”, as defined in Art 3.2 (a) and (b) (§ 52 Z 4 & 5 NAG). As to facilitation provisions in their favour which however do not include a comprehensive right of residence see § 56 Abs 1 & 3 NAG (Art 3.2).

Art. 7.3 (a)

3. For the purposes of paragraph 1(a), a Union citizen who is no longer a worker or self-employed person shall retain the status of worker or self-employed person in the following circumstances: (a) he/she is temporarily unable to work as the result of an illness or accident;

NT

No transposition - No national provision could be found that transposes Art 7.3 and 7.4 of the Directive. - The ToC Gov solely refers to § 53 Abs 2 Z 1 & 2 NAG (see Art 8.3) in this regard. However, this procedural rule cannot be considered transposing the material provisions of Art 7.3. and 7.4. - The right to residence of a Union citizen who is no longer a worker or self-employed person would be in danger since he/she would risk to fall out of § 51 Z 1 NAG and could thus not provide the proof according to § 53 Abs 2 Z 1 any more. According to § 55 NAG (see Art 12.1, 14.2 and 16.1), this could lead to expulsion. - In such a constellation, the right to residence would only be guaranteed by virtue of Art 7 Abs 1 lit b (as transposed in § 51 Z 2 NAG and, as to the related procedural aspects, in § 53 Abs 2 Z 2 NAG), but not of lit a



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Comments/Problems

of the Directive any more since the Union citizen is no worker or self-employed any more. This is the rationale of the present provision though. - Reference to duty of interpreting § 51 Z 1 NAG according to the Directive (i.e. in the light of its Art 7.3 and 7.4 and thus including the constellations envisaged there) is not enough for transposition.

Art. 7.3 (b)

(b) he/she is in duly recorded involuntary unemployment after having been employed for more than one year and has registered as a jobseeker with the relevant employment office;

NT

No transposition see Art 7.3. (a)

Art. 7.3 (c)

(c) he/she is in duly recorded involuntary unemployment after completing a fixed-term employment contract of less than a year or after having become involuntarily unemployed during the first twelve months and has registered as a job-seeker with the relevant employment office. In this case, the status of worker shall be retained for no less than six months;

NT


Art.7.3 (d)

(d) he/she embarks on vocational training. Unless he/she is involuntarily unemployed, the retention of the status of worker shall require the training to be related to the previous employment.

NT


Art. 7.4 4. By way of derogation from paragraphs 1(d) and 2 above, only the spouse, the registered partner provided for in Article 2(2)(b) and dependent children shall have the right of residence as family members of a Union citizen meeting the conditions under 1(c) above. Article 3(2) shall apply to his/her dependent direct relatives in the ascending lines and those of his/her spouse or registered partner.

NT

No transposition see Art 7.3. (a) According to the ToC Gov, “this

(optional) restriction has not been implemented”. It is not clear to which implementation this information refers.



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Comments/Problems

Art. 8.1 Administrative formalities for Union citizens 1. Without prejudice to Article 5(5), for periods of residence longer than three months, the host Member State may require Union citizens to register with the relevant authorities.

§ 53 Abs 1 NAG i.c.w. § 3 Abs 1 NAG

“EWR-Bürger, die ihr Recht auf Freizügigkeit in Anspruch nehmen, und deren Angehörige gemäß § 52 haben, wenn sie sich länger als drei Monate im Bundesgebiet aufhalten […] [die Niederlassung] der Behörde anzuzeigen.” [see Art 3.2 (b)]

“EEA citizens who are claiming their right to freedom of movement and their relatives under §52 shall, if they are resident within the Federal territory for more than three months, notify the authority of their settlement [no later than three months after settling].”

Y Effective transposition - “Union citizens” within the meaning of the Directive cover i) main beneficiaries and ii) their family members who are also Union citizens. That are the groups of persons covered by §§ 51, 52 NAG.

Art. 8.2 2. The deadline for registration may not be less than three months from the date of arrival. A registration certificate shall be issued immediately, stating the name and address of the person registering and the date of the registration. Failure to comply with the registration requirement may render the person concerned liable to proportionate and non-discriminatory sanctions.

§ 9 Abs 1 Z 1 NAG § 9 Abs 2 NAG §§ 3 & 4 NAG-DV

“Zur Dokumentation eines gemeinschaftsrechtlichen Aufenthalts- und Niederlassungsrechts werden 1. für EWR-Bürger, die sich in Österreich niedergelassen haben, über Antrag eine ‘Anmeldebescheinigung’ (§ 53) […] ausgestellt.” „Inhabern von Anmeldebescheinigungen kann auf Antrag ein ‚Lichtbildausweis für EWR-Bürger’ ausgestellt werden. Der Lichtbildausweis für EWR-Bürger […] [gilt] als Identitätsdokument. Form und Inhalt der Anmeldebescheinigung, des Lichtbildausweises für EWR-Bürger […] legt der Bundesminister für Inneres durch Verordnung fest.“ „§ 3. Anmeldebescheinigungen für freizügigkeitsberechtigte EWR-Bürger […] sind nach dem Muster der Anlage B auszustellen. § 4. Lichtbildausweise für EWR-Bürger (§ 9 Abs 2 NAG) sind als Karten nach dem Muster der Anlage C auszustellen.“

“The following shall be issued in order to document a right of residence and settlement under Community law: 1. in the case of EEA citizens who have settled in Austria, a "reporting certificate" (§53) shall be issued on application” Holders of reporting certificates may on application be issued with a "photo identity card for EEA citizens". The photo identity card for EEA citizens […] constitutes an identity document. The Federal Minister of the Interior shall by regulation determine the form and content of the reporting certificate, the photo identity card for EEA citizens […]. “§ 3. Registration certificates for EEA citizens who are claiming their right to freedom of movement shall be issued according to the sample in Annex B. § 4. Photo identity cards for EEA citizens (§ 9 Abs 2 NAG)

N, Incomplet

e

- The deadline for registration (translation provided by the Austrian Government: “reporting”) is three months. The Directive starts counting from the date of arrival whereas the NAG speaks of “after settling”. However, according to RV (§ 53 NAG), the two fall together. - However, the special legal status of job seekers is not taken into account, in particular insofar there is no duty for them to register within the first three months (see Q 125). This special constellation is not transposed into Austrian legislation. - According to the Directive, the registration certificate “shall be issued”. However, the NAG speaks twice of “on application”. However, this does not pose a problem, since the Commission itself has suggested that this clarification would be desirable (see Q 121). - The Directive calls for the registration certificate to be issued “immediately”. This aspect is not mentioned in the NAG, but only in RV (§ 53 NAG): “unverzüglich”. Thus, the general rule of § 73 Abs 1 AVG applies. This is not enough for



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Comments/Problems

§ 53 Z 1 NAG § 73 Abs 1 AVG i.c.w. Art 2 Abs 1 & Abs 2 lit A Z 1 & 2 EGVG i.c.w. § 3 NAG § 77 Abs 1 Z 5 NAG

[siehe Beilage: Anlagen B & C] „[…] haben […] spätestens nach Ablauf von drei Monaten ab ihrer Niederlassung diese der Behörde anzuzeigen. Bei Vorliegen der Voraussetzungen (§§ 51 oder 52) ist von der Behörde auf Antrag eine Anmeldebescheinigung auszustellen.“ „Die Behörden sind verpflichtet, wenn in den Verwaltungsvorschriften nichts anderes bestimmt ist, über Anträge von Parteien […] ohne unnötigen Aufschub, spätestens aber sechs Monate nach deren Einlangen den Bescheid zu erlassen.“ [see Art 3.2 (b)] „Wer […] eine Anmeldebescheinigung […] nach § 53 […] nicht rechtzeitig beantragt, begeht eine Verwaltungsübertretung und ist mit Geldstrafe bis zu 200 Euro zu bestrafen.“

shall be issued as cards according the sample in Appendix C.” [see enclosure: Annexes B & C] “[…] shall, […], notify the authority of their settlement no later than three months after settling. If the requirements (§§51 or 52) are met, the authority shall on application issue a reporting certificate. “ “Unless provided differently in the administrative rules and regulations, the authorities are obligated to issue a ruling on submissions of parties (§8) and appeals without undue delay, however at the latest within six months after receipt.” [see Art 3.2 (b)] [see enclosure: Appendix B & C] “Any person who fails to apply at the proper time for a reporting certificate […] under §§53 and 54, shall commit an administrative misdemeanour and be liable to a fine of up to €200.”

transposition though. Insofar no transposition. - Concerning content, Appendix B defines name, (date of birth), country of citizenship, date of issuing the certificate as well as the issuing authority as elements of the registration certificate. The address is not part of it (which appears to be OK in view of Art 37 of the Directive; see Q 68). Insofar the registration certificate is issued, as desired, “on the spot” the dates of the Union citizen coming to register and the certification of this act by the competent authority, will fall together. However, this is not guaranteed due to the lack of transposition of “immediately” in the NAG. All in all, the form does only contain the data as specified in the Directive (see Q 9). - Regarding sanctions, a maximum fine of 200 Euro appears to be as well proportionate as non-discriminatory when compared, for instance, to § 22 Abs 1 Z 1 MeldeG on violation of obligations to register (maximum fine of 726 Euro). However, according to § 77 NAG, the penalised behaviour is the failure to apply for the reporting (registration) certificate, not the failure to comply with the registration requirement. Insofar the transposition is problematic. The photo identity card is voluntary. It is not an obligation to apply for it. It is a service provided by the Austrian authorities as it is more



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Comments/Problems

practical than the registration/reporting certificate (for instance, in view of the duty to carry documentation according to Art 26 of the Directive). In addition, the photo identity card constitutes an “identity document”. However, a bearer of the registration/reporting certificate only has no relevant disadvantages compared to a bearer of a photo identity card.

Art. 8.3 3. For the registration certificate to be issued, Member States may only require that — Union citizens to whom point (a) of Article 7(1) applies present a valid identity card or passport, a confirmation of engagement from the employer or a certificate of employment, or proof that they are self-employed persons,

§ 53 Abs 2 Z 1 NAG “Zum Nachweis des Rechts sind ein gültiger Personalausweis oder Reisepass sowie 1. nach § 51 Z 1 eine Bestätigung des Arbeitgebers oder ein Nachweis der Selbständigkeit […] vorzulegen.”

“In order to prove the right, a valid personal identity card or passport shall be submitted, together with: 1. under §51(1), confirmation from the employer or proof of self-employment;”

Y (Almost) literal transposition The Austrian transposition only refers to the confirmation of the employer, but not to the “certificate of employment” as means of proof for employment.

— Union citizens to whom point (b) of Article 7(1) applies present a valid identity card or passport and provide proof that they satisfy the conditions laid down therein,

§ 53 Abs 2 Z 2 NAG “Zum Nachweis des Rechts sind ein gültiger Personalausweis oder Reisepass sowie […] 2. nach § 51 Z 2 Nachweise über eine ausreichende Krankenversicherung und über ausreichende Existenzmittel […] vorzulegen.”

“In order to prove the right, a valid personal identity card or passport shall be submitted, together with: 2. under §51(2), evidence of sufficient sickness insurance cover and sufficient resources”

Y (Almost) literal transposition

— Union citizens to whom point (c) of Article 7(1) applies present a valid identity card or passport, provide proof of enrolment at an accredited establishment and of comprehensive sickness insurance cover and the declaration or equivalent means referred to in point (c) of Article 7(1). Member States may not require this declaration to refer to any specific amount of resources.

§ 53 Abs 2 Z 3 NAG “Zum Nachweis des Rechts sind ein gültiger Personalausweis oder Reisepass sowie […] 3. nach § 51 Z 3 Nachweise über eine ausreichende Krankenversicherung und über die Zulassung zu einer Schule oder Bildungseinrichtung sowie eine Erklärung oder sonstige Dokumente über ausreichende Existenzmittel […] vorzulegen.”

“In order to prove the right, a valid personal identity card or passport shall be submitted, together with: 3. under §51(3), evidence of sufficient sickness insurance cover and evidence of admission to a school or educational establishment and a declaration or other documents relating to sufficient resources;”

Y Effective transposition - see Art 7.1 (c) - Austria does not require the declaration to refer to any specific amount of resources



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Art. 8.4 4. Member States may not lay down a fixed amount which they regard as ‘sufficient resources’, but they must take into account the personal situation of the person concerned. In all cases this amount shall not be higher than the threshold below which nationals of the host Member State become eligible for social assistance, or, where this criterion is not applicable, higher than the minimum social security pension paid by the host Member State.

Y Effective transposition Austria does not lay down a fixed amount of that kind. § 11 Abs 5 NAG, for instance, is not applicable in this context.

Art. 8.5 5. For the registration certificate to be issued to family members of Union citizens, who are themselves Union citizens, Member States may require the following documents to be presented:

§ 53 Abs 1 & 2 NAG “(1) […] Angehörige gemäß § 52 haben […] anzuzeigen. Bei Vorliegen der Voraussetzungen ([…] § 52) ist von der Behörde auf Antrag eine Anmeldebescheinigung auszustellen. […] (2) Zum Nachweis des Rechts sind […] vorzulegen.“

“(1) […] relatives under §52 shall […] notify the authority [of their settlement no later than three months after settling]. If the requirements (§§51 or 52) are met, the authority shall on application issue a reporting certificate […]. (2) In order to prove the right […] shall be submitted”

Y Effective transposition

(a) a valid identity card or passport; § 53 Abs 2 NAG „ein gültiger Personalausweis oder Reisepass“

“a valid personal identity card or passport”

Y Literal transposition

(b) a document attesting to the existence of a family relationship or of a registered partnership;

§ 53 Abs 2 Z 4 NAG § 53 Abs 2 Z 5 first part NAG

“nach § 52 Z 1 ein urkundlicher Nachweis des Bestehens der Ehe” „nach § 52 Z 2 und 3 ein urkundlicher Nachweis über das Bestehen einer familiären Beziehung […]“

„under §52(1), documentary proof of the existence of the marriage” “under §52(2) and (3), documentary evidence of the existence of a family relationship […]”

Y Effective transposition - „documentary proof/evidence“/“urkundlicher Nachweis“ (NAG) should be compatible with „document“/“Bescheinigung“ (Directive) - no need to transpose “registered partnership”; see Art 2.2 (b)

(c) where appropriate, the registration certificate of the Union citizen whom they are accompanying or joining;

Y Effective transposition - the NAG does not make use of this option (Art 37)

(d) in cases falling under points (c) and (d) of Article 2(2), documentary evidence that the conditions laid down therein are met;

§ 53 Abs 2 Z 5 second part NAG “nach § 52 Z 2 und 3 […] bei Kindern ab Vollendung des 21. Lebensjahres und Verwandten des EWR-Bürgers oder seines Ehegatten in gerader

“under §52(2) and (3) […] in the case of children who have reached the age of 21 and relatives of the EEA citizen or his spouse in directly ascending

N, Incorrect

Incorrect transposition - „actual provision of maintenance“: see Art 2.2 (c) - however: “children” is more restrictive than “direct descendants”:



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aufsteigender Linie ein Nachweis über die tatsächliche Unterhaltsgewährung”

line, evidence of the actual provision of maintenance”

see Art 2.2 (c) - requirement of “evidence”/”Nachweis” (NAG) should not pose any problem with regard to “documentary evidence”/”urkundlicher Nachweis” (Directive)

(e) in cases falling under Article 3(2)(a), a document issued by the relevant authority in the country of origin or country from which they are arriving certifying that they are dependants or members of the household of the Union citizen, or proof of the existence of serious health grounds which strictly require the personal care of the family member by the Union citizen;

§ 53 Abs 2 Z 7 NAG “nach § 52 Z 5 ein urkundlicher Nachweis einer zuständigen Behörde des Herkunftsstaates der Unterhaltsleistung des EWR-Bürgers oder des Lebens in häuslicher Gemeinschaft oder der Nachweis der schwerwiegenden gesundheitlichen Gründe, die die persönliche Pflege durch den EWR-Bürger zwingend erforderlich machen”

“under §52(5), documentary evidence from a competent authority in the country of origin of the payment of maintenance by the EEA citizen or of being member of the EEA citizen’s household, or evidence of the serious health grounds which strictly require personal care by the EEA citizen”

N, Incorrect

Incorrect transposition: - „country of origin“/“Herkunftsstaat“ (NAG) could be more restrictive than „country of origin or country from which they are arriving“/”Ursprungs- oder Herkunftsland)” (Directive). Therefore the transposition is not correct. - “documentary evidence”/”urkundlicher Nachweis” for reason 1 and 2 and “evidence”/”Nachweis” for reason 3 (NAG) is an almost literal transposition of the distinction within the Directive between “document certifying”/”Dokument” (reason 1 & 2) and “proof”/”Nachweis” (reason 3) To proof the status of a “dependant” means to proof that the relevant person is in fact provided with maintenance; see the German version of the Directive “Unterhalt gewährt wird” (for “dependants”); see above Art 2.2 (c) and (d). Concerning the pseudo problem regarding “urgently necessary” see above Art 3.2 (a).

(f) in cases falling under Article 3(2)(b), proof of the existence of a durable relationship with the Union citizen.

§ 53 Abs 2 Z 6 NAG “nach § 52 Z 4 ein Nachweis des Bestehens einer dauerhaften Beziehung mit dem EWR-Bürger im Herkunftsstaat“

„under §52(4) evidence of the existence of a permanent relationship with the EEA citizen in the country of origin”

N, Incorrect

(Almost) effective transposition - „evidence“/“Nachweis“ (NAG) is compatible with „proof“/“Nachweis“ (Directive)



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Comments/Problems

- Criterion of permanent relationship „in the country of origin“: too narrow transposition see Art 3.2 (b)

Art. 9.1 Administrative formalities for family members who are not nationals of a Member State. 1. Member States shall issue a residence card to family members of a Union citizen who are not nationals of a Member State, where the planned period of residence is for more than three months.

§ 9 Abs 1 Z 2 NAG § 9 Abs 2 NAG § 5 NAG-DV § 54 Abs 1 NAG

“Zur Dokumentation eines gemeinschaftsrechtlichen Aufenthalts- und Niederlassungsrechts werden […] 2. für Angehörige von EWR-Bürgern, die Drittstaatsangehörige sind, über Antrag eine ‚Daueraufenthaltskarte’ (§ 54), wenn der EWR-Bürger das Recht auf Freizügigkeit in Anspruch genommen hat, ausgestellt.” „[… D]ie Daueraufenthaltskarte [gilt] als Identitätsdokument. Form und Inhalt […] der Daueraufenthaltskarte legt der Bundesminister für Inneres durch Verordnung fest.“ „Daueraufenthaltskarten (§ 54 NAG) sind als Karten nach dem Muster der Anlage D auszustellen.“ [siehe Beilage: Anlage D] „Angehörige[n] von freizügigkeitsberechtigten EWR-Bürgern (§ 51), die nicht EWR-Bürger sind und die die in § 52 Z 1 bis 3 genannten Voraussetzungen erfüllen […] ist auf Antrag eine Daueraufenthaltskarte […] auszustellen.“

“The following shall be issued in order to document a right of residence and settlement under Community law: 2. in the case of relatives of EEA citizens who are third country nationals, a "permanent residence card" (§54) shall be issued on application if the EEA citizen has claimed the right to freedom of movement.” “ […T]he permanent residence card constitutes an identity document. The Federal Minister of the Interior shall by regulation determine the form and content of […] the permanent residence card. “ “Permanent residence cards are to be issued according to the sample in Annex D.” [see enclosure: Annex D] “Relatives of EEA citizens entitled to freedom of movement (§51) who are not EEA citizens and who meet the requirements referred to in §52(1) to (3) shall be entitled to settlement. They shall on application be issued with a permanent residence card [for a period of ten years].”

Y Effective transposition - The „three months rule“ is transposed through the reference in § 54 Abs 1 NAG, to the requirements of § 52 NAG which also includes: “if they are resident within the Federal territory for more than three months”. According to § 9 Abs 2 NAG, the permanent residence card constitutes an identity document. It seems a clear case of Art 37 of the Directive. The function of an “identity document” (also attributed to the photo identity card; see above Art 8.2) is an additional function which does not harm the effet utile of the Directive in any way. It does certify residence and identity. This should not cause problems with regard to the Directive.

Art. 9.2 2. The deadline for submitting the residence card application may not be less than three months from the date of arrival.

§ 54 Abs 1 NAG “[…] Dieser Antrag ist spätestens nach Ablauf von drei Monaten ab ihrer Niederlassung zu stellen.”

“[…] This application shall be made no later than three months from the date of their settlement”.

Y Effective transposition - The deadline for application is three months. The Directive starts counting from the date of arrival whereas the



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Comments/Problems

NAG speaks of “after settling”. However, according to RV (§ 54 NAG), the two fall together.

Art. 9.3 3. Failure to comply with the requirement to apply for a residence card may make the person concerned liable to proportionate and non-discriminatory sanctions.

§ 77 Abs 1 Z 5 NAG „Wer […] eine Daueraufenthaltskarte nach […] § 54 nicht rechtzeitig beantragt, begeht eine Verwaltungsübertretung und ist mit Geldstrafe bis zu 200 Euro zu bestrafen.“

“Any person who […] fails to apply at the proper time for […] a permanent residence card under §§53 and 54, shall commit an administrative misdemeanour and be liable to a fine of up to €200”

Y Effective transposition - Regarding sanctions, a maximum fine of 200 Euro appears to be as well proportionate as non-discriminatory when compared, for instance, to § 22 Abs 1 Z 1 MeldeG on violation of obligations to register (maximum fine of 726 Euro). According to § 77 NAG, the penalised behaviour is the failure to apply for a (permanent residence) card, which in this case is not problematic in view of the wording of the Directive (see Art 8.2 though).

Art.10.1 Issue of residence cards 1. The right of residence of family members of a Union citizen who are not nationals of a Member State shall be evidenced by the issuing of a document called ‘Residence card of a family member of a Union citizen’ no later than six months from the date on which they submit the application. A certificate of application for the residence card shall be issued immediately.

§ 9 Abs 1 Z 2 NAG § 9 Abs 2 NAG § 5 NAG-DV

“Zur Dokumentation eines gemeinschaftsrechtlichen Aufenthalts- und Niederlassungsrechts werden […] 2. für Angehörige von EWR-Bürgern, die Drittstaatsangehörige sind, über Antrag eine ‚Daueraufenthaltskarte’ (§ 54), wenn der EWR-Bürger das Recht auf Freizügigkeit in Anspruch genommen hat, ausgestellt.” „[… D]ie Daueraufenthaltskarte [gilt] als Identitätsdokument. Form und Inhalt […] der Daueraufenthaltskarte legt der Bundesminister für Inneres durch Verordnung fest.“ „Daueraufenthaltskarten (§ 54 NAG) sind als Karten nach dem Muster der Anlage D auszustellen.“

„The following shall be issued in order to document a right of residence and settlement under Community law: 2. in the case of relatives of EEA citizens who are third country nationals, a "permanent residence card" (§54) shall be issued on application if the EEA citizen has claimed the right to freedom of movement.” “[…T]he permanent residence card constitute an identity document. The Federal Minister of the Interior shall by regulation determine the form and content of […] the permanent residence card. “ “Permanent residence cards are to be issued according to the sample in Annex D.” [see enclosure: Annex D]

N , Incorrect

and Incomplet

e

(Almost) effective transposition - See comments for Art 9.1. - There is no problem with the “on application” requirement, since the Directive itself suggests that a “duty to apply for a residence card” can be established by the MS – what Austria did (Art 9.2: “deadline for submitting the residence card application”; Art 10.1: “from the date on which they submit the application”). - There is no specific transposition for the “6 months rule” within the NAG, but § 73 Abs 1 AVG sets a general maximum limit of 6 months for all administrative decisions. This provision is applicable on the procedure under the NAG. However, there are two problems with transposition: - The Directive insists on a special name for the documentation, namely “Residence card of a family member



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Comments/Problems

§ 54 Abs 1 NAG § 73 Abs 1 AVG i.c.w. Art 2 Abs 1 und Abs 2 lit A Z 1 EGVG i.c.w. § 3 NAG

[siehe Beilage: Anlage D] „Angehörige[n] von freizügigkeitsberechtigten EWR-Bürgern (§ 51), die nicht EWR-Bürger sind und die die in § 52 Z 1 bis 3 genannten Voraussetzungen erfüllen […] ist auf Antrag eine Daueraufenthaltskarte für die Dauer von zehn Jahren auszustellen.“ „Die Behörden sind verpflichtet, wenn in den Verwaltungsvorschriften nichts anderes bestimmt ist, über Anträge von Parteien […] ohne unnötigen Aufschub, spätestens aber sechs Monate nach deren Einlangen den Bescheid zu erlassen.“ [see Art 3.2 (b)]

“Relatives of EEA citizens entitled to freedom of movement (§51) who are not EEA citizens and who meet the requirements referred to in §52(1) to (3) shall be […] be issued with a permanent residence card for a period of ten years.” "Unless provided differently in the administrative rules and regulations, the authorities are obliged to issue a ruling on submission of parties […] without undue delay, however at the latest within six months after receipt."

of a Union citizen” (also using quotation marks in the Directive itself). However, the Austrian authorities do not issue such residence cards but exclusively “permanent residence cards” (Art 20). According to the Austrian government – see RV (§§ 9 and 54 NAG) in this regard, the immediate issuing of a permanent residence card helps the affected citizens because they get the permanent residence card with a validity of ten years already from the beginning. The government explicitly refers to Art 37 of the Directive in this context. However, there could be problems regarding the uniform application of Community law (see e.g. Art 10 para 2 of the Schengen Borders Code, Regulation (EC) No 562/2006, which explicitly refers to Art 10 of the Directive); see also Q 57 and Q 58 which insist on the use of the correct name. This results in incorrect transposition. - Regarding the last part of the provision, i.e. the immediate issuing of a certificate of application, there is no transposition in the NAG.

Art.10.2 (a)

2. For the residence card to be issued, Member States shall require presentation of the following documents: (a) a valid passport;

§ 54 Abs 2 NAG § 56 Abs 2 NAG

“Zum Nachweis des Rechts sind ein gültiger Personalausweis oder Reisepass […] vorzulegen.” “Zum Nachweis des Rechts sind ein gültiger Personalausweis oder Reisepass […] vorzulegen.”

“In order to prove the right, a valid personal identity card or passport shall be submitted […]” “In order to prove the right, a valid personal identity card or passport shall be submitted, […]”

Y, More

favourable

Literal, even more favourable transposition (Art 37), since also a valid identity card can be used, both regarding family members within the meaning of Art 2.2 (§ 54 NAG), but also concerning other family members and partners according to Art 3.2 (§ 56 NAG).

Art.10.2 (b)

(b) a document attesting to the existence of a family relationship or of a registered partnership;

§ 54 Abs 2 Z 1 & 2 first part NAG

“Zum Nachweis des Rechts sind […] 1. nach § 52 Z 1 ein urkundlicher Nachweis des Bestehens der Ehe;

“In order to prove the right […] shall be submitted 1. under §52(1), documentary evidence of the existence of the

Y Effective transposition - see Art 8.5 (b) -„documentary proof /evidence /“urkundlicher Nachweis“ (NAG)



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2. nach § 52 Z 2 und 3 ein urkundlicher Nachweis über das Bestehen einer familiären Beziehung […] vorzulegen.”

marriage; 2. under §52(2) and (3), documentary evidence of the existence of a family relationship[…].”

should be compatible with „document“/“Bescheinigung“ (Directive) - no need to transpose “registered partnership”; see Art 2.2 (b)

Art.10.2 (c)

(c) the registration certificate or, in the absence of a registration system, any other proof of residence in the host Member State of the Union citizen whom they are accompanying or joining;

Y Effective transposition the NAG does not make us of this option (Art 37)

Art.10.2 (d)

(d) in cases falling under points (c) and (d) of Article 2(2), documentary evidence that the conditions laid down therein are met;

§ 54 Abs 2 Z 2 second part NAG “Zum Nachweis des Rechts [ist …] 2. nach § 52 Z 2 und 3 […] bei Kindern über 21 Jahren und Verwandten des EWR-Bürgers oder seines Ehegatten in gerader aufsteigender Linie ein Nachweis über die tatsächliche Unterhaltsgewährung vorzulegen.”

“In order to prove the right […] shall be submitted 2. under §52(2) and (3), […] in the case of children who have reached the age of 21 and relatives of the EEA citizen or his spouse in directly ascending line, evidence of the actual provision of maintenance.

N, Incorrect

Incorrect transposition - see Art 8.5 (d) - „actual provision of maintenance“: see Art 2.2 (c) - however: “children” is more restrictive than “direct descendants”: see Art 2.2 (c) - requirement of “evidence”/”Nachweis” (NAG) should not pose any problem with regard to “documentary evidence”/”urkundlicher Nachweis” (Directive)

Art.10.2 (e)

(e) in cases falling under Article 3(2)(a), a document issued by the relevant authority in the country of origin or country from which they are arriving certifying that they are dependants or members of the household of the Union citizen, or proof of the existence of serious health grounds which strictly require the personal care of the family member by the Union citizen;

§ 56 Abs 2 Z 2 NAG “Zum Nachweis des Rechts sind […] 2. nach § 52 Z 5 ein urkundlicher Nachweis einer zuständigen Behörde des Herkunftsstaates über die Unterhaltsleistung des EWR-Bürgers oder des Lebens in häuslicher Gemeinschaft oder der Nachweis der schwerwiegenden gesundheitlichen Gründe, die die persönliche Pflege durch den EWR-Bürger zwingend erforderlich machen, vorzulegen.”

“In order to prove the right […] shall be submitted 2. under §52(5), documentary evidence from a competent authority in the country of origin of the payment of maintenance by the EEA citizen or of being member of the EEA citizen’s household, or evidence of the serious health grounds which strictly require personal care by the EEA citizen”.”

N, Incorrect

Incorrect transposition - see Art 8.5 (e) - „country of origin“/“Herkunftsstaat“ (NAG) could be more restrictive than „country of origin or country from which they are arriving“/”Ursprungs- oder Herkunftsland)” (Directive). Therefore the transposition is not correct. - “documentary evidence”/”urkundlicher Nachweis” for reason 1 and 2 and “evidence”/”Nachweis” for reason 3 (NAG) is an almost literal transposition of the distinction within the Directive between “document certifying”/”Dokument” (reason 1 &



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Comments/Problems

2) and “proof”/”Nachweis” (reason 3).

Art.10.2 (f)

(f) in cases falling under Article 3(2)(b), proof of the existence of a durable relationship with the Union citizen.

§ 56 Abs 2 Z 1 NAG

“Zum Nachweis des Rechts [ist …] 1. nach § 52 Z 4 der Nachweis des Bestehens einer dauerhaften Beziehung mit dem EWR-Bürger im Herkunftsstaat […] nachzuweisen.”

“In order to prove the right […] shall be submitted 1. under §52(4) evidence of the existence of a permanent relationship with the EEA citizen in the country of origin”

N, Incorrect

Incorrect transposition - see Art 8.5 (f) - „evidence“/“Nachweis“ (NAG) is compatible with „proof“/“Nachweis“ (Directive) - Criterion of permanent relationship „in the country of origin“: too restrictive transposition see Art 3.2 (b)

Art.11.1 Validity of the residence card 1. The residence card provided for by Article 10(1) shall be valid for five years from the date of issue or for the envisaged period of residence of the Union citizen, if this period is less than five years.

§ 54 Abs 1 NAG „Angehörige[n] von freizügigkeitsberechtigten EWR-Bürgern (§ 51), die nicht EWR-Bürger sind und die die in § 52 Z 1 bis 3 genannten Voraussetzungen erfüllen […] ist auf Antrag eine Daueraufenthaltskarte für die Dauer von zehn Jahren auszustellen.“

“Relatives of EEA citizens entitled to freedom of movement (§51) who are not EEA citizens and who meet the requirements referred to in §52(1) to (3) shall […] on application be issued with a permanent residence card for a period of ten years.”

Y Effective, even more favourable (Art 37) transposition - However, see analysis of transposition of Art 10.1 though

Art.11.2 2. The validity of the residence card shall not be affected by temporary absences not exceeding six months a year, or by absences of a longer duration for compulsory military service or by one absence of a maximum of 12 consecutive months for important reasons such as pregnancy and childbirth, serious illness, study or vocational training, or a posting in another Member State or a third country.

§ 10 Abs 1 NAG

”Aufenthaltstitel und Dokumentationen des Aufenthalts- und Niederlassungsrechts werden ungültig, wenn gegen Fremde ein Aufenthaltsverbot oder eine Ausweisung durchsetzbar oder rechtskräftig wird. Solche Fremde verlieren ihr Recht auf Aufenthalt. Ein Aufenthaltstitel oder eine Dokumentation des Aufenthalts- und Niederlassungsrechts lebt von Gesetzes wegen wieder auf, sofern innerhalb ihrer ursprünglichen Geltungsdauer das Aufenthaltsverbot anders als nach § 65 FPG oder die Ausweisung behoben wird.”

“A residence permit and documentation of the right of residence and settlement shall become invalid if an exclusion order or a removal order becomes enforceable or legally final against aliens. Such aliens shall loose their right of residence. A residence permit or documentation of the right of residence or settlement shall revive by statute if, within their original validity period, the exclusion order is cancelled otherwise than under §65 FPG or if the removal order is cancelled.“

NT

No transposition - The Gov ToC just states that there are no provisions on temporal conditions of validity of residence cards (“Es gibt keine zeitlichen Gültigkeitsbestimmungen bei Aufenthaltskarten”) and refers to § 10 NAG in this regard. - However, it is, to say the least, difficult to draw such a conclusion from § 10 NAG. Basically, this provision is related to § 55 Abs 1 NAG according to which “[i]f there is no documented right of settlement pursuant to §§ 51, 52 and 54 […] because the evidence under § 53 (2) or § 54 (2) is not provided”, the NAG Authority must inform the Aliens Police Authority which will start an expulsion procedure under the FPG.



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Comments/Problems

§ 20 Abs 4 NAG § 45 Abs 3 NAG § 55 Abs 1 NAG

„Ein Aufenthaltstitel nach Abs 3 erlischt, wenn sich der Fremde länger als zwölf Monate außerhalb des Gebietes des EWR aufhält. Aus besonders berücksichtigunsgwürdigen Gründen, wie einer schwerwiegenden Erkrankung, der Erfüllung einer sozialen Verpflichtung oder der Leistung eines der allgemeinen Wehrpflicht oder dem Zivildienst vergleichbaren Dienstes, kann sich der Fremde bis zu 24 Monaten außerhalb des Gebietes des EWR aufhalten, wenn er dies der Behörde vorher mitgeteilt hat.“ „Aus besonders berücksichtigungswürdigen Gründen, wie einer schwerwiegenden Erkrankung, der Erfüllung einer sozialen Verpflichtung oder Leistung eines der allgemeinen Wehrpflicht vergleichbaren Dienstes, kann sich der Drittstaatsangehörige innerhalb der Fünfjahresfrist bis zu 24 Monate außerhalb des Bundesgebietes aufhalten, ohne sie zu unterbrechen, wenn er dies der Behörde mitgeteilt hat“ “Besteht das gemäß §§ 51, 52 und 54 dokumentierte Niederlassungsrecht nicht, […] weil die Nachweise nach § 53 Abs 2 oder § 54 Abs 2 nicht erbracht werden, hat die Behörde den Antragsteller vom Nichtvorliegen

“A residence permit under (3) shall expire if the alien is resident outside the territory of the EAA for longer than twelve months. The alien may be resident outside the territory of the EAA for up to 24 months for reasons which are particularly worthy of consideration, such as a serious illness, compliance with a social obligation or the performance of general military service or of a service comparable to Community service, if he has given the authority prior notice thereof.” “The third country national may reside outside the Federal territory for up to 24 months within the five-year period without interrupting that period, for reasons which are particularly worthy of consideration, such as a serious illness, compliance with a social obligation or the performance of a service comparable to general military service, if he has given the authority notice thereof.” “If there is no documented right of settlement pursuant to §§51, 52 and 54 because […] the evidence under §53(2) or §54(2) is not provided, the authority shall give the applicant written notice that the requirements are

§ 55 NAG does not contain any provisions defining the effect of temporary absences concerning the right to residence as such. As, according to § 10 NAG, a “documentation of the right of residence and settlement shall become invalid if an exclusion order or a removal order becomes enforceable or legally final against aliens”, the argument that due to temporary absences the quality of a beneficiary of the Directive is lost (see Art 12 seq.) could lead to an expulsion order and finally result in the invalidity of residence cards because of temporary absences and thus in an indirect introduction of “temporal conditions of validity of residence cards”. - § 20 Abs 4 and § 45 Abs 3 NAG contain rules of that kind but they are not relevant in this context, since they transpose other EC legislation (above all Directive 2003/109/EC) and have a different scope of application. Eventual application by analogy is not an adequate form of transposition.



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der Voraussetzungen schriftlich in Kenntnis zu setzen und ihm mitzuteilen, dass die Fremdenpolizeibehörde hinsichtlich einer möglichen Aufenthaltsbeendigung befasst wurde. Die Fremdenpolizeibehörde ist unverzüglich, spätestens jedoch gleichzeitig mit der Mitteilung an den Antragsteller zu befassen.”

not met and shall inform him that the Aliens Police Authority has been contacted with regard to a possible termination of residence. The Aliens Police Authority shall be contacted without culpable delay, but no later than at the same time as the notification to the applicant.”

Art.12.1 Retention of the right of residence by family members in the event of death or departure of the Union citizen 1. Without prejudice to the second subparagraph, the Union citizen’s death or departure from the host Member State shall not affect the right of residence of his/her family members who are nationals of a Member State. Before acquiring the right of permanent residence, the persons concerned must meet the conditions laid down in points (a), (b), (c) or (d) of Article 7(1).

§ 27 NAG

„§ 27. (1) Familienangehörige mit einer Niederlassungsbewilligung haben bis zum Ablauf des fünften Jahres ein vom Zusammenführenden abgeleitetes Niederlassungsrecht. Das Recht, weiterhin niedergelassen zu sein, bleibt Familienangehörigen erhalten, wenn die Voraussetzungen für den Familiennachzug später als fünf Jahre nach Erteilung der ersten Niederlassungsbewilligung wegfallen. Mit Verlust der Niederlassungsbewilligung des Zusammenführenden in den ersten fünf Jahren geht das Niederlassungsrecht der Familienangehörigen von Gesetzes wegen unter. (2) Abs. 1 gilt nicht, wenn der Familienangehörige aus eigenem in der Lage ist, die Erteilungsvoraussetzungen des § 11 Abs. 2 Z 2 bis 4 zu erfüllen. Die Behörde hat in diesen Fällen eine Niederlassungsbewilligung auszustellen, deren Aufenthaltszweck jedenfalls dem Aufenthaltszweck entspricht, der

“ § 27 (1) Family members with a settlement permit shall have a right of settlement derived from the uniting party until the end of the fifth year. Family members shall continue to be entitled to be settled if the requirements for joining the family cease to apply more than five years after the first settlement permit is granted. If the uniting party loses his settlement permit in the first five years, the family members' right of settlement shall cease to apply as a matter of law. (2) Subsection 1 shall not apply if the family member is in a position in his own right to meet the requirements for a permit to be granted under §11(2)(2) to (4). In these cases, the authority shall issue a settlement permit, the purpose of residence of which shall in any event be in accordance with the purpose of residence which was originally derived from the uniting party or which has meanwhile been acquired. (3) Without prejudice to the

NT

No transposition - As to all the provisions of Art 12 and 13, the ToC Gov exclusively refers to § 27 NAG, either as such or by analogy (“analog”) as the transposing norm. While this provision contains provisions of a similar nature indeed, it cannot be applied, since it transposes other instruments of EC legislation (above all Directive 2003/86/EC) and has thus a different scope of application. Because of this, for instance, also the meaning of the term “family member” is different in this context. With regard to § 27 NAG, the definition of § 52 NAG has no relevance at all, but the general definition of “family members” according to Art 2 Abs 1 Z 9 NAG has to be used which is more restrictive though. Hence, as the provisions of § 27 NAG do no fall within the scope of application of §§ 51 seq. NAG, it is not feasible to analyse them in detail. Moreover, application by analogy is not an adequate form of transposition.



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ursprünglich vom Zusammenführenden abgeleitet oder mittlerweile innegehabt wurde. (3) Unbeschadet der Ableitung einer Niederlassungsbewilligung von Familienangehörigen innerhalb der Frist des Abs. 1 verliert der Familienangehörige die Voraussetzungen für den Aufenthaltszweck seiner Niederlassungsbewilligung nicht: 1. durch Tod des Ehegatten oder des Elternteils; 2. durch Scheidung wegen überwiegenden Verschuldens des anderen Ehegatten oder 3. aus besonders berücksichtigungswürdigen Gründen. (4) Besonders berücksichtigungswürdige Gründe im Sinne des Abs. 3 Z 3 liegen insbesondere vor, wenn der Familienangehörige Opfer von Gewalt in der Familie wurde und gegen den Zusammenführenden eine einstweilige Verfügung nach § 382b EO erlassen wurde oder der Verlust der Niederlassungsbewilligung des Zusammenführenden die Folge einer fremdenpolizeilichen Maßnahme war, die auf Grund der rechtskräftigen Verurteilung des Zusammenführenden wegen vorsätzlicher Begehung einer gerichtlich strafbaren Handlung gesetzt wurde. (5) Zur Wahrung dieses Rechts hat er diese Umstände der

derivation of a settlement permit by family members within the time limit under (1), the family member shall not cease to meet the requirements for the purpose of residence of his settlement permit; 1. as a result of the death of the spouse or the parent; 2. as a result of divorce if the other spouse is mainly at fault, or 3. for reasons which are particularly worthy of consideration. (4) Reasons which are particularly worthy of consideration pursuant to subsection 3(3) shall apply in particular if the family member has been the victim of domestic violence and an interim injunction under §382b EO has been ordered against the uniting party or if the loss of the uniting party's settlement permit was the consequence of action by the aliens police taken on the basis of a final sentence imposed on the uniting party for intentional commission of an offence punishable by the courts. (5) In order to preserve this right, he shall notify the authority of these facts without culpable delay. In these cases, the authority shall issue a settlement permit, the purpose of residence of which is in any event in accordance with the purpose of residence which was

- Furthermore, one could argue (what is not claimed by the ToC Gov in this regard) that there are no rules in the NAG at all providing for the termination of residence after death, departure or divorce in any constellation. Against that background, this would even be a case of Art 37 of the Directive. However, the aforementioned § 55 NAG states that “[i]f there is no documented right of settlement pursuant to §§ 51, 52 and 54 […] because the evidence under § 53 (2) or § 54 (2) is not provided”, the NAG Authority must inform the Aliens Police Authority which will start an expulsion procedure according to § 86 Abs 2 FPG (see Art 15.1). There is no guarantee that the competent authorities would not according to this provision request documentation from family members that there are, for example, related to an employee or self-employed person according to § 51 NAG. That presupposes, however, that this person is still alive. A strict reading of § 55 NAG would permit the authorities in such a constellation to conclude there is no documented right of settlement because the necessary is not (cannot) be provided. This would lead to the termination of the family member’s residence contrary to the provisions of Directive. To claim that the family member’s rights are guaranteed by virtue of the direct effect of the pertinent provisions of the Directive or by the duty to interpret national law according to them, is not an



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§ 2 Abs 1 Z 9 NAG § 52 NAG

Behörde unverzüglich bekannt zu geben. Die Behörde hat in diesen Fällen eine Niederlassungsbewilligung auszustellen, deren Aufenthaltszweck jedenfalls dem Aufenthaltszweck entspricht, der ursprünglich vom Zusammenführenden abgeleitet wurde oder mittlerweile innegehabt wurde.“ „Familienangehöriger: wer Ehegatte oder unverheiratetes minderjähriges Kind, einschließlich Adoptiv- oder Stiefkind, ist (Kernfamilie), wobei die Ehegatten, ausgenommen Ehegatten von Österreichern, EWR-Bürgern und Schweizer Bürgern, das 18. Lebensjahr bereits vollendet haben müssen; lebt im Fall einer Mehrfachehe bereits ein Ehegatte gemeinsam mit dem Zusammenführenden im Bundesgebiet, so sind die weiteren Ehegatten keine anspruchsberechtigten Familienangehörigen zur Erlangung eines Aufenthaltstitels“ „Angehörige von freizügigkeitsberechtigten EWR-Bürgern (§ 51), die selbst EWR-Bürger sind […] wenn sie 1. Ehegatte sind; 2. Verwandter des EWR-Bürgers oder seines Ehegatten in gerader absteigender Linie bis zur Vollendung des 21. Lebensjahres und darüber hinaus sind, sofern

originally derived from the uniting party or which has meanwhile been acquired.” “’family member’ shall mean a person who is a spouse or unmarried minor child, including an adoptive child or a stepchild (core family), where the spouses, with the exception of spouses who are Austrians, EEA citizens and Swiss citizens, must have already reached the age of 18; in the case of a polygamous marriage, if one spouse is already living jointly with the uniting party within the Federal territory, the other spouses are not family members entitled to acquire a residence permit” “Relatives of EEA citizens entitled to freedom of movement (§51) […], who are themselves EEA citizens, shall be entitled to settle if they: 1. are a spouse; 2. are a relative of the EEA citizen or of his spouse in a directly descending line until they reach the age of 21 and

adequate form of transposition.



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ihnen von diesen Unterhalt tatsächlich gewährt wird; 3. Verwandter des EWR-Bürgers oder seines Ehegatten in gerader aufsteigender Linie sind, sofern ihnen von diesen Unterhalt tatsächlich gewährt wird; 4. Lebenspartner sind, der das Bestehen einer dauerhaften Beziehung im Herkunftsstaat nachweist; 5. sonstige Angehörige des EWR-Bürgers sind, a) die vom EWR-Bürger bereits im Herkunftsstaat Unterhalt tatsächlich bezogen haben, b) die mit dem EWR-Bürger bereits im Herkunftsstaat in häuslicher Gemeinschaft gelebt haben, oder c) bei denen schwerwiegende gesundheitliche Gründe die persönliche Pflege zwingend erforderlich machen, und diesen begleiten oder zu ihm nachziehen.“

after that time if they are actually provided with maintenance by them. 3. are a relative of the EEA citizen or his spouse in a directly ascending line, if they are actually provided with maintenance by them; 4. are a partner who can prove the existence of a permanent relationship in the country of origin, 5. are other relatives of the EEA citizen: a) who have already actually received maintenance from the EEA citizen in the country of origin, b) who have been members of the EEA citizen’s household in the country from which they have come, or c) where serious health grounds strictly require personal care, and if they accompany or join him.”

Art.12.2 2. Without prejudice to the second subparagraph, the Union citizen's death shall not entail loss of the right of residence of his/her family members who are not nationals of a Member State and who have been residing in the host Member State as family members for at least one year before the Union citizen's death.

NT

No transposition - see Art 12.1

Before acquiring the right of permanent residence, the right of residence of the persons concerned shall remain subject to the requirement that they are able to show that they are workers or self-employed persons or that they have sufficient

NT




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resources for themselves and their family members not to become a burden on the social assistance system of the host Member State during their period of residence and have comprehensive sickness insurance cover in the host Member State, or that they are members of the family, already constituted in the host Member State, of a person satisfying these requirements. ‘Sufficient resources’ shall be as defined in Article 8(4).

Such family members shall retain their right of residence exclusively on a personal basis.

NT


Art.12.3 3. The Union citizen's departure from the host Member State or his/her death shall not entail loss of the right of residence of his/her children or of the parent who has actual custody of the children, irrespective of nationality, if the children reside in the host Member State and are enrolled at an educational establishment, for the purpose of studying there, until the completion of their studies.

NT


Art.13.1 Retention of the right of residence by family members in the event of divorce, annulment of marriage or termination of registered partnership 1. Without prejudice to the second subparagraph, divorce, annulment of the Union citizen's marriage or termination of his/her registered partnership, as referred to in point 2(b) of Article 2 shall not affect the right of residence of his/her family members who are nationals of a Member State.

NT


Before acquiring the right of permanent residence, the persons concerned must meet the conditions laid down in points

NT




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(a), (b), (c) or (d) of Article 7(1). Art.13.2 (a)

2. Without prejudice to the second subparagraph, divorce, annulment of marriage or termination of the registered partnership referred to in point 2(b) of Article 2 shall not entail loss of the right of residence of a Union citizen's family members who are not nationals of a Member State where: (a) prior to initiation of the divorce or annulment proceedings or termination of the registered partnership referred to in point 2(b) of Article 2, the marriage or registered partnership has lasted at least three years, including one year in the host Member State; or

NT


Art.13.2 (b)

(b) by agreement between the spouses or the partners referred to in point 2(b) of Article 2 or by court order, the spouse or partner who is not a national of a Member State has custody of the Union citizen's children; or

NT


Art.13.2 (c)

(c) this is warranted by particularly difficult circumstances, such as having been a victim of domestic violence while the marriage or registered partnership was subsisting; or

NT


Art.13.2 (d)

d) by agreement between the spouses or partners referred to in point 2 (b) of Article 2 or by court order, the spouse or partner who is not a national of a Member State has the right of access to a minor child, provided that the court has ruled that such access must be in the host Member State, and for as long as is required.

NT


Before acquiring the right of permanent residence, the right of residence of the persons concerned shall remain subject to the requirement that they are able to show that they are workers or self-employed

NT




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persons or that they have sufficient resources for themselves and their family members not to become a burden on the social assistance system of the host Member State during their period of residence and have comprehensive sickness insurance cover in the host Member State, or that they are members of the family, already constituted in the host Member State, of a person satisfying these requirements. 'Sufficient resources' shall be as defined in Article 8(4).

Such family members shall retain their right of residence exclusively on personal basis.

NT


Art.14.1 Retention of the right of residence Union citizens and their family members shall have the right of residence provided for in Article 6, as long as they do not become an unreasonable burden on the social assistance system of the host Member State.

§ 55 Abs 1 NAG “Besteht das gemäß §§ 51, 52 und 54 dokumentierte Niederlassungsrecht nicht, […] weil die Nachweise nach § 53 Abs 2 oder § 54 Abs 2 nicht erbracht werden, hat die Behörde den Antragsteller vom Nichtvorliegen der Voraussetzungen schriftlich in Kenntnis zu setzen und ihm mitzuteilen, dass die Fremdenpolizeibehörde hinsichtlich einer möglichen Aufenthaltsbeendigung befasst wurde. Die Fremdenpolizeibehörde ist unverzüglich, spätestens jedoch gleichzeitig mit der Mitteilung an den Antragsteller zu befassen.”

“If there is no documented right of settlement pursuant to §§51, 52 and 54 because […] the evidence under §53(2) or §54(2) is not provided, the authority shall give the applicant written notice that the requirements are not met and shall inform him that the Aliens Police Authority has been contacted with regard to a possible termination of residence. The Aliens Police Authority shall be contacted without culpable delay, but no later than at the same time as the notification to the applicant.”

NT

No transposition - In this context, the ToC Gov explicitly refers to § 55 NAG. However, the abovementioned reasoning (see Art 12.1) is also valid here. Due to lack of transposition of Art 12 and 13 it is not clear whether the authorities would refer to § 55 NAG in order to initiate an expulsion procedure on the basis of the claim that the main beneficiary is not existent or present any more.

Art.14.2 2. Union citizens and their family Members shall have the right of residence provided for in Articles 7, 12 and 13 as long as they meet the conditions set out therein.

NT


In specific cases where there is a reasonable doubt as to whether a Union citizen or his/her family members

NT




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satisfies the conditions set out in Articles 7, 12 and 13, Member States may verify if these conditions are fulfilled. This verification shall not be carried out systematically.

Art.14.3 3. An expulsion measure shall not be the automatic consequence of a Union citizen's or his or her family member's recourse to the social assistance system of the host Member State.

NT

No transposition - see Art 14.1 - There is no particular provision guaranteeing that, in practice, there is no automatism between recourse to the social assistance system and start of an expulsion procedure.

Art.14.4 (a)

4. By way of derogation from paragraphs 1 and 2 and without prejudice to the provisions of Chapter VI, an expulsion measure may in no case be adopted against Union citizens or their family members if: (a) the Union citizens are workers or self-employed persons, or

NT

No transposition - see Art 12.1 and 14.1 - Furthermore, it is not clear whether workers and self-employed persons in the broad meaning given to the terms by Art 7.3 and 7.4 of the Directive would be covered by this special protection against expulsion measures.

Art.14.4 (b)

(b) the Union citizens entered the territory of the host Member State in order to seek employment. In this case, the Union citizens and their family members may not be expelled for as long as the Union citizens can provide evidence that they are continuing to seek employment and that they have a genuine chance of being engaged.

NT

No transposition - The special situation of jobseekers is not mentioned at all. - See also Art 12.1 and 14.1.

Art.15.1 Procedural safeguards The procedures provided for by Articles 30 and 31 shall apply by analogy to all decisions restricting free movement of Union citizens and their family members on grounds other than public policy, public security or public health.

§ 55 Abs 1 NAG

“Besteht das gemäß §§ 51, 52 und 54 dokumentierte Niederlassungsrecht nicht, […] weil die Nachweise nach § 53 Abs 2 oder § 54 Abs 2 nicht erbracht werden, hat die Behörde den Antragsteller vom Nichtvorliegen der Voraussetzungen schriftlich in Kenntnis zu setzen und ihm mitzuteilen, dass die

“If there is no documented right of settlement pursuant to §§51, 52 and 54 because […] the evidence under §53(2) or §54(2) is not provided, the authority shall give the applicant written notice that the requirements are not met and shall inform him that the Aliens Police Authority has been contacted with regard

N Incomplet

e

Incomplete transposition: - Under the regime of the NAG, in order to restrict free movement on grounds other than public policy, public security or public health (e.g. due to the lack of sufficient resources), the competent authorities do not decide on the existence or not of a right to residence themselves. In those cases, in view of § 55 Abs 1



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§ 86 Abs 2 FPG § 58 Abs 2 AVG § 60 AVG § 61 Abs 1 AVG

Fremdenpolizeibehörde hinsichtlich einer möglichen Aufenthaltsbeendigung befasst wurde. Die Fremdenpolizeibehörde ist unverzüglich, spätestens jedoch gleichzeitig mit der Mitteilung an den Antragsteller zu befassen.” „EWR-Bürger, Schweizer Bürger und begünstigte Drittstaatsangehörige sind dann auszuweisen, wenn ihnen aus den Gründen des § 55 Abs 1 NAG das Niederlassungsrecht fehlt.“ „Bescheide sind zu begründen, wenn dem Standpunkt der Partei nicht vollinhaltlich Rechnung getragen oder über Einwendungen oder Anträge von Beteiligten abgesprochen wird.“ „In der Begründung sind die Ergebnisse des Ermittlungsverfahrens, die bei der Beweiswürdigung maßgebenden Erwägungen und die darauf gestützte Beurteilung der Rechtsfrage klar und übersichtlich zusammenzufassen.“ „Die Rechtsmittelbelehrung hat anzugeben, ob der Bescheid noch einem weiteren Rechtszug unterliegt oder nicht und bejahendenfalls, innerhalb

to a possible termination of residence. The Aliens Police Authority shall be contacted without culpable delay, but no later than at the same time as the notification to the applicant.” “EEA citizens, Swiss citizens and favoured third country nationals shall be expelled if they do not have the right of settlement for the reasons set out in §55(1) NAG.” „Whenever the point of view of the party is not fully shared or decisions are taken on objections or submissions of persons involved, the reasons therefore shall be stated in the ruling.“ „The reasons given for the decision shall summarize the results of the investigation procedure, the arguments determining the evaluation of the evidence and the opinion on the legal issue in a clear and concise manner.“ “The instructions on the right to appeal shall indicate whether the ruling may be appealed or not, and, in the affirmative case, it shall also indicate the authority

NAG, they have to contact the Aliens Police Authority which must, if the conditions are met, start an expulsion procedure according to § 86 Abs 2 FPG (see Art 12.1). Hence, in such constellations, the regime of the FPG applies to decisions restricting free movement for non-public policy/security or health reasons. - However, there are also decisions of the NAG authorities restricting free movement, at least the decision not to issue a registration certificate or (permanent) residence card (see also Workshop Summary, p 10). In those cases, the NAG regime is to be applied. - However, both laws are, as far as procedural law is concerned, largely based on the provisions of the AVG, subject to special norms in the laws themselves. The AVG norms cover a substantial part of the procedural safeguards provided by Art 30 and 31 of the Directive and to be applied by analogy to all decisions restricting free movement of Union citizens and their family members on grounds other than public policy, public security, according to its Art 15. However, there remain relevant problems some of which are mentioned here: - According to § 62 AVG rulings can also be issued orally. While a party can always request a written copy



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§ 62 Abs 1 - 3 AVG § 63 Abs 1 AVG

welcher Frist und bei welcher Behörde das Rechtsmittel einzubringen ist. Sie hat ferner auf die gesetzlichen Erfordernisse der Bezeichnung des angefochtenen Bescheides und eines begründeten Rechtsmittelantrages hinzuweisen.“ „(1) Wenn in den Verwaltungsvorschriften nicht anderes bestimmt ist, können Bescheide sowohl schriftlich als auch mündlich erlassen werden. (2) Der Inhalt und die Verkündung eines mündlichen Bescheides ist, wenn die Verkündung bei einer mündlichen Verhandlung erfolgt, am Schluß der Verhandlungsschrift, in anderen Fällen in einer besonderen Niederschrift zu beurkunden. (3) Eine schriftliche Ausfertigung des mündlich verkündeten Bescheides ist den bei der Verkündung nicht anwesenden und jenen Parteien zuzustellen, die spätestens drei Tage nach der Verkündung eine Ausfertigung verlangen; über dieses Recht ist die Partei bei Verkündung des mündlichen Bescheides zu belehren.“ „Der Instanzenzug und das Recht zur Einbringung der Berufung und sonstiger Rechtsmittel (Vorstellung) richten sich, abgesehen von den in diesem Bundesgesetz besonders

and the deadline for submission such appeal. It shall also indicate the legal prerequisites, i.e. the designation of the ruling contested and the grounds for the appeal.” “(1) If the administrative rules and regulations do not provide otherwise, rulings may be issued both in writing as well as orally. (2) The contents and the pronouncement of a ruling issued orally, provided that it was pronounced in the course of an oral hearing, shall be recorded in the final part of the written minutes of the hearing, in other cases in separate written minutes. (3) A written copy of the ruling pronounced orally shall be delivered to parties not present when it was pronounced and to such parties who so request at the latest within three days of the pronouncement; the party shall be given information on this right on occasion of the pronouncement of the oral ruling.“ „The stages of appeal and the right to lodge an appeal and other remedies (representation) are governed by the administrative rules and regulations, unless covered by

(para 3), this does not conform to Art 30.1 of the Directive which requires written notification without exception. - Concerning the content of the notification, according to §§ 60 & 62 AVG there exists a duty to state the reasons for a decision which is comprehensive and explicitly require for giving the reasons “in a clear and concise manner” (see Art 30.1 and 30.2). - The instructions on the right to appeal must include, according to § 61 AVG, information on i) the competent authority, ii) the deadline for the submission of the appeal as well as iii) the legal prerequisites for the appeal (Art 30.3). - With regard to the right of appeal itself, according to § 63 AVG, is governed by the administrative rules unless covered by provisions for special cases in the subject federal act (see § 3 Abs 2 NAG). - The appeals filed in due time normally have suspensive effect but it can be excluded (§ 62 Abs 2 AVG). This can be problematic in view of Art 31.2 of the Directive. - Concerning Art 31.3, the appellate authority has, on the basis of § 64 AVG, a comprehensive right and duty to check the whole case as well on the level of facts as of law.



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§ 64 AVG § 66 AVG

geregelten Fällen, nach den Verwaltungsvorschriften.“ „(1) Rechtzeitig eingebrachte Berufungen haben aufschiebende Wirkung. (2) Die Behörde kann die aufschiebende Wirkung ausschließen, wenn die vorzeitige Vollstreckung im Interesse einer Partei oder des öffentlichen Wohles wegen Gefahr im Verzug dringend geboten ist. Ein solcher Ausspruch ist tunlichst schon in den über die Hauptsache ergehenden Bescheid aufzunehmen.“ „(1) Notwendige Ergänzungen des Ermittlungsverfahrens hat die Berufungsbehörde durch eine im Instanzenzug untergeordnete Behörde durchführen zu lassen oder selbst vorzunehmen. (2) Ist der der Berufungsbehörde vorliegende Sachverhalt so mangelhaft, daß die Durchführung oder Wiederholung einer mündlichen Verhandlung unvermeidlich erscheint, so kann die Berufungsbehörde den angefochtenen Bescheid beheben und die Angelegenheit zur neuerlichen Verhandlung und Erlassung eines neuen Bescheides an eine im Instanzenzug untergeordnete Behörde zurückverweisen. (3) Die Berufungsbehörde kann jedoch die mündliche

provisions for special cases in the subject federal act.” „(1) Appeals filed in due time have suspensive effect. (2) The authority may exclude the suspensive effect if early enforcement is in the interest of a party or for the common good because of imminent danger. It is recommendable to include a statement to this effect already in the ruling given on the main issue.” “(1) Additional investigation which may be necessary shall be carried out by an authority of lower instance upon instruction by the appellate authority or by the appellate authority itself. (2) If the facts of a case presented to the authority are incomplete to an extent that implementation or a repetition of an oral hearing is deemed unavoidable, the appellate authority may repeal the contested ruling and remand the subject matter to an authority of lower instance for a new hearing and for issue of a new ruling. (3) The appellate authority however may hear the case and take evidence itself if such procedure would save time and costs.



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§ 3 Abs 2 NAG i.c.w. Art 2 Abs 1 & Abs 2 lit A Z 1 & 2 EGVG i.c.w. § 3 NAG

Verhandlung und unmittelbare Beweisaufnahme auch selbst durchführen, wenn hiemit eine Ersparnis an Zeit und Kosten verbunden ist. (4) Außer dem in Abs. 2 erwähnten Fall hat die Berufungsbehörde, sofern die Berufung nicht als unzulässig oder verspätet zurückzuweisen ist, immer in der Sache selbst zu entscheiden. Sie ist berechtigt, sowohl im Spruch als auch hinsichtlich der Begründung (§ 60) ihre Anschauung an die Stelle jener der Unterbehörde zu setzen und demgemäß den angefochtenen Bescheid nach jeder Richtung abzuändern.“ „Über Berufungen gegen die Entscheidungen des Landeshauptmannes entscheidet der Bundesminister für Inneres.“ [see Art 3.2 (b)]

(4) Except for the case stated in para 2, the appellate authority shall always decide the matter directly, unless the appeal is rejected as inadmissible or late. It is authorised to replace the opinion of the lower instance authority by its own opinion, both with regard to the decision as well as the reasons (§60) and modify the contested ruling accordingly in any way.” “Appeals against the decisions of the state governor shall be decided by the Federal Minister for the Interior.”

Art.15.2 2. Expiry of the identity card or passport on the basis of which the person concerned entered the host Member State and was issued with a registration certificate or residence card shall not constitute a ground for expulsion from the host Member State.

Y Effective transposition There are no grounds for deportation in this respect. As shown in Art.15(1) the reasons for expulsion are those listed in 55 Abs 1 NAG which does include expiry of ID or passport but rather failure to provide the necessary evidence to proof the existence of the right of settlement.

Art.15.3 3. The host Member State may not impose a ban on entry in the context of an expulsion decision to which paragraph 1 applies.

§ 73 Abs 1 FPG

“Fremde, die berechtigt sind, ohne Visum in das Bundesgebiet einzureisen und sich in diesem aufzuhalten, bedürfen mit

“Aliens who are entitled to enter and reside in the Federal territory without a visa shall, with the exception of the cases

Y Effective transposition The FPG allows the entry with a special permit. The requirement of a special permit is the average



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Ausnahme der Fälle der §§ 21 Abs. 8 und 30 Abs. 1 für den Zeitraum eines Jahres nach […] einer Ausweisung zur Einreise in das Bundesgebiet und zum Aufenthalt in diesem einer besonderen Bewilligung.“ „Drittstaatsangehörige, die auf Grund eines Staatsvertrages, eines Bundesgesetzes oder eines unmittelbar anwendbaren Rechtsaktes der Europäischen Union zwar Niederlassungsfreiheit aber nicht Sichtvermerksfreiheit genießen, haben nach Maßgabe dieses Staatsvertrages, Bundesgesetzes oder Rechtsaktes Anspruch auf Erteilung eines Visums.“ „Fremde, die auf Grund allgemein anerkannter Regeln des Völkerrechts, eines Staatsvertrages, eines Bundesgesetzes oder eines unmittelbar anwendbaren Rechtsaktes der Europäischen Union in Österreich Sichtvermerks- und Niederlassungsfreiheit genießen, benötigen zur Einreise in das Bundesgebiet kein Visum.“

covered by §§21(8) and 30(1), require a special permit to enter and reside in the Federal territory for a period of one year […] following an expulsion .” “Nationals of third countries who, on the basis of a national treaty, a Federal Act or a directly applicable legal instrument of the European Union enjoy freedom to settle but not freedom from the visa requirement shall be entitled to have a visa granted in accordance with such national treaty, Federal Act or legal instrument.” “Aliens who, on the basis of generally recognised rules of international law, a state treaty, a Federal Act or a directly applicable legal instrument of the European Union, enjoy visa exceptions and freedom of settlement in Austria, require no visa for the purpose of entering the Federal territory.

consequence of an expulsion but there are two crucial exceptions where no special permit is required. These are the cases covered by §§21(8) and 30(1) FPG. § 21(8) FPG refers to nationals of third countries who are required to have a visa but entitled to have a visa granted. § 30(1) refers to aliens who require no visa for entering Austria. Therefore I would say that the transposition is effective but not very clear.

Chapter IV RIGHT OF PERMANENT RESIDENCE Section I. Eligibility Art.16.1 General rule for Union citizens and

their family members 1. Union citizens who have resided legally for a continuous period of five years in the host Member State shall have

§ 9 NAG

“(1) Zur Dokumentation eines gemeinschaftsrechtlichen Aufenthalts- und Niederlassungsrechts werden 1. für EWR-Bürger, die sich in

“(1) The following shall be issued in order to document a right of residence and settlement under Community law: 1. in the case of EEA citizens

NT No transposition - The ToC Gov solely refers to §§ 9, 53 and 54 NAG as transposing norms for Art 16, 17 and 18 of the Directive. However, those latter are



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the right of permanent residence there. This right shall not be subject to the conditions provided for in Chapter III.

§ 53 NAG

Österreich niedergelassen haben, über Antrag eine Anmeldebescheinigung (§ 53) und 2. für Angehörige von EWR-Bürgern, die Drittstaatsangehörige sind, über Antrag eine ‚Daueraufenthaltskarte’ (§ 54), wenn der EWR-Bürger das Recht auf Freizügigkeit in Anspruch genommen hat, ausgestellt.” (2) Inhaber von Anmeldebescheinigungen kann auf Antrag ein „Lichtbildausweis für EWR-Bürger“ ausgestellt werden. Der Lichtbildausweis für EWR-Bürger und die Daueraufenthaltskarte gelten als Identitätsdokument. Form und Inhalt der Anmeldebescheinigung, des Lichtbildausweises für EWR-Bürger und der Daueraufenthaltskarte legt der Bundesminister für Inneres durch Verordnung fest.“ „(1) EWR-Bürger, die ihr Recht auf Freizügigkeit in Anspruch nehmen, und deren Angehörige gemäß § 52 haben, wenn sie sich länger als drei Monate im Bundesgebiet aufhalten, spätestens nach Ablauf von drei Monaten ab ihrer Niederlassung diese der Behörde anzuzeigen. Bei Vorliegen der Voraussetzungen (§§ 51 oder 52) ist von der Behörde auf Antrag eine Anmeldebescheinigung auszustellen. Diese gilt zugleich als Dokument zur Bescheinigung des

who have settled in Austria, a "reporting certificate" (§53) shall be issued on application, and 2. in the case of relatives of EEA citizens who are third country nationals, a "permanent residence card" (§54) shall be issued on application if the EEA citizen has claimed the right to freedom of movement. (2) Holders of reporting certificates may on application be issued with a "photo identity card for EEA citizens". The photo identity card for EEA citizens and the permanent residence card constitute an identity document. The Federal Minister of the Interior shall by regulation determine the form and content of the reporting certificate, the photo identity card for EEA citizens and the permanent residence card. “(1) EEA citizens who are claiming their right to freedom of movement and their relatives under §52 shall, if they are resident within the Federal territory for more than three months, notify the authority of their settlement no later than three months after settling. If the requirements (§§51 or 52) are met, the authority shall on application issue a reporting certificate. This shall at the same time constitute a document certifying the permanent residence of the EEA citizen.

material provisions providing for the right of permanent residence while §§ 9, 53 and 54 NAG are procedural provisions (concerning, if at all, Art 19 and 20; see there). - The conception of the NAG is that if the conditions of the right of residence for more than three months (Art 7) are fulfilled, then the right of permanent residence (Art 16 seq) will come into existence simultaneously. This is probably to be derived from the standard wording “shall be entitled to settle”/“zur Niederlassung berechtigt” applied in this context, since “settlement”/”Niederlassung” in the Austrian conception stands for a (potentially) unlimited right to stay; see Art 7.1 (a). This is also supported by the use of identical means of documentation for the first five years and the time afterwards (see Art 19). From the Austrian point of view, this way of transposition would even be a case of more favourable treatment under Art 37. - However, this raises again the problem of § 55 Abs 1 NAG (see Art 12.1). The fundamental right of permanent residence to which the Directive devotes a special Chapter (for its essential character see also recital 17 and Art 1 lit b of the Directive) cannot be transposed by means of a provision which essence is not to provide for reasons to terminate the right to residence. This would be a merely negative and implicit transposition which leaves the special legal status conceded to persons having acquired the right of



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Daueraufenthalts des EWR-Bürgers. (2) Zum Nachweis des Rechts sind ein gültiger Personalausweis oder Reisepass sowie 1. nach § 51 Z 1 eine Bestätigung des Arbeitgebers oder ein Nachweis der Selbständigkeit; 2. nach § 51 Z 2 Nachweise über eine ausreichende Krankenversicherung und über ausreichende Existenzmittel; 3. nach § 51 Z 3 Nachweise über eine ausreichende Krankenversicherung und über die Zulassung zu einer Schule oder Bildungseinrichtung sowie eine Erklärung oder sonstige Dokumente über ausreichende Existenzmittel; 4. nach § 52 Z 1 ein urkundlicher Nachweis des Bestehens der Ehe; 5. nach § 52 Z 2 und 3 ein urkundlicher Nachweis über das Bestehen einer familiären Beziehung sowie bei Kindern ab Vollendung des 21. Lebensjahres und Verwandten des EWR-Bürgers oder seines Ehegatten in gerader aufsteigender Linie ein Nachweis über die tatsächliche Unterhaltsgewährung; 6. nach § 52 Z 4 ein Nachweis des Bestehens einer dauerhaften Beziehung mit dem EWR-Bürger im Herkunftsstaat; 7.nach § 52 Z 5 ein urkundlicher Nachweis einer zuständigen Behörde des Herkunftsstaates der Unterhaltsleistung des EWR-Bürgers oder des Lebens in

(2) In order to prove the right, a valid personal identity card or passport shall be submitted, together with: 1. under §51(1), confirmation from the employer or proof of self-employment; 2. under §51(2), evidence of sufficient sickness insurance cover and sufficient resources; 3. under §51(3), evidence of sufficient sickness insurance cover and evidence of admission to a school or educational establishment and a declaration or other documents relating to sufficient resources; 4. under §52(1), documentary proof of the existence of the marriage; 5. under §52(2) and (3), documentary evidence of the existence of a family relationship and, in the case of children who have reached the age of 21 and relatives of the EEA citizen or his spouse in directly ascending line, evidence of the actual provision of maintenance; 6. under §52(4) evidence of the existence of a permanent relationship with the EEA citizen in the country of origin; 7. under §52(5), documentary evidence from a competent authority in the country of origin of the payment of maintenance by the EEA citizen or of being member of the EEA citizen’s household, or evidence of the

permanent residence (see, for instance, the inapplicability of the restrictions of Chapter III according to Art 16.1) highly unclear. There is the same kind of document for residence and permanent residence for EU members. This could lead to confusion indeed whether the conditions of Chapter III must be met or not. - There can be no reference to § 45 NAG since this provision transposes other parts of EC legislation and has a different scope of application.



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§ 54 NAG § 55 Abs 1 NAG

häuslicher Gemeinschaft oder der Nachweis der schwerwiegenden gesundheitlichen Gründe, die die persönliche Pflege durch den EWR-Bürger zwingend erforderlich machen, vorzulegen.“ „(1) Angehörige von freizügigkeitsberechtigten EWR-Bürgern (§ 51), die nicht EWR-Bürger sind und die die in § 52 Z 1 bis 3 genannten Voraussetzungen erfüllen, sind zur Niederlassung berechtigt. Ihnen ist auf Antrag eine Daueraufenthaltskarte für die Dauer von zehn Jahren auszustellen. Dieser Antrag ist spätestens nach Ablauf von drei Monaten ab ihrer Niederlassung zu stellen. (2) Zum Nachweis des Rechts sind ein gültiger Personalausweis oder Reisepass sowie 1. nach § 52 Z 1 ein urkundlicher Nachweis des Bestehens der Ehe; 2. nach § 52 Z 2 und 3 ein urkundlicher Nachweis über das Bestehen einer familiären Beziehung sowie bei Kindern über 21 Jahren und Verwandten des EWR-Bürgers oder seines Ehegatten in gerader aufsteigender Linie ein Nachweis über die tatsächliche Unterhaltsgewährung vorzulegen.“ “Besteht das gemäß §§ 51, 52 und 54 dokumentierte Niederlassungsrecht nicht, […]

serious health grounds which strictly require personal care by the EEA citizen.” “(1) Relatives of EEA citizens entitled to freedom of movement (§51) who are not EEA citizens and who meet the requirements referred to in §52(1) to (3) shall be entitled to settlement. They shall on application be issued with a permanent residence card for a period of ten years. This application shall be made no later than three months from the date of their settlement. (2) In order to prove the right, a valid personal identity card or passport shall be submitted, together with: 1. under §52(1), documentary evidence of the existence of the marriage; 2. under §52(2) and (3), documentary evidence of the existence of a family relationship and, in the case of children who have reached the age of 21 and relatives of the EEA citizen or his spouse in directly ascending line, evidence of the actual provision of maintenance.” “If there is no documented right of settlement pursuant to §§51, 52 and 54 because […] the



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weil die Nachweise nach § 53 Abs 2 oder § 54 Abs 2 nicht erbracht werden, hat die Behörde den Antragsteller vom Nichtvorliegen der Voraussetzungen schriftlich in Kenntnis zu setzen und ihm mitzuteilen, dass die Fremdenpolizeibehörde hinsichtlich einer möglichen Aufenthaltsbeendigung befasst wurde. Die Fremdenpolizeibehörde ist unverzüglich, spätestens jedoch gleichzeitig mit der Mitteilung an den Antragsteller zu befassen.”

evidence under §53(2) or §54(2) is not provided, the authority shall give the applicant written notice that the requirements are not met and shall inform him that the Aliens Police Authority has been contacted with regard to a possible termination of residence. The Aliens Police Authority shall be contacted without culpable delay, but no later than at the same time as the notification to the applicant.”

Art.16.2 2. Paragraph 1 shall apply also to family members who are not nationals of a Member State and have legally resided with the Union citizen in the host Member State for a continuous period of five years.

NT No transposition - see Art 16.1

Art.16.3 3. Continuity of residence shall not be affected by temporary absences not exceeding a total of six months a year, or by absences of a longer duration for compulsory military service, or by one absence of a maximum of 12 consecutive months for important reasons such as pregnancy and childbirth, serious illness, study or vocational training, or a posting in another Member State or a third country.


Art.16.4 4. Once acquired, the right of permanent residence shall be lost only through absence from the host Member State for a period exceeding two consecutive years.


Art.17.1 (a)

Exemptions for persons no longer working in the host Member State and their family members 1. By way of derogation from Article 16,




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the right of permanent residence in the host Member State shall be enjoyed before completion of a continuous period of five years of residence by: (a) workers or self-employed persons who, at the time they stop working, have reached the age laid down by the law of that Member State for entitlement to an old age pension or workers who cease paid employment to take early retirement, provided that they have been working in that Member State for at least the preceding twelve months and have resided there continuously for more than three years.

If the law of the host Member State does not grant the right to an old age pension to certain categories of self-employed persons, the age condition shall be deemed to have been met once the person concerned has reached the age of 60;


Art.17.1 (b)

(b) workers or self-employed persons who have resided continuously in the host Member State for more than two years and stop working there as a result of permanent incapacity to work. If such incapacity is the result of an accident at work or an occupational disease entitling the person concerned to a benefit payable in full or in part by an institution in the host Member State, no condition shall be imposed as to length of residence;


Art.17.1 (c)

(c) workers or self-employed persons who, after three years of continuous employment and residence in the host Member State, work in an employed or self-employed capacity in another Member State, while retaining their place of residence in the host Member State, to which they return, as a rule, each day or




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at least once a week. For the purposes of entitlement to the

rights referred to in points (a) and (b), periods of employment spent in the Member State in which the person concerned is working shall be regarded as having been spent in the host Member State.


Periods of involuntary unemployment duly recorded by the relevant employment office, periods not worked for reasons not of the person's own making and absences from work or cessation of work due to illness or accident shall be regarded as periods of employment.


Art.17.2 2. The conditions as to length of residence and employment laid down in point (a) of paragraph 1 and the condition as to length of residence laid down in point (b) of paragraph 1 shall not apply if the worker's or the self-employed person's spouse or partner as referred to in point 2(b) of Article 2 is a national of the host Member State or has lost the nationality of that Member State by marriage to that worker or self-employed person.


Art.17.3 3. Irrespective of nationality, the family members of a worker or a self-employed person who are residing with him in the territory of the host Member State shall have the right of permanent residence in that Member State, if the worker or self-employed person has acquired himself the right of permanent residence in that Member State on the basis of paragraph 1.


Art.17.4 (a)

4. If, however, the worker or self-employed person dies while still working but before acquiring permanent residence




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status in the host Member State on the basis of paragraph 1, his family members who are residing with him in the host Member State shall acquire the right of permanent residence there, on condition that: (a) the worker or self-employed person had, at the time of death, resided continuously on the territory of that Member State for two years; or

Art.17.4 (b)

(b) the death resulted from an accident at work or an occupational disease; or


Art.17.4 (c)

(c) the surviving spouse lost the nationality of that Member State following marriage to the worker or self-employed person.


Art.18 Acquisition of the right of permanent residence by certain family members who are not nationals of a Member State. Without prejudice to Article 17, the family members of a Union citizen to whom Articles 12(2) and 13(2) apply, who satisfy the conditions laid down therein, shall acquire the right of permanent residence after residing legally for a period of five consecutive years in the host Member State.

NT No transposition - see Art 12.1 and 16.1

Chapter IV RIGHT OF PERMANENT RESIDENCE Section I. Administrative formalities Art.19.1 Document certifying permanent

residence for Union citizens 1. Upon application Member States shall issue Union citizens entitled to permanent residence, after having verified duration of residence, with a document certifying permanent residence.

§ 53 Abs 1 UAbs 2 NAG Anlage B zu 3 NAG-DV

“[Die Anmeldebescheinigung] gilt zugleich als Dokument zur Bescheinigung des Daueraufenthalts des EWR-Bürgers.” „Diese Anmeldebescheinigung gilt für EWR-Bürger/-innen und

“[The reporting certificate] shall at the same time constitute a document certifying the permanent residence of the EEA citizen.” “The registration certificate is valid for EEA citizens who are

NT No direct transposition - Since Austrian legislation does not provide for a specific (material) legal status of permanent residence (see Art 16.1), there is no specific document certifying this legal status. In contrast, § 53 NAG applies a legal fiction and declares the registration



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§ 9 Abs 1 Z 1 NAG § 9 Abs 2 NAG §§ 3 & 4 NAG-DV

deren Angehörige, die ihr Recht auf Freizügigkeit in Anspruch genommen haben. Sie ist zugleich das Dokument zur Bescheinigung des Daueraufenthalts (Richtlinie 2004/38/EG, ABl Nr L 158 vom 30.4.2004, S 77 idF ABl Nr L 229 vom 29.6.2004.“ [siehe Beilage: Anlage B] “Zur Dokumentation eines gemeinschaftsrechtlichen Aufenthalts- und Niederlassungsrechts werden 1. für EWR-Bürger, die sich in Österreich niedergelassen haben, über Antrag eine ‘Anmeldebescheinigung’ (§ 53) […] ausgestellt.” „Inhabern von Anmeldebescheinigungen kann auf Antrag ein ‚Lichtbildausweis für EWR-Bürger’ ausgestellt werden. Der Lichtbildausweis für EWR-Bürger […] [gilt] als Identitätsdokument. Form und Inhalt der Anmeldebescheinigung, des Lichtbildausweises für EWR-Bürger […] legt der Bundesminister für Inneres durch Verordnung fest.“ „§ 3. Anmeldebescheinigungen für freizügigkeitsberechtigte EWR-Bürger […] sind nach dem Muster der Anlage B auszustellen. § 4. Lichtbildausweise für EWR-Bürger (§ 9 Abs 2 NAG) sind als Karten nach dem Muster der Anlage C auszustellen.“

claiming their right to freedom of movement. It constitutes at the same time the document certifying the permanent residence of the EEA citizen (Directive 2004/38/EC).” [see enclosure: Annex B] “The following shall be issued in order to document a right of residence and settlement under Community law: 1. in the case of EEA citizens who have settled in Austria, a "reporting certificate" (§53) shall be issued on application” Holders of reporting certificates may on application be issued with a "photo identity card for EEA citizens". The photo identity card for EEA citizens […] constitute an identity document. The Federal Minister of the Interior shall by regulation determine the form and content of the reporting certificate, the photo identity card for EEA citizens […]. “§ 3. Registration certificates for EEA citizens who are claiming their right to freedom of movement are to be issued according to the sample in Annex B. § 4. Photo identity cards for EEA citizens (§ 9 Abs 2 NAG)

certificate to serve as a document certifying permanent residence. Austria interprets this way to proceed once again as a case of more favourable treatment under Art 37 of the Directive, since a Union citizen gets a confirmation of his/her right to permanent residence already when obtaining the registration certificate; see RV (§ 53 NAG) in this regard. It is doubtful though whether this can be considered a transposition of this provision of the Directive because it could be argued that the Directive requires the creation of a specific document certifying a Union citizen’s permanent residence. - The duty to issue a document (“shall issue”) is transposed; see “shall be issued” in §§ 9, 53 NAG - The Austrian prerequisite “on application” is directly covered by the provision of the Directive. - There is no transposition of a duty to verify the duration of the part of the authorities (as a consequence of Austria’s decision not to apply a formal procedure at all). However, this should be fine in the light of Art 37 of the Directive.



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§ 53 Z 1 NAG § 73 Abs 1 AVG i.c.w. Art 2 Abs 1 & Abs 2 lit A Z 1 & 2 EGVG i.c.w. § 3 NAG § 77 Abs 1 Z 5 NAG

[siehe Beilage: Anlagen B & C] „[…] haben […] spätestens nach Ablauf von drei Monaten ab ihrer Niederlassung diese der Behörde anzuzeigen. Bei Vorliegen der Voraussetzungen (§§ 51 oder 52) ist von der Behörde auf Antrag eine Anmeldebescheinigung auszustellen.“ „Die Behörden sind verpflichtet, wenn in den Verwaltungsvorschriften nichts anderes bestimmt ist, über Anträge von Parteien […] ohne unnötigen Aufschub, spätestens aber sechs Monate nach deren Einlangen den Bescheid zu erlassen.“ [see Art 3.2 (b)] „Wer […] eine Anmeldebescheinigung […] nach § 53 […] nicht rechtzeitig beantragt, begeht eine Verwaltungsübertretung und ist mit Geldstrafe bis zu 200 Euro zu bestrafen.“

are to be issued as cards according the sample in Appendix C.” [see enclosure: Annexes B & C] “[…] shall, […], notify the authority of their settlement no later than three months after settling. If the requirements (§§51 or 52) are met, the authority shall on application issue a reporting certificate. “ “Unless provided differently in the administrative rules and regulations, the authorities are obligated to issue a ruling on submissions of parties (§8) and appeals without undue delay , however at the latest within six months after receipt.” [see Art 3.2 (b)] [see enclosure: Appendix B & C] “Any person who fails to apply at the proper time for a reporting certificate […] under §§53 and 54, shall commit an administrative misdemeanour and be liable to a fine of up to €200.”

Art.19.2 2. The document certifying permanent residence shall be issued as soon as possible.

§ 73 Abs 1 AVG

„Die Behörden sind verpflichtet, wenn in den Verwaltungsvorschriften nichts anderes bestimmt ist, über Anträge von Parteien […] ohne

“Unless provided differently in the administrative rules and regulations, the authorities are obligated to issue a ruling on submissions of parties (§8) and

Y Effective transposition: - Due to lack of specific transposition, the general regime of § 73 Abs 1 AVG applies according to which the decision must be taken



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i.c.w. Art 2 Abs 1 & Abs 2 lit A Z 1 & 2 EGVG i.c.w. § 3 NAG

unnötigen Aufschub, spätestens aber sechs Monate nach deren Einlangen den Bescheid zu erlassen.“ [see Art 3.2 (b)]

appeals without undue delay, however at the latest within six months after receipt.” [see Art 3.2 (b)] [see enclosure: Appendix B & C]

“without undue delay, however at the latest within six months after receipt”. - Furthermore, in the light of to the conception of the NAG, there is no need to issue a document certifying permanent residence at all.

Art.20.1 Permanent residence card for family members who are not nationals of a Member State 1. Member States shall issue family members who are not nationals of a Member State entitled to permanent residence with a permanent residence card within six months of the submission of the application. The permanent residence card shall be renewable automatically every 10 years.

§ 9 Abs 1 Z 2 NAG § 9 Abs 2 NAG § 5 NAG-DV § 54 Abs 1 NAG

“Zur Dokumentation eines gemeinschaftsrechtlichen Aufenthalts- und Niederlassungsrechts werden […] 2. für Angehörige von EWR-Bürgern, die Drittstaatsangehörige sind, über Antrag eine ‚Daueraufenthaltskarte’ (§ 54), wenn der EWR-Bürger das Recht auf Freizügigkeit in Anspruch genommen hat, ausgestellt.” „[… D]ie Daueraufenthaltskarte [gilt] als Identitätsdokument. Form und Inhalt […] der Daueraufenthaltskarte legt der Bundesminister für Inneres durch Verordnung fest.“ „Daueraufenthaltskarten (§ 54 NAG) sind als Karten nach dem Muster der Anlage D auszustellen.“ [siehe Beilage: Anlage D] „Angehörige[n] von freizügigkeitsberechtigten EWR-Bürgern (§ 51), die nicht EWR-Bürger sind und die die in § 52 Z 1 bis 3 genannten Voraussetzungen erfüllen […] ist

“The following shall be issued in order to document a right of residence and settlement under Community law: 2. in the case of relatives of EEA citizens who are third country nationals, a "permanent residence card" (§54) shall be issued on application if the EEA citizen has claimed the right to freedom of movement.” “[…T]he permanent residence card constitutes an identity document. The Federal Minister of the Interior shall by regulation determine the form and content […] the permanent residence card.” “Permanent residence cards are to be issued according to the sample in Annex D.” [see enclosure: Annex D] “Relatives of EEA citizens entitled to freedom of movement (§51) who are not EEA citizens and who meet the requirements referred to in §52(1) to (3) shall […] shall on application be

N, Incomplet

e

Incomplete transposition: - See already Art 9 and 10 - The obligation to issue is transposed: “shall be issued” (§§ 9, 54 NAG) - Also the “6 months rule” is transposed via general rule of § 73 Abs 1 AVG which is even more favourable. - The application requirement is covered by the Directive itself: “within six months of the submission of the application”. - The 10-year-duration is also OK. - There is no specific provision regarding the automatic renewal every ten years.



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§ 73 Abs 1 AVG i.c.w. Art 2 Abs 1 und Abs 2 lit A Z 1 EGVG i.c.w. § 3 NAG

auf Antrag eine Daueraufenthaltskarte für die Dauer von zehn Jahren auszustellen.“ „Die Behörden sind verpflichtet, wenn in den Verwaltungsvorschriften nichts anderes bestimmt ist, über Anträge von Parteien […] ohne unnötigen Aufschub, spätestens aber sechs Monate nach deren Einlangen den Bescheid zu erlassen.“ [see Art 3.2 (b)]

issued with a permanent residence card for a period of ten years.” “Unless provided differently in the administrative rules and regulations, the authorities are obligated to issue a ruling on submissions of parties […] without undue delay , however at the latest within six months after receipt.”

Art.20.2 2. The application for a permanent residence card shall be submitted before the residence card expires. Failure to comply with the requirement to apply for a permanent residence card may render the person concerned liable to proportionate and non-discriminatory sanctions.

Y Effective transposition - The NAG makes no difference between residence card and permanent residence card (see Art 10.1), No expiration possible, thus. - Thus, also the sanction mechanism of § 77 Abs 1 Z 5 NAG cannot apply (see Art 9.3).

Art.20.3 3. Interruption in residence not exceeding two consecutive years shall not affect the validity of the permanent residence card.

Y, More

favourable

More favourable treatement - According to the ToC Gov, a legal effect has not been stipulated for any interruptions in residence (“Eine Rechtswirkung für eine allfällige Aufenthaltsunterbrechung wurde nicht festgelegt”). - The non-transposition of this article of the Directive results in a more favourable treatment and thus the transposition is effective..

Art. 21 Continuity of residence For the purposes of this Directive, continuity of residence may be attested

(1) § 45 Abs 2 AVG

“Im übrigen hat die Behörde unter sorgfältiger Berücksichtigung der Ergebnisse des Ermittlungsverfahrens nach freier

„Also, the authority shall evaluate, in its free judgment, carefully taking into consideration the result of the

Y (1) Means of proof: Effective transposition - There is no specific provision of transposition in the NAG. Thus, the



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by any means of proof in use in the host Member State. Continuity of residence is broken by any expulsion decision duly enforced against the person concerned.

§ 46 AVG i.c.w. Art 2 Abs 1 & Abs 2 lit A Z 1 & 2 EGVG i.c.w. § 3 NAG

Überzeugung zu beurteilen, ob eine Tatsache als erwiesen anzunehmen ist oder nicht.“ „Als Beweismittel kommt alles in Betracht, was zur Feststellung des maßgebenden Sachverhalts geeignet und nach Lage des einzelnen Falles zweckdienlich ist.“ [see Art 3.2 (b)]

investigation procedure, whether a fact is to be assumed as substantiated or not.” „Anything suitable for ascertaining the relevant facts of the case and feasible in the circumstances of the particular case can constitute evidence.”

general rules of the AVG apply which permit the use of any means of proof. (2) Expulsion decisions: No transposition The last sentence of the Article has not been transposed. There are no provisions in Austrian law providing for such a break of continuity of residence. However, there do not exist national provisions which restrict the legal effect of breaking the continuity of residence to the single case provided by the Directive in this regard, namely duly enforced expulsion decisions (see also Q 80 in this regard). The non-transposition of this provision of the Directive results in a more favourable treatment in the national legal system.

Chapter V PROVISIONS COMMON TO THE RIGHT OF RESIDENCE AND THE RIGHT OF PERMANENT RESIDENCE Art. 22 Territorial scope

The right of residence and the right of permanent residence shall cover the whole territory of the host Member State.

§ 2 Abs 2 NAG §§ 51, 52, 54 NAG i.c.w. § 57 NAG Art 2 Prot Nr 4 EMRK

“Niederlassung ist der tatsächliche oder zukünftig beabsichtigte Aufenthalt im Bundesgebiet […]” „zur Niederlassung berechtigt“ „Jedermann, der sich rechtmäßig im Hoheitsgebiet eines Staates aufhält, hat das Recht, sich dort frei zu bewegen und seinen Wohnsitz frei zu wählen.“

“"Settlement" shall mean actual residence or intended future residence within the Federal territory […]” “entitled to settle” “Everyone lawfully within the territory of a state shall, within that territory, have the right to liberty of movement and freedom to choose his residence.”

Y Effective transposition - The right to settle which is supposed to be the transposition of the right to (permanent) residence – see Art 7.1 (a) – covers, according to the NAG, the Federal territory, i.e., the whole territory of the Republic of Austria. - The right is also guaranteed by Art 2 of the Fourth Additional Protocol to the ECHR which has the status of constitutional law in the Austrian legal order (see Art 3.1).

Member States may impose territorial restrictions on the right of residence and the right of permanent residence only where the same restrictions apply to their own nationals.

§ 47Abs 1 FPG

„Fremden, gegen die eine Ausweisung oder ein Aufenthaltsverbot erlassen worden ist, kann, wenn dies zur Vollziehung der Fremdenpolizei

“Aliens against whom a removal order or an exclusion order has been made may, if this is necessary for the purpose of enforcement by the aliens police

N, Incorrect

Incorrect transposition. Under national Austrian law there are no restrictions on freedom of movement inside the boundaries of Austria against Austrian nationals



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Art IV StGG

oder aus Gründen der öffentlichen Ordnung und Sicherheit notwendig ist, mit Bescheid aufgetragen werden, sich in einem beschränkten Bereich des Bundesgebietes aufzuhalten. Dieser Bereich umfasst jedenfalls den Sprengel einer Bezirksverwaltungsbehörde. Des Weiteren können, wenn es zur Vollziehung der Fremdenpolizei oder aus Gründen der öffentlichen Ordnung und Sicherheit notwendig ist, dem Fremden Aufträge, insbesondere, sich in periodischen Abständen bei einem Polizeikommando (§ 10 Abs. 1 SPG) zu melden, erteilt werden. Die Gebietsbeschränkung ist längstens auf ein Jahr zu befristen. Die Auflagen sind im Reisedokument des Fremden ersichtlich zu machen.“ „Die Freizügigkeit der Person und des Vermögens innerhalb des Staatsgebietes unterliegt keiner Beschränkung.“

or on grounds of public order and security, be instructed by order to stay within a restricted area of the Federal territory. This area shall in any event comprise the area of a district administrative authority. Additionally, the alien may, if this is necessary for the purpose of enforcement by the aliens police or for reasons of public order and security, be given orders, particularly to report to a police station (§10(1) SPG) at regular intervals. The territorial restriction shall be limited to one year at most. The requirements shall be shown in the alien's travel document.” “There is no restriction on freedom of movement by the individual and his possession inside the boundaries of the state.”

allowed. But according to § 47 FPG there are territorial restrictions on the right of residence and the right of permanent residence possible against aliens.

Art.23 Related rights Irrespective of nationality, the family members of a Union citizen who have the right of residence or the right of permanent residence in a Member State shall be entitled to take up employment or selfemployment there.

(1) Employment: § 33 Abs 1 NAG § 1 Abs 1 AuslBG

„Die Berechtigung zur Ausübung einer unselbständigen Erwerbstätigkeit richtet sich […] nach den Bestimmungen des Ausländerbeschäftigungsgesetzes. „Dieses Bundesgesetz regelt die Beschäftigung von Ausländern (§ 2) im Bundesgebiet.“

„The entitlement to engage in non-self-employed gainful employment shall […] be governed by the provisions of the Aliens Employment Act.” “This Federal law governs the employment of aliens (Article 2) in Austria.”

N, Ambiguo

us

Regarding employment Effective transposition: - Regarding employment, see already Art 2.1, 2.2 and 3.1. EU citizens in general and third country family members (within the meaning of Article 2.2 of the Directive - core family) are treated as nationals.



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§ 2 Abs 1 AuslBG § 2 Abs 6 AuslBG § 1 Abs 2 lit l AuslBG § 3 Abs 8 AuslBG

„Als Ausländer im Sinne dieses Bundesgesetzes gilt, wer nicht die österreichische Staatsbürgerschaft besitzt.“ „EWR-Bürger sind Ausländer, die Staatsangehörige einer Vertragspartei des Abkommens über den Europäischen Wirtschaftsraum (EWR-Abkommen) sind.“ „Die Bestimmungen dieses Bundesgesetzes sind nicht anzuwenden auf […] freizügigkeitsberechtigte EWR-Bürger, deren drittstaatsangehörige Ehegatten und Kinder (einschließlich Adoptiv- und Stiefkinder), die noch nicht 21 Jahre alt sind oder denen der EWR-Bürger oder der Ehegatte Unterhalt gewährt, sowie drittstaatsangehörige Eltern des EWR-Bürgers und seines Ehegatten, denen der EWR-Bürger oder der Ehegatte Unterhalt gewährt, sofern sie zur Niederlassung nach dem Niederlassungs- und Aufenthaltsgesetz (NAG), BGBl I Nr 100/2005 berechtigt sind.“ „Familienangehörigen gemäß § 1 Abs 2 lit l […] ist auf deren Antrag von der regionalen Geschäftsstelle des Arbeitsmarktservice eine Bestätigung auszustellen, dass sie vom Geltungsbereich dieses

“’Alien’ in this Federal Law means a person who does not possess Austrian nationality.” “’EEA citizen’ means an alien who is a national of a Contracting Party to the Agreement creating the European Economic Area (EEA Agreement).” “The provisions of this Federal law do not apply to […] EEA citizens who have been granted the right to freedom of movement whose third-country spouses and children (including adopted and step-children) are aged under 21 or who are provided with maintenance by the EEA citizen or his spouse, as well as third-country parents of the EEA citizen and his spouse who are provided with maintenance by the EEA citizen or his spouse, as long as they are entitled to settle in accordance with the Settlement and Residence Act (NAG), BGBl. I No. 100/2005.” "On application family members to whom § 1 Abs 2 lit 1 applies […] shall be issued by the regional office of the Public Employment Service with a certificate that they are excepted of the scope of this federal law."



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(2) Self-employment: § 32 NAG § 373b GewO

Bundesgesetzes ausgenommen sind.“ „[… D]ie Aufnahme einer selbständigen Erwerbstätigkeit [bedarf] der Ausstellung eines Aufenthaltstitels mit entsprechendem Zweckumfang.“ „Staatsangehörige eines Mitgliedstaates der Europäischen Union dürfen Gewerbe wie Inländer ausüben.”

„[…T]he commencement of self-employed gainful employment, […] shall require a residence permit issued for a corresponding purpose. „Citizens of a Member State of the European Union can pursue trade and business like Austrian nationals.”

Concerning self-employment: Unclear transposition No restrictions apply to the self-employment of Union citizens, whether main beneficiaries or their family members who are Union citizens themselves. The case is not so clear for family members who do not hold an EU citizenship. One could conclude from § 32 NAG a contrario that they do not need a permit as they do not fall under the “residence permit” regime at all, but have a residence right directly emerging from EC law. However, this is far from being a transparent position. Hence, the legal status of non Union citizen family members with regard to self-employment is not clear.

Art.24.1 Equal treatment 1. Subject to such specific provisions as are expressly provided for in the Treaty and secondary law, all Union citizens residing on the basis of this Directive in the territory of the host Member State shall enjoy equal treatment with the nationals of that Member State within the scope of the Treaty. The benefit of this right shall be extended to family members who are not nationals of a Member State and who have the right of residence or permanent residence.

NT Transposition unclear - Art 24 of the Directive is a horizontal norm whose guarantee of equal treatment has, in its effects, implications for different policy fields. However, there is no general provision transposing Art 24 in the Austrian legal order. - In contrast, the approach was taken to transpose the guarantee in every single specific legal instrument supposed to be affected by the provision. Hence, a great number of legal acts – concerning fairly different matters and, due to Austria’s character as a federal state, also resorting from the federal as well as the Laender level – is relevant in



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this regard. - As it is put in the ToC Gov: “European Citizen Directive 2004/38/EC has been transposed into national law by means of several Federal and provincial acts. […] With regard to Art. 24 of the Directive, competence for the transposition is divided into a provincial competence and a federal competence. Appropriate provincial acts have been enacted, as shown in the annex, to provide social welfare. The federal government must take appropriate measures to transpose the provision of a study allowance, including allowances for vocational training. The Student Support Act 1992 and Pupils’ Grants Act 1983, which were enacted as part of the second “School Law Package” 2005, BGBl. I No. 20/2006, have been amended. The individual measures for transposition are listed in the correlation table (Annex 1). The provincial acts enacted under Art. 24 of the Directive are contained in a separate annex (Annex 2).” - In view of the quantity of the legal acts in question – Annex 2 mentions more than 20, and this is far from being a comprehensive list – and their heterogeneous approach with regard to transposing the directive (in particular concerning the definitions), a detailed analysis of the transposition of Art 24 of the Directive is not possible here. However, it is to be expected that numerous transposition problems exist, especially regarding the



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treatment of family members who are not Union citizens.

Art.24.2 2. By way of derogation from paragraph 1, the host Member State shall not be obliged to confer entitlement to social assistance during the first three months of residence or, where appropriate, the longer period provided for in Article 14(4)(b), nor shall it be obliged, prior to acquisition of the right of permanent residence, to grant maintenance aid for studies, including vocational training, consisting in student grants or student loans to persons other than workers, self-employed persons, persons who retain such status and members of their families.

NT Transposition unclear [see Art 24.1]

Art.25.1 General provisions concerning residence documents 1. Possession of a registration certificate as referred to in Article 8, of a document certifying permanent residence, of a certificate attesting submission of an application for a family member residence card, of a residence card or of a permanent residence card, may under no circumstances be made a precondition for the exercise of a right or the completion of an administrative formality, as entitlement to rights may be attested by any other means of proof.

§ 1 Abs 1 NAG § 9 Abs 1 NAG

“Dieses Bundesgesetz regelt die Erteilung, Versagung und Entziehung von Aufenthaltstiteln von Fremden […] sowie die Dokumentation von bestehenden Aufenthalts- oder Niederlassungsrechten.” „Zur Dokumentation eines gemeinschaftsrechtlichen Aufenthalts- und Niederlassungsrechtes werden 1. für EWR-Bürger, die ich in Österreich niedergelassen haben, über Antrag eine ‘Anmeldebescheinigung (§ 53) und 2. für Angehörige von EWR-Bürgern, die Drittstaatsangehörige sind, über Antrag eine ‚Daueraufenthaltskarte’ (§ 54), wenn der EWR-Bürger das Recht auf Freizügigkeit in Anspruch genommen hat, ausgestellt.“

“This Federal Act governs the grant, refusal and withdrawal of residence permits for aliens […] and the documentation of existing residence and settlement rights.” “The following shall be issued in order to document a right of residence and settlement under Community law: 1. in the case of EEA citizens who have settled in Austria, a "reporting certificate" (§53) shall be issued on application, and 2. in the case of relatives of EEA citizens who are third country nationals, a "permanent residence card" (§54) shall be issued on application if the EEA citizen has claimed the right to freedom of movement.”

N, Incomplet

e

Incomplete transposition - Austria generally recognises that the pertinent rights directly arise from EC law and that national law only documents and certifies them. Austrian law does not make the exercise of rights or the completion of an administrative formality dependent on the possession of such means of documentation. - However, there is no general norm transposing this provision as an explicit principle in the Austrian legal order.



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Art.25.2 2. All documents mentioned in paragraph 1 shall be issued free of charge or for a charge not exceeding that imposed on nationals for the issuing of similar documents.

§ 14 Tarifpost 8 Abs 5a Z 1-3 GebührenG

„Tarifpost 8. Einreise- und Aufenthaltstitel […] (5a) Ausstellung 1. einer Anmeldebescheinigung (§ 9 Abs 1 Z 1 NAG) … 15 Euro 2. einer Daueraufenthaltskarte (§ 9 Abs 1 Z 2 NAG) … 56 Euro 3. eines Lichtbildausweises für EWR-Bürger (§ 9 Abs 2 NAG) … 56 Euro“

“Tariff section 8. Entry visas and residence permits […] (5a) Issue 1. Registration certificate (Article 9(1)(1) NAG) … 15 euros 2. Permanent residence permit (Article 9(1)(2) NAG) …. 56 euros 3. Photo ID for EEA citizens (Article 9 (2) NAG) … 56 euros”

Y Effective transposition: - In comparison, the issuing of an identity card („Personalausweis“) for Austrian citizens is charged with 56.70 euros according to § 14 Tarifpost 9 Abs 2 Z 1 GebührenG.

Art.26 Checks Member States may carry out checks on compliance with any requirement deriving from their national legislation for non-nationals always to carry their registration certificate or residence card, provided that the same requirement applies to their own nationals as regards their identity card. In the event of failure to comply with this requirement, Member States may impose the same sanctions as those imposed on their own nationals for failure to carry their identity card.

§ 32 Abs 2 & 4 FPG § 121 Abs 2 Z 2 FPG

“(2) Fremde sind verpflichtet, ihr Reisedokument mit sich zu führen und in einer solchen Entfernung von ihrem jeweiligen Aufenthaltsort zu verwahren, dass seine Einholung (Abs 1) ohne unverhältnismäßige Verzögerung erfolgen kann. Die Verzögerung ist noch verhältnismäßig, wenn 1. das Reisedokument innerhalb des Sprengels der Fremdenpolizeibehörde erster Instanz seines Aufenthalts verwahrt wird oder 2. die Einholung des Reisepasses voraussichtlich nicht länger als eine Stunde in Anspruch nehmen würde. (4)Fremde, die […] eine Dokumentation des Aufenthaltsrechtes nach dem Niederlassungs- und Aufenthaltsgesetz […] genügen Abs 2, wenn sie diesen mit sich führen.” „Wer sein Reisedokument nicht mit sich führt oder gemäß § 32 Abs 2 verwahrt […] begeht eine

“(2) Aliens are required to carry their travel documents with them or to keep them at such a distance from their respective place of residence that they can be obtained ((1)) without disproportionate delay. The delay is proportionate if: 1. the travel document is kept within the area of the Aliens Police Authority at first instance for his residence, or 2. obtaining the passport would be unlikely to take longer than one hour. (4) Aliens who [hold a residence permit or] documentation of the right of residence under the Settlement and Residence Act, cards under §§51 and 52 AsylG 2005 or a photo identity card for persons entitled to privileges and immunities (§95) comply with (2) if they carry them with them.” “Any person who fails to carry his travel document with him or to keep it safe under §32(2) […]

N, Incorrect

Incorrect transposition Under Austrian law, Austrians are not obliged to carry an ID (“Personalausweis”) or passport with them. Hence, the requirements of the Directive are not met and such behaviour should not be punished under § 121 FPG.



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Verwaltungsübertretung und ist mit Geldstrafe bis zu 218 Euro, im Fall ihrer Uneinbringlichkeit mit Freiheitsstrafe bis zu einer Woche, zu bestrafen.“

shall commit an administrative misdemeanour and shall be punishable by a fine of up to €218, or if such a fine cannot be collected, by a term of imprisonment of up to one week.”

Chapter VI RESTRICTIONS ON THE RIGHT OF ENTRY AND THE RIGHT OF RESIDENCE ON GROUNDS OF PUBLIC POLICY, PUBLIC SECURITY OR PUBLIC HEALTH Art.27.1 General principles

1. Subject to the provisions of this Chapter, Member States may restrict the freedom of movement and residence of Union citizens and their family members, irrespective of nationality, on grounds of public policy, public security or public health. These grounds shall not be invoked to serve economic ends.

§ 86 Abs 1 FPG § 86 Abs 2 FPG i.c.w. § 55 Abs 1 NAG

„Die Erlassung eines Aufenthaltsverbotes gegen freizügigkeitsberechtigte EWR-Bürger, Schweizer Bürger oder begünstigte Drittstaatsangehörige ist zulässig, wenn auf Grund ihres persönlichen Verhaltens die öffentliche Ordnung oder Sicherheit gefährdet ist. […]“ „EWR-Bürger, Schweizer Bürger und begünstigte Drittstaatsangehörige sind dann auszuweisen, wenn ihnen aus den Gründen des § 55 Abs. 1 NAG das Niederlassungsrecht fehlt.“ „Besteht das gemäß §§ 51, 52 und 54 dokumentierte Niederlassungsrecht nicht, weil eine Gefährdung aus Gründen der öffentlichen Ordnung, Sicherheit oder Gesundheit vorliegt oder weil die Nachweise nach § 53 Abs. 2 oder § 54 Abs. 2 nicht erbracht werden, hat die Behörde den Antragsteller vom Nichtvorliegen der Voraussetzungen schriftlich in Kenntnis zu setzen und ihm mitzuteilen, dass die Fremdenpolizeibehörde

It is permissible for an exclusion order to be made against EEA citizens or Swiss citizens entitled to freedom of movement or favoured third country nationals if public order or security is endangered because of their personal conduct. […]” “EEA citizens, Swiss citizens and favoured third country nationals shall be expelled if they do not have the right of settlement for the reasons set out in §55(1) NAG.” “If there is no documented right of settlement pursuant to §§51, 52 and 54 because there is a danger for reasons of public order, safety or health or because the evidence under §53(2) or §54(2) is not provided, the authority shall give the applicant written notice that the requirements are not met and shall inform him that the Aliens Police Authority has been contacted with regard to a possible termination of residence. The Aliens Police

N, Incomplet

e

Unclear and incomplete transposition. - Austria has made use of the option provided by Article 27 (1) of the Directive. - There is no general provision in the FPG allowing restrictive measures on grounds of public policy, public security or public health which could be checked. - These grounds (besides other grounds of restriction) are mentioned in conjunction with each specific restrictive measure as provided for in the FPG or NAG. - An exclusion order can be made if “public order or security is endangered because of their personal conduct” under § 86 Abs 1 FPG. - A removal order can be made if “there is a danger for reasons of public order, safety or health” under § 86 Abs 1 FPG i.c.w. § 55 Abs 1 NAG. - A refusal of entry is permissible if “certain facts justify the assumption that their residence […] is a danger to public order or security” under § 86 Abs 4 Z 5 FPG or “if a Contracting State has given information that residence by him within the territory of the Contraction State would be a



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§ 86 Abs 4 Z 5 FPG § 86 Abs 5 FPG

hinsichtlich einer möglichen Aufenthaltsbeendigung befasst wurde. Die Fremdenpolizeibehörde ist unverzüglich, spätestens jedoch gleichzeitig mit der Mitteilung an den Antragsteller zu befassen.“ „Die Zurückweisung eines EWR-Bürgers, Schweizer Bürgers oder begünstigten Drittstaatsangehörigen ist zulässig, wenn […] 5. bestimmte Tatsachen die Annahme rechtfertigen, dass ihr Aufenthalt im Bundesgebiet die öffentliche Ordnung oder Sicherheit gefährdet.“ „Die Zurückweisung eines begünstigten Drittstaatsangehörigen ist ferner dann zulässig, wenn ein Vertragsstaat mitgeteilt hat, dass sein Aufenthalt im Gebiet der Vertragsstaaten die öffentliche Ordnung oder Sicherheit gefährden würde, es sei denn, er hätte einen Aufenthaltstitel eines Vertragsstaates oder einen von Österreich erteilten Einreisetitel.“

Authority shall be contacted without culpable delay, but no later than at the same time as the notification to the applicant.” “The refusal of entry to an EEA citizen, Swiss citizen or favoured third country national is permissible if: […] 5. certain facts justify the assumption that their residence in the Federal territory is a danger to public order or security.” “The refusal of entry to a favoured third country national is also permissible if a Contracting State has given information that residence by him within the territory of the Contracting States would be a danger to public order or security, unless he has a residence permit from a Contracting State or an entry permit granted by Austria.”

danger to public order or security” under § 86 Abs 5 FPG. - It is not clear if the issuing of a visa in the case of family members who are entitled to freedom of movement can be prohibited on grounds of public order, safety or health. - There is no explicit provision in the FPG stating that these grounds shall not be invoked to serve economic ends. “Contracting State” is legally defined by § 2 Abs. 4 Ziff 7 FPG and “means a State in respect of which the Convention of 28 April 1995 on the accession of Austria to the Schengen Implementation Convention […] has come into force”. Therefore it relates to information under the Schengen States, but the provision does not say anything about the form or way of information.

Art.27.2 2. Measures taken on grounds of public policy or public security shall comply with the principle of proportionality and shall be based exclusively on the personal conduct of the individual concerned. Previous criminal convictions shall not in themselves constitute grounds for taking such measures.


„Würde durch eine Ausweisung in das Privat- oder Familienleben des Fremden Eingegriffen, so ist die Ausweisung zulässig, wenn die zur Erreichung der im Art. 8 Abs. 2 EMRK genannten Ziele dringend geboten ist.“ „Die Erlassung eines

“If a removal would encroach upon the alien's private or family life, the removal is permissible if it is urgently required to achieve the objectives referred to in Article 8(2) ECHR.” “It is permissible for an

N, Incomplet

e

Partly unclear and incomplete transposition. - There is no explicit general provision in the FPG on Union citizens and their family members which guarantees the principle of proportionality in the context of all possible restrictive measures on grounds of public policy, public



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§ 86 Abs 4 FPG

Aufenthaltsverbotes gegen freizügigkeitsberechtigte EWR-Bürger, Schweizer Bürger oder begünstigte Drittstaatsangehörige ist zulässig, wenn auf Grund ihres persönlichen Verhaltens die öffentliche Ordnung oder Sicherheit gefährdet ist. Das persönliche Verhalten muss eine tatsächliche, gegenwärtige und erhebliche Gefahr darstellen, die ein Grundinteresse der Gesellschaft berührt. Strafrechtliche Verurteilungen allein können nicht ohne weiteres diese Maßnahmen begründen. […]“ „Die Zurückweisung eines EWR-Bürgers, Schweizer Bürgers oder begünstigten Drittstaatsangehörigen ist zulässig, wenn 1. Zweifel an ihrer Identität bestehen oder sie der Pass- und gegebenenfalls der Sichtvermerkspflicht nicht genügen; 2. gegen sie ein durchsetzbares Aufenthaltsverbot besteht und keine Wiedereinreisebewilligung erteilt wurde; 3. bestimmte Tatsachen die Annahme rechtfertigen, sie werden im Bundesgebiet Schlepperei begehen oder an ihr mitwirken; 4. bestimmte Tatsachen die Annahme rechtfertigen, sie wollten den Aufenthalt im Bundesgebiet zur vorsätzlichen

exclusion order to be made against EEA citizens or Swiss citizens entitled to freedom of movement or favoured third country nationals if public order or security is endangered because of their personal conduct. The personal conduct must constitute an actual, present and substantial danger which affects a fundamental interest of society. Criminal convictions on their own cannot in themselves justify these measures. […]” The refusal of entry to an EEA citizen, Swiss citizen or favoured third country national is permissible if: 1. doubts exist as to their identity or if they do not satisfy the passport requirement and, if applicable, the visa requirement; 2. an enforceable exclusion order exists against them and no re-entry permit has been granted; 3. certain facts justify the assumption that they would commit or be involved in people-smuggling within the Federal territory; 4. certain facts justify the assumption that they would use residence within the Federal territory for the purpose of the intentional commission of financial offences, with the exception of breaches of

security or public health. However, § 66 Abs 1 FPG refers to Art 8 (2) EMRK which includes the principle of proportionality and is probably by analogy applicable to all restrictive measures made under the FPG. - There is no general provision adjusting that any restrictive measure shall be based exclusively on the personal conduct of the individual concerned in the context of the FPG. This aspect of the directive is partly transposed only for exclusion orders under § 86 Abs 1 FPG but not with regard to other decisions taken on grounds of public policy, security or health. The word “exclusively” is not mentioned. As to other restrictive measures (e.g. removal orders under § 86 Abs 2 FPG, refusal of entry under § 86 Abs 4 and Abs 5 FPG) there is no transposition of this guarantee at all. - The same applies to the requirement that previous criminal convictions shall not in themselves constitute grounds for taking restrictive measures. There is a literal transposition as to exclusion orders under § 86 Abs 1 FPG. There is no transposition as to removal orders under § 86 Abs 2 FPG, refusal of entry under § 86 Abs 4 and Abs 5 FPG). - Moreover, it is unclear whether the guarantees provided by Art. 27.2 are given in the visa proceeding.



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§ 86 Abs 5 FPG

Begehung von Finanzvergehen, mit Ausnahme von Finanzordnungswidrigkeiten, oder zu vorsätzlichen Zuwiderhandlungen gegen devisenrechtliche Vorschriften benützen oder 5. bestimmte Tatsachen die Annahme rechtfertigen, dass ihr Aufenthalt im Bundesgebiet die öffentliche Ordnung oder Sicherheit gefährdet.“ „Die Zurückweisung eines begünstigten Drittstaatsangehörigen ist ferner dann zulässig, wenn ein Vertragsstaat mitgeteilt hat, dass sein Aufenthalt im Gebiet der Vertragsstaaten die öffentliche Ordnung oder Sicherheit gefährden würde, es sei denn, er hätte einen Aufenthaltstitel eines Vertragsstaates oder einen von Österreich erteilten Einreisetitel.“

financial regulations, or for intentional contraventions of foreign exchange provisions. 5. certain facts justify the assumption that their residence in the Federal territory is a danger to public order or security. “The refusal of entry to a favoured third country national is also permissible if a Contracting State has given information that residence by him within the territory of the Contracting States would be a danger to public order or security, unless he has a residence permit from a Contracting State or an entry permit granted by Austria.”

The personal conduct of the individual concerned must represent a genuine, present and sufficiently serious threat affecting one of the fundamental interests of society. Justifications that are isolated from the particulars of the case or that rely on considerations of general prevention shall not be accepted.

§ 86 Abs 1 FPG „Die Erlassung eines Aufenthaltsverbotes gegen freizügigkeitsberechtigte EWR-Bürger, Schweizer Bürger oder begünstigte Drittstaatsangehörige ist zulässig, wenn auf Grund ihres persönlichen Verhaltens die öffentliche Ordnung oder Sicherheit gefährdet ist. Das persönliche Verhalten muss eine tatsächliche, gegenwärtige und erhebliche Gefahr darstellen, die ein Grundinteresse der Gesellschaft berührt. Strafrechtliche Verurteilungen allein können nicht ohne weiteres

“It is permissible for an exclusion order to be made against EEA citizens or Swiss citizens entitled to freedom of movement or favoured third country nationals if public order or security is endangered because of their personal conduct. The personal conduct must constitute an actual, present and substantial danger which affects a fundamental interest of society. Criminal convictions on their own cannot in themselves justify these measures. […]”

N, Incomplet

e

Incomplete transposition - Literal transposition only in connection with exclusion orders under § 86 Abs 1 FPG. - No transposition with regard to other restrictive measures.



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diese Maßnahmen begründen. […]“

Art.27.3 3. In order to ascertain whether the person concerned represents a danger for public policy or public security, when issuing the registration certificate or, in the absence of a registration system, not later than three months from the date of arrival of the person concerned on its territory or from the date of reporting his/her presence within the territory, as provided for in Article 5(5), or when issuing the residence card, the host Member State may, should it consider this essential, request the Member State of origin and, if need be, other Member States to provide information concerning any previous police record the person concerned may have. Such enquiries shall not be made as a matter of routine. The Member State consulted shall give its reply within two months.

NT No transposition

Art.27.4 4. The Member State which issued the passport or identity card shall allow the holder of the document who has been expelled on grounds of public policy, public security, or public health from another Member State to re-enter its territory without any formality even if the document is no longer valid or the nationality of the holder is in dispute.

§ 2 Abs 1 PassG „Österreichische Staatsbürger (Staatsbürger) bedürfen zur Ausreise aus dem Bundesgebiet und zur Einreise in dieses eines gültigen Reisedokumentes (Reisepaß oder Paßersatz), […]. Einem Staatsbürger, der über kein gültiges Reisedokument verfügt, jedoch seine Staatsbürgerschaft und seine Identität glaubhaft machen kann, darf, […], die Einreise nicht versagt werden.“

“Austrian citizens (nationals) need a valid travel document (passport or passport substitute) in order to leave the Federal territory or to enter into it […] An Austrian national who does not carry a valid travel document on him, but is able to accredit his citizenship and his identity, […] must not be prevented from entering.”

Y Effective transposition.

Art.28 Protection against expulsion 1. Before taking an expulsion decision on grounds of public policy or public security, the host Member State shall take account of considerations such as how long the individual concerned has resided

§ 66 Abs 1 FPG

„Würde durch eine Ausweisung in das Privat- oder Familienleben des Fremden Eingegriffen, so ist die Ausweisung zulässig, wenn die zur Erreichung der im Art. 8 Abs. 2 EMRK genannten Ziele dringend geboten ist.“

„If a removal would encroach upon the alien's private or family life, the removal is permissible if it is urgently required to achieve the objectives referred to in Article 8(2) ECHR.”

NT No specific transposition. There are no specific procedural provisions on the protection against expulsion of Union citizens and their family members (see Chapter 10 of the FPG) which include the requirements of Article 28 (1) of the



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on its territory, his/her age, state of health, family and economic situation, social and cultural integration into the host Member State and the extent of his/her links with the country of origin.

Directive. It is questionable whether the general provisions about the removal of aliens without residence permits (§ 53 FPG), about the removal of aliens with residence permits (§ 54 FPG), about the requirements of the exclusion order (§ 60 FPG) and about the inadmissibility of an exclusion order (§ 61 FPG) are applicable to Union citizens and their family members by analogy. Even if these provisions are applicable by analogy to Union citizens and their family members, they do not transpose the Directive sufficiently. This applies also to the general procedural provisions under the FPG (see § 66 ff FPG) especially to § 66 Abs 1 FPG about the protection of private and family life. Even if § 66 Abs 1 FPG is applicable, it just refers to Article 8 Abs 2 EMRK and thus to the general principle of proportionality.

2. The host Member State may not take an expulsion decision against Union citizens or their family members, irrespective of nationality, who have the right of permanent residence on its territory, except on serious grounds of public policy or public security.

§ 56 FPG

Aufenthaltsverfestigung bei Fremden mit einem Aufenthaltstitel "Daueraufenthalt - EG" oder mit "Daueraufenthalt-Familienangehöriger" (1) Fremde, die vor Verwirklichung des maßgeblichen Sachverhaltes auf Dauer rechtmäßig niedergelassen waren und über einen Aufenthaltstitel "Daueraufenthalt - EG" oder "Daueraufenthalt Familienangehöriger" verfügen, dürfen nur mehr ausgewiesen

Reinforced right of residence for aliens with "permanent residence - EC" or "permanent residence - family member" residence permits (1) Aliens who were permanently lawfully settled before the relevant facts occurred and who are in possession of a "permanent residence - EU” or "permanent residence - family member" residence permit may only be expelled if further residence by

NT No transposition. § 56 FPG does not apply to Union citizens and their family members. This provision refers to §§ 45, 46 NAG which transpose provisions of the Directive 2003/1097/EC.



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§ 2 Abs 1 Z 6 NAG § 45 NAG

werden, wenn ihr weiterer Aufenthalt eine schwere Gefahr für die öffentliche Ordnung oder Sicherheit darstellen würde. (2) Als schwere Gefahr im Sinn des Abs. 1 hat insbesondere zu gelten, wenn ein Fremder von einem inländischen Gericht 1. wegen eines Verbrechens oder wegen Schlepperei, Beihilfe zu unbefugtem Aufenthalt, Eingehen oder Vermittlung von Aufenthaltsehen oder gemäß der §§ 27 Abs. 2, 28 Abs. 1 und 32 Abs. 1 SMG oder nach einem Tatbestand des 16. oder 20. Abschnitts des Besonderen Teils des StGB oder 2. wegen einer Vorsatztat, die auf derselben schädlichen Neigung (§ 71 StGB) beruht, wie eine andere von ihnen begangene strafbare Handlung, deren Verurteilung noch nicht getilgt ist, zu einer unbedingten Freiheitsstrafe von mehr als sechs Monaten rechtskräftig verurteilt worden ist. (3) § 55 Abs. 4 und 5 gilt. „Drittstaatsangehöriger: ein Fremder, der nicht EWR-Bürger ist“ Aufenthaltstitel "Daueraufenthalt – EG" (1) Drittstaatsangehörigen, die in den letzten fünf Jahren ununterbrochen zur Niederlassung berechtigt waren, kann ein Aufenthaltstitel "Daueraufenthalt - EG" erteilt werden, wenn sie

them would represent a severe danger to public order or security. (2) "Severe danger" within the meaning of (1) shall apply in particular if an alien has been finally sentenced by a domestic court: 1. of a crime or of people-smuggling, assistance with unlawful residence, contracting or arranging marriages for the sole purpose of obtaining residence, or under §§27(2), 28(1) and 32(1) SMG, or following an offence under Section 16 or 20 of the Special Part of the criminal code, or 2. to an unconditional term of imprisonment of more than six months because of a crime of intent which is based on the same detrimental tendency (§71 StGB) as another criminal act committed by them for which the sentence has not yet been served. (3) §55(4) and (5) shall apply. "Third country national" shall mean an alien who is not an EEA citizen; "Permanent residence - EC" residence permit (1) Third country nationals who have been entitled to settle without interruption in the last five years may be granted a "permanent residence - EC" residence permit if they:



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1. die Voraussetzungen des 1. Teiles erfüllen und 2. die Integrationsvereinbarung erfüllt haben. (2) Die Fünfjahresfrist gemäß Abs. 1 wird durchbrochen, wenn sich der Drittstaatsangehörige innerhalb dieser Frist insgesamt länger als zehn Monate, oder durchgehend mehr als sechs Monate außerhalb des Bundesgebietes aufgehalten hat. In diesen Fällen beginnt die Frist ab der letzten rechtmäßigen Einreise neuerlich zu laufen. (3) Aus besonders berücksichtigungswürdigen Gründen, wie einer schwerwiegenden Erkrankung, der Erfüllung einer sozialen Verpflichtung oder der Leistung eines der allgemeinen Wehrpflicht vergleichbaren Dienstes, kann sich der Drittstaatsangehörige innerhalb der Fünfjahresfrist bis zu 24 Monate außerhalb des Bundesgebietes aufhalten, ohne sie zu unterbrechen, wenn er dies der Behörde nachweislich mitgeteilt hat. (4) Weiters wird die Fünfjahresfrist nicht unterbrochen, wenn sich der Drittstaatsangehörige im Rahmen seiner beruflichen Tätigkeit, insbesondere zur grenzüberschreitenden Erbringung von Dienstleistungen, außerhalb des Bundesgebietes aufhält. (5) Liegt eine Verständigung des

1. meet the requirements of Part 1 and 2. have complied with the integration agreement. (2) The five-year time limit under (1) shall be interrupted if the third country national has, within this period, been resident outside the Federal territory for more than ten months in total or for more than six months continuously. In these cases, the time limit shall begin running again from the date of the last lawful entry. (3) The third country national may reside outside the Federal territory for up to 24 months within the five-year period without interrupting that period, for reasons which are particularly worthy of consideration, such as a serious illness, compliance with a social obligation or the performance of a service comparable to general military service, provided that he has demonstrably notified the authority of this. (4) The five-year period shall also not be interrupted if the third country national resides outside the Federal territory within the context of his professional work, particularly relating to the cross-border performance of services. (5) If the asylum authority has given its agreement under §7(2) AsylG 2005, the relevant alien shall automatically be granted a



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§ 46 NAG

Bundesasylamtes oder des Asylgerichtshofes gemäß § 7 Abs. 2 AsylG 2005 vor, ist dem betreffenden Fremden ein Aufenthaltstitel "Daueraufenthalt - EG" von Amts wegen zu erteilen, es sei denn, es liegt ein Fall des §§ 47 oder 48 vor; in diesem Fall ist ihm ein Aufenthaltstitel "Daueraufenthalt - Familienangehöriger" (§ 48) von Amts wegen zu erteilen. Diese Amtshandlungen unterliegen nicht der Gebührenpflicht. Das Bundesasylamt oder der Asylgerichtshof ist von der rechtskräftigen Erteilung des Aufenthaltstitels zu verständigen. Bestimmungen über die Familienzusammenführung (1) Familienangehörigen von Drittstaatsangehörigen nach § 42 kann eine "Niederlassungsbewilligung - ausgenommen Erwerbstätigkeit" erteilt werden, wenn 1. sie die Voraussetzungen des 1. Teiles erfüllen und 2. im Fall von Familienangehörigen von Drittstaatsangehörigen im Sinne des § 42 Abs. 1 ein Quotenplatz vorhanden ist. (2) Familienangehörigen von Drittstaatsangehörigen nach § 44 Abs. 2 kann quotenfrei eine "Niederlassungsbewilligung - ausgenommen Erwerbstätigkeit" erteilt werden, wenn sie die Voraussetzungen des 1. Teiles

"permanent residence - EC" residence permit unless a case under §§47 or 48 arises; in this event, he shall automatically be granted a "permanent residence - family member" residence permit (§48). There shall be no obligation to pay fees in respect of these official actions. The asylum authority shall be notified of the lawful granting of the residence permit. Provisions about family reunification (1) Family members of third country nationals under §42 may be granted a "settlement permit - excluding gainful employment" if; 1. they meet the requirements of Part 1 and 2. in the case of family members of third country nationals pursuant to §42(1), a quota place is available. (2) Family members of third country nationals under §44(2) may be granted a quota-free "settlement permit - excluding gainful employment" if they meet the requirements of Part 1. (3) Family members of key workers (§41) may be



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erfüllen. (3) Familienangehörigen von Schlüsselkräften (§ 41) kann eine "Niederlassungsbewilligung - beschränkt" für eine Dauer von höchstens 18 Monaten erteilt werden, wenn 1. sie die Voraussetzungen des 1. Teiles erfüllen und 2. ein Quotenplatz vorhanden ist. (4) Familienangehörigen von Drittstaatsangehörigen ist eine "Niederlassungsbewilligung - beschränkt" zu erteilen, wenn 1. sie die Voraussetzungen des 1. Teiles erfüllen; 2. ein Quotenplatz vorhanden ist und 3.der Zusammenführende a) einen Aufenthaltstitel "Daueraufenthalt - EG" innehat; b) eine "Niederlassungsbewilligung - unbeschränkt" innehat; c) eine Niederlassungsbewilligung außer eine "Niederlassungsbewilligung - ausgenommen Erwerbstätigkeit" nach § 42 innehat und die Integrationsvereinbarung (§ 14) erfüllt hat oder d) Asylberechtigter ist und § 34 Abs. 2 AsylG 2005 nicht gilt. (5) Familienangehörigen von Drittstaatsangehörigen ist in den Fällen des Abs. 4 Z 3 lit. a, b und d, wenn sie die Voraussetzungen des 1. Teiles weiterhin erfüllen, nach Ablauf von zwölf Monaten ab Niederlassung eine "Niederlassungsbewilligung -

granted a "settlement permit - restricted" for a maximum period of 18 months if: 1. they meet the requirements of Part 1 and 2. a quota place is available. (4) Family members of third country nationals shall be granted a "settlement permit - restricted" if: 1. they meet the requirements of Part 1; 2. a quota place is available and 3. the uniting party: a) holds a "permanent residence - EC" residence permit; b) holds a "settlement permit - unrestricted"; c) holds a settlement permit other than a "settlement permit - excluding gainful employment" under §42 and has complied with the integration agreement (§14) or d) is entitled to asylum and §34(2) AsylG 2005 does not apply. (5) Family members of third country nationals shall, in the cases under subsection 4 (3)(a), (b) and (d), if they continue to meet the requirements of Part 1, be granted a "settlement permit - unrestricted" twelve months after the date of settlement.



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unbeschränkt" zu erteilen. 3. An expulsion decision may not be

taken against Union citizens, except if the decision is based on imperative grounds of public security, as defined by Member States, if they: (a) have resided in the host Member State for the previous 10 years; or

§ 86 Abs 2 FPG § 55 Abs 1 NAG § 86 Abs 1 FPG

„EWR-Bürger, Schweizer Bürger und begünstigte Drittstaatsangehörige sind dann auszuweisen, wenn ihnen aus Gründen des § 55 Abs. 1 NAG das Niederlassungsrecht fehlt.“ „Besteht das gemäß §§ 51, 52 und 54 dokumentierte Niederlassungsrecht nicht, weil eine Gefährdung aus Gründen der öffentlichen Ordnung, Sicherheit oder Gesundheit vorliegt […].“ „[…] Die Erlassung eines Aufenthaltsverbotes gegen EWR-Bürger, Schweizer Bürger oder begünstigte Drittstaatsangehörige, die vor Verwirklichung des maßgeblichen Sachverhaltes ihren Hauptwohnsitz ununterbrochen seit zehn Jahren im Bundesgebiet hatten, ist dann zulässig, wenn aufgrund des persönlichen Verhaltens des Fremden davon ausgegangen werden kann, dass die öffentliche Ordnung oder Sicherheit der Republik Österreich durch seinen Verbleib im Bundesgebiet nachhaltig und maßgeblich gefährdet würde. […]“

“EEA citizens, Swiss citizens and favoured third country nationals shall be expelled if they do not have the right of settlement for the reasons set out in §55(1) NAG.” “If there is no documented right of settlement pursuant to §§51, 52 and 54, because there is a ground of public order, public security or public health […]” “[…] It is permissible for an exclusion order to be made against EEA citizens, Swiss citizens or favoured third country nationals who had their main place of abode within the Federal territory for an uninterrupted period of ten years before the relevant facts arose, if it may be assumed on the basis of the alien's personal conduct that the public order or security of the Republic of Austria would be permanently and substantially endangered if he were to remain within the Federal territory. […]”

N, Incorrect

Incorrect and unclear transposition. - Incorrect transposition in the context of § 86 Abs 2 FPG which adjusts (i.c.w. § 55 Abs 1 NAG) an “expulsion decision” (in German “Ausweisung” according to the official translation of the Directive) of Union citizens and their family members on grounds of public policy and public security. - § 86 Abs 2 FPG uses the word “auszuweisen”. It is therefore the relevant provision to check as to Article 28 (3) of the Directive, even if the official transposition of the Austrian government is unclear by using the words “shall be removed”. - But the possibility to remove aliens under § 86 Abs 2 FPG i.c.w. § 55 Abs 1 NAG is not limited to Union citizens who have resided in Austria for 10 years. It is applicable to Union citizens and their family members without any requirement of time of residence. - An additional conformity problem is that a removal decision can be made on “grounds of public policy and public security”. Therefore, the restriction to imperative grounds of public security as required by the Directive is not transposed. - However, there is partly literal transposition by § 86 Abs 1 FPG. But § 86 Abs 1 FPG stipulates the requirements for an “Aufenhaltsverbot”. (in English “exclusion decision” according to the



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official transposition of the Austrian government). - Even if the ratio and wording of § 86 Abs 1 and Abs 2 FPG and § 55 Abs 1 NAG are unclear, the phrases used in § 86 Abs 1 FPG indicate that this provision should transpose Article 28 (3) of this Directive. - § 86 Abs 1 FPG refers to Union citizens and their family members; therefore it is in some respects more favourable than the provision of this Directive which just covers Union citizens. According to Article 37 of this Directive this is no problem. - Other conformity problems: Under national law persons must have their main place of abode (in German “Hauptwohnsitz”) within Austria for an uninterrupted (in German “ununterbrochen”) period of ten years which is a stricter requirement than the requirement “have resided in the host Member State for the previous 10 years” provided for in the Directive. - Another conformity problem is that the Austrian provision allows an expulsion decision only on “imperative grounds of public security”. According to § 68 Abs 1 FPG an expulsion order is possible “if it may be assumed […] that the public order or security of the Republic of Austria would be permanently and substantially endangered”. The wording of the Austrian provision indicates a lower degree of protection than the Directive.



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(b) are a minor, except if the expulsion is necessary for the best interests of the child, as provided for in the United Nations Convention on the Rights of the Child of 20 November 1989.

§ 86 Abs 1 FPG „[…] Dasselbe gilt für Minderjährige, es sei denn, das Aufenthaltsverbot wäre zum Wohl des Kindes notwendig, wie es im Übereinkommen der Vereinten Nationen vom 20. November 1989 über die Rechte des Kindes vorgesehen ist.“

“[…] The same shall apply to minors unless the exclusion order is necessary for the welfare of the child, as provided in the United Nations Convention of 20 November 1989 on the rights of the child.”

N, Incomplet

e

Mostly literal transposition but conformity problems Although there is literal transposition by § 86 Abs 1 FPG, there are the same conformity problems as under Art. 28.1 lit a. of the Directive concerning the degree of protection against expulsion as to minors stipulated in the Directive because § 86 Abs 1 FPG says that “the same” should apply to minors. See therefore Art 28.1 lit a.

Art. 29.1

Public health 1. The only diseases justifying measures restricting freedom of movement shall be the diseases with epidemic potential as defined by the relevant instruments of the World Health Organisation and other infectious diseases or contagious parasitic diseases if they are the subject of protection provisions applying to nationals of the host Member State.

§ 21 Abs 5 Z 1 FPG § 23 Abs 1, 2 & 3 FPG

„Öffentliche Interessen stehen der Erteilung eines Visums insbesondere dann entgegen, wenn 1. der Fremde nicht über einen alle Risiken abdeckenden Krankenversicherungsschutz verfügt oder er im Gesundheitszeugnis gemäß § 23 eine schwerwiegende Erkrankung aufweist;“ „(1) Zur Vermeidung einer Gefährdung der Volksgesundheit kann der Bundesminister für Gesundheit und Frauen mit Verordnung bestimmte Staaten bezeichnen, in denen ein wesentlich erhöhtes Risiko der Ansteckung mit 1. einer im üblichen Sozialkontakt leicht übertragbaren anzeigepflichtigen Krankheit (schwerwiegende Erkrankung) im Sinn des Epidemiegesetzes 1950, BGBl. Nr. 186, 2. einer sonstigen schwerwiegenden nicht anzeige- oder meldepflichtigen

“Public interests shall prevent the granting of a visa in particular if: 1. the alien does not have sickness insurance protection to cover all risks or if the health certificate pursuant to §23 shows that he has a serious illness;” “(1) In order to avoid any danger to public health, the Federal Minster for Health and Women may, by regulation, designate particular countries in which there exists a significantly high risk of infection with 1. a noticeable disease which is easily communicable in normal social contact (serious disease) for the purposes of the Austrian Epidemic Act (Epidemiegesetz) 1950, BGBl. No. 186, 2.another serious non-noticeable or reportable infectious disease or 3. a reportable tuberculosis

N, Incorrect

Unclear and incorrect transposition. - Provisions which may restrict the freedom on grounds of public health do exist in the context of the provisions concerning the granting of visa (§ 21 Abs 1 Z 3, Abs 5 Z 1, § 23 FPG). But it is unclear whether these provisions are applicable to family members who are entitled to freedom of movement. - There is incorrect transposition in case of removal orders because they can be issued under § 86 Abs 2 FPG i.c.w. § 55 Abs 1 NAG if there is a “danger for reasons of […] public health” whereas Art 29.1 allows measures restricting freedom of movement on grounds of public health only on the basis of specific diseases as defined by Art. 29.1.



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Infektionskrankheit oder 3. einer meldepflichtigen Tuberkulose im Sinn des § 3 lit. a des Tuberkulosegesetzes, BGBl. Nr. 127/1968, und dadurch das Risiko der nachhaltigen und ernsthaften Gefährdung einer größeren Zahl von Menschen gegeben ist. (2) Fremden, die sich in den letzten sechs Monaten vor ihrer Einreise in das Bundesgebiet in dem in einer Verordnung nach Abs. 1 bezeichneten Staat aufgehalten haben, darf ein Visum erteilt werden, wenn sie ein Gesundheitszeugnis beibringen, das das Freisein von den in der Verordnung nach Abs. 1 genannten Krankheiten bezeichnet. (3) Die Verordnung hat die Krankheit zu bezeichnen, für die die Voraussetzungen nach Abs. 1 gegeben sind, sowie den Inhalt und die Gültigkeitsdauer des Gesundheitszeugnisses festzulegen.“

within the meaning of §3(a) of the Austrian Tuberculosis Act (Tuberkulosesgesetz), BGBl. No. 127/1968, and as a result there exists a risk of lasting and serious danger to a relatively large number of people. (2) A visa may be granted to aliens who, in the last six months before they enter the Federal territory, have been resident in the country referred to in a regulation pursuant to (1), if they produce a health certificate certifying them as being free from the diseases referred to in the regulation pursuant to (1). (3) The regulation shall refer to the disease in respect of which the requirements under (1) apply, and it shall specify the content and the validity period of the health certificate.”

Art.29.2 2. Diseases occurring after a three-month period from the date of arrival shall not constitute grounds for expulsion from the territory.

NT No transposition. Removal orders can be issued under § 86 Abs 2 FPG i.c.w. § 55 Abs 1 NAG if there is a “danger for reasons of […] public health”. There is no specification of this term and no restriction in the sense of Article 29 (2) of the Directive.

Art.29.3 3. Where there are serious indications that it is necessary, Member States may, within three months of the date of arrival, require persons entitled to the right of residence to undergo, free of charge, a

Y, More

favourable

More favourable treatment The non-transposition of the present provision of the Directive results in a more favourable treatment as the Austrian authorities may not go



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Comments/Problems

medical examination to certify that they are not suffering from any of the conditions referred to in paragraph 1. Such medical examinations may not be required as a matter of routine.

beyond of what is explicitly allowed by national law.

Art.30.1 Notification of decisions 1. The persons concerned shall be notified in writing of any decision taken under Article 27(1), in such a way that they are able to comprehend its content and the implications for them.

§ 11 Abs 4 FPG Art 2 Abs 1 & Abs 2 lit A Z 1 & 2 EGVG § 58 AVG

„Entscheidungen gemäß Abs.1 sind im Fall begünstigter Drittstaatsangehöriger schriftlich in einer Weise auszufertigen, dass der Betroffene deren Inhalt und Wirkung nachvollziehen kann. […]“ [see Art. 3.2] [see Art 15] „(1) Jeder Bescheid ist ausdrücklich als solcher zu bezeichnen und hat den Spruch und die Rechtsmittelbelehrung zu enthalten. (2) Bescheide sind zu begründen, wenn dem Standpunkt der Partei nicht vollinhaltlich Rechnung getragen oder über Einwendungen oder Anträge von Beteiligten abgesprochen wird. (3) Im übrigen gilt auch für Bescheide § 18 Abs. 4.“

Decisions pursuant to (1) shall, in the case of favoured third country nationals, be drawn up in writing in such a manner that the person concerned can understand the content and effect thereof. […]” “(1) Any ruling shall expressly be named as such and contain the decision and the information regarding appeals. (2) Whenever the point of view of the party is not fully shared or decisions are taken on objections or submissions of persons involved, the reasons therefore shall be stated in the ruling. (3) § 18 para 4 shall apply also to rulings.”

N, Incomplet

e

Incomplete transposition. - There is literal transposition in conjunction with the procedural rules concerning specific visa procedures before the Austrian representative authorities (see § 11 Abs 4 FPG). - There is no literal transposition regarding other restrictive measures under the FPG but whenever the Austrian authorities are acting under the FPG they have to apply the AVG apart from lex specialis. (see Art II EGVG). But it is doubtful if the AVG provides full effective transposition because decisions, even if they are done by notice, need not necessarily be notified in writing. See also Art 15. - The second aspect of Art. 30.1 of the Directive which requires a form of notification which guarantees that they are able to comprehend the content of the decision and the implications for them is not transposed under the AVG. - There is no transposition in conjunction with the refusal of entry provided under § 86 Abs 4 and Abs 5 FPG, which are “measures without proceedings” according to the heading of § 86 FPG.

Art.30.2 2. The persons concerned shall be informed, precisely and in full, of the public policy, public security or public

§ 11 Abs 4 FPG

„[…] Dem Betroffenen sind die Gründe der öffentlichen Ordnung, Sicherheit oder Gesundheit, die

“[…] The reasons of public order, security or health on which the decision affecting the

N, Incomplet

e and

Incomplete transposition. - There is literal transposition in conjunction with the special



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health grounds on which the decision taken in their case is based, unless this is contrary to the interests of State security.

§ 58 Abs 2 AVG

der ihn betreffenden Entscheidung zugrunde liegen, genau und umfassend mitzuteilen, es sei denn, dass Gründe der Sicherheit der Republik Österreich dieser Mitteilung entgegenstehen. […]“ „Bescheide sind zu begründen, wenn dem Standpunkt der Partei nicht vollinhaltlich Rechnung getragen […] wird.“

person concerned are based shall be communicated to him precisely and in full unless reasons of the security of the Republic of Austria prevent such communication. […] „Whenever the point of view of the party is not fully shared or decisions are taken on objections or submissions of persons involved, the reasons therefore shall be stated in the ruling”

Incorrect procedural rules concerning especially visa procedures before the Austrian representative authorities (see § 11 Abs 4 FPG). - There is no literal transposition regarding other restrictive measures under the FPG but whenever the Austrian authorities are acting under the FPG they have to apply the AVG apart from lex specialis. Under the rules of the AVG a decision must give reasons, e.g., whenever the point of view of the party is not fully shared. The fact that the specific quality of the notification (“precisely and in full”) required by the Directive is not specifically transposed is probably a conformity problem. - Incorrect transposition because § 86 Abs 4 and 5 FPG allow refusals of entry, which are “measures without proceedings” according to the heading of § 86 FPG.

Art.30.3 3. The notification shall specify the court or administrative authority with which the person concerned may lodge an appeal, the time limit for the appeal and, where applicable, the time allowed for the person to leave the territory of the Member State. Save in duly substantiated cases of urgency, the time allowed to leave the territory shall be not less than one month from the date of notification.

§ 11 Abs 4 FPG § 61 Abs 1 AVG § 86 Abs 3 FPG

„[…] In der schriftlichen Ausfertigung der Begründung ist auch die Berufungsbehörde anzugeben.“ „Die Rechtsmittelbelehrung hat anzugeben, ob der Bescheid noch einem weiteren Rechtszug unterliegt oder nicht und bejahendenfalls, innerhalb welcher Frist und bei welcher Behörde das Rechtsmittel einzubringen ist.“ „EWR-Bürgern, Schweizer Bürgern und begünstigten

“[…] The appeal authority shall also be stated in the written copy of the grounds.” “The instructions on the right to appeal shall indicate whether the ruling may be appealed or not, and, in the affirmative case, it shall also indicate the authority and the deadline for lodging such appeal.” “If a removal order or exclusion order is made, EEA citizens,

N, Incomplet

e

Incomplete transposition. As to the first sentence of this provision of the Directive: - However, effective transposition is probably guaranteed by the AVG. § 61 AVG requires the instruction of rights of appeal of a notice. - Incorrect transposition because § 86 Abs 4 and Abs 5 FPG allow refusals of entry, which are “measures without proceedings” according to the heading of § 86 FPG. As to the second sentence of this provision of the Directive: - By postponing the enforcement 1



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Drittstaatsangehörigen ist bei Erlassung einer Ausweisung oder eines Aufenthaltsverbotes von Amts wegen ein Durchsetzungsaufschub von einem Monat zu erteilen, es sei denn, die sofortige Ausreise des Fremden wäre im Interesse der öffentlichen Ordnung oder Sicherheit erforderlich.“

Swiss citizens and favoured third country nationals shall be officially granted a postponement of enforcement of one month unless the alien's immediate departure is necessary in the interests of public order or security.”

month in cases of removal and exclusion orders there § 86 Abs 3 FPG effectively transposes the Directive. However, a conformity problem may arise as it is possible to go below the 1 month limit on grounds of public order and security whereas the Directive only allows this in a case of urgency, the latter conditions not having being transposed.

Art.31.1 Procedural safeguards 1. The persons concerned shall have access to judicial and, where appropriate, administrative redress procedures in the host Member State to appeal against or seek review of any decision taken against them on the grounds of public policy, public security or public health.

§ 9 Abs 1 FGP § 9 Abs 3 FGP

„Über die Berufung gegen Entscheidungen nach diesem Bundesgesetz entscheidet, sofern nichts anderes bestimmt ist, 1. im Fall von EWR-Bürgern, Schweizer Bürgern und begünstigten Drittstaatsangehörigen die unabhängigen Verwaltungssenate in den Ländern und 2. in allen anderen Fällen die Sicherheitsdirektionen in letzter Instanz.“ „Gegen Entscheidungen über Anträge auf Erteilung von Einreisetitel (§ 2 Abs. 1) an andere als begünstigte Drittstaatsangehörige ist eine Berufung nicht zulässig.“

„Decisions relating to appeals against decisions under this Federal Act shall, unless otherwise provided, be made by the following: 1.the independent administrative boards in the Federal States, in the case of EEA citizens, Swiss citizens and favoured third country nationals, and 2. the Security Directorates at last instance, in all other cases.” “No appeal is admissible against decisions relating to applications for the grant of entry permits (§2(1)) to persons other than favoured third country nationals ((4)).”

Y Effective transposition. The Unabhängige Verwaltungssenate (independent administrative boards) are tribunals in the sense of Art. 6 EMRK. See the decision of the ECJ C-136/03.

Art.31.2 2. Where the application for appeal against or judicial review of the expulsion decision is accompanied by an application for an interim order to suspend enforcement of that decision, actual removal from the territory may not take place until such time as the decision on the interim order has been taken, except: — where the expulsion decision is based

N, Ambiguo

us

Unclear transposition. There is no explicit transposition because under the AVG the appeal against a removal decision in principle has postponing effect. As a consequence, there is no need to apply for an interim order to suspend enforcement. However, it is unclear whether the interplay of various provisions of Austrian law provide



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on a previous judicial decision; or — where the persons concerned have had previous access to judicial review; or — where the expulsion decision is based on imperative grounds of public security under Article 28(3).

for effective transposition because according to some provisions (e.g., § 64 Abs 2 AVG, §§ 58, 64 FPG) in certain cases a repeal against a removal may have not a postponing effect. Moreover, it is unclear whether these provisions of the FPG are applicable to removals against Union citizens and their family members at all.

Art.31.3 3. The redress procedures shall allow for an examination of the legality of the decision, as well as of the facts and circumstances on which the proposed measure is based. They shall ensure that the decision is not disproportionate, particularly in view of the requirements laid down in Article 28.

§ 66 Abs 4 AVG

„Außer dem in Abs. 2 erwähnten Fall hat die Berufungsbehörde, sofern die Berufung nicht als unzulässig oder verspätet zurückzuweisen ist, immer in der Sache selbst zu entscheiden. Sie ist berechtigt, sowohl im Spruch als auch hinsichtlich der Begründung (§ 60) ihre Anschauung an die Stelle jener der Unterbehörde zu setzen und demgemäß den angefochtenen Bescheid nach jeder Richtung abzuändern.“

„Except for the case stated in para 2, the appellate authority shall always decide the matter directly, unless the appeal is rejected as inadmissible or late. It is authorised to replace the opinion of the lower instance authority by its own opinion, both with regard to the decision as well as the reasons (§60) and modify the contested ruling accordingly in any way.”

Y Effective transposition. The appellate authority can replace the opinion of the lower instances with regard to the decisions and the reasons, which means that the appellate body will examine the law and the facts.

Art.31.4 4. Member States may exclude the individual concerned from their territory pending the redress procedure, but they may not prevent the individual from submitting his/her defence in person, except when his/ her appearance may cause serious troubles to public policy or public security or when the appeal or judicial review concerns a denial of entry to the territory.

N, Ambiguo

us

Unclear transposition. There is no specific transposition and it is unclear whether the interplay of various provisions which adjust e.g., the departure obligation, the enforcement of decisions, the conditions for the postponement of enforcement of decisions (§ 67 ff FPG, § 86 Abs 3 FPG), and the re-entry during the validity period of an exclusion order (§ 72 FPG) and the special permit after refusal of entry, expulsion and removal (§ 73 FPG) provide the guarantee required by Art.31.4.



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Art.32.1 Duration of exclusion orders 1. Persons excluded on grounds of public policy or public security may submit an application for lifting of the exclusion order after a reasonable period, depending on the circumstances, and in any event after three years from enforcement of the final exclusion order which has been validly adopted in accordance with Community law, by putting forward arguments to establish that there has been a material change in the circumstances which justified the decision ordering their exclusion.

§ 65 Abs 1 FPG

“Das Aufenthaltsverbot oder das Rückkehrverbot ist auf Antrag oder von Amts wegen aufzuheben, wenn die Gründe, die zu seiner Erlassung geführt haben, weggefallen sind.“

“The exclusion order or the prohibition against returning shall be cancelled on application or ex officio if the reasons which led to the order being made have ceased to apply.”

Y Effective transposition. The national provisions are more favourable in the sense of Article 37 of the Directive because the exclusion order can be cancelled not just on application but also officially without any time limit. The Austrian provision allows the persons concerned to know that they have the right even before the time limit of the Directive because the law mentions that “the exclusion order or expulsion against returning shall be cancelled on application or officially if the reasons which led to the order being made have ceased to apply.” So they know that they have the right.

The Member State concerned shall reach a decision on this application within six months of its submission.

§ 73 AVG „(1) Die Behörden sind verpflichtet, wenn in den Verwaltungsvorschriften nicht anderes bestimmt ist, über Anträge von Parteien (§ 8) und Berufungen ohne unnötigen Aufschub, spätestens aber sechs Monate nach deren Einlangen den Bescheid zu erlassen. Sofern sich in verbundenen Verfahren (§ 39 Abs. 2a) aus den anzuwendenden Rechtsvorschriften unterschiedliche Entscheidungsfristen ergeben, ist die zuletzt ablaufende maßgeblich. (2) Wird der Bescheid nicht innerhalb der Entscheidungsfrist erlassen, so geht auf schriftlichen Antrag der Partei die Zuständigkeit zur Entscheidung auf die sachlich in Betracht kommende Oberbehörde, wenn aber gegen den Bescheid

“(1) Unless provided differently in the administrative rules and regulations, the authorities are obligated to issue a ruling on submissions of parties (§8) and appeals without undue delay, however at the latest within six months after receipt. Provided that the legal provisions applicable result in different terms for the decision of combined proceedings (§39 para 2a), the term with the latest expiry date shall apply. (2) In case the ruling is not issued within the term allowed for the decision, the party may request in writing that the higher authority having jurisdiction in the matter shall be in charge to take the decision; however, if an appeal against the ruling would be permitted to be filed with the independent administrative panel

N, Incomplet

e

Incomplete transposition. - Even if the authorities are obliged to reach a decision within 6 month there may be a conformity problem in case the authority does not issue the decision within this period which includes a complicated request for change of jurisdiction.



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Berufung an den unabhängigen Verwaltungssenat erhoben werden könnte, auf diesen über (Devolutionsantrag). Der Devolutionsantrag ist bei der Oberbehörde (beim unabhängigen Verwaltungssenat) einzubringen. Er ist abzuweisen, wenn die Verzögerung nicht auf ein überwiegendes Verschulden der Behörde zurückzuführen ist. (3) Für die Oberbehörde (den unabhängigen Verwaltungssenat) beginnt die Entscheidungsfrist mit dem Tag des Einlangens des Devolutionsantrages zu laufen.

of appeals, the latter one shall be in charge of the decision (request for transfer of jurisdiction). The request of transfer of jurisdiction shall be filed with the higher authority (the independent administrative panel of appeal). It shall be rejected if the delay is not mainly due to a fault of the authority. (3) The deadline for the decision of the higher authority (the independent administrative panel of appeal) starts on the day on which the request for the transfer of jurisdiction is received.”

Art.32.2 2. The persons referred to in paragraph 1 shall have no right of entry to the territory of the Member State concerned while their application is being considered.

NT No transposition No provisions are made for allowing entry during the review of applications to revoke a residence ban.

Art.33.1 Expulsion as a penalty or legal consequence 1. Expulsion orders may not be issued by the host Member State as a penalty or legal consequence of a custodial penalty, unless they conform to the requirements of Articles 27, 28 and 29.

Y No provisions made under the Austrian law.

Art.33.2 2. If an expulsion order, as provided for in paragraph 1, is enforced more than two years after it was issued, the Member State shall check that the individual concerned is currently and genuinely a threat to public policy or public security and shall assess whether there has been any material change in the circumstances since the expulsion order was issued.

Y see Art.33.1

Art.34 Publicity Member States shall disseminate

n/a No transposition necessary



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information concerning the rights and obligations of Union citizens and their family members on the subjects covered by this Directive, particularly by means of awareness-raising campaigns conducted through national and local media and other means of communication.

Art.35 Abuse of rights Member States may adopt the necessary measures to refuse, terminate or withdraw any right conferred by this Directive in the case of abuse of rights or fraud, such as marriages of convenience. Any such measure shall be proportionate and subject to the procedural safeguards provided for in Articles 30 and 31.

(A) § 109 FPG § 110 FPG

„Hat ein Gericht oder eine Verwaltungsbehörde bei Vornahme einer Entscheidung oder Amtshandlung begründeten Verdacht, dass eine Aufenthaltsehe oder Aufenthaltsadoption vorliege, hat sie dies der zuständigen Fremdenpolizeibehörde mitzuteilen.“ „Teilt die Niederlassungs- und Aufenthaltsbehörde der nach dem Wohnsitz des Fremden zuständigen Fremdenpolizeibehörde mit, dass in Bezug auf einen bestimmten Fremden ein begründeter Verdacht des Vorliegens einer Aufenthaltsehe oder Aufenthaltsadoption bestehe, hat die Fremdenpolizeibehörde diesen Umstand zu erheben und der Niederlassungs- und Aufenthaltsbehörde das Ergebnis der Erhebungen binnen einer Frist von drei Monaten mitzuteilen. Erfolgt keine Mitteilung in dieser Frist, hat die Niederlassungs- und Aufenthaltsbehörde davon auszugehen, dass die Erhebungen der Fremdenpolizeibehörde ergebnislos verlaufen sind.“

“If a court or an administrative authority, when making a decision or performing an official action, has reason to suspect a marriage or an adoption of taking place for the purposes of obtaining residence, it shall notify the competent Aliens Police Authority thereof.” “If the settlement and residence authority notifies the Aliens Police Authority which has jurisdiction according to the alien's place of abode that there are grounds for suspecting, in connection with a particular alien, a marriage or an adoption taking place in order to obtain residence, the Aliens Police Authority shall investigate this matter and shall notify the settlement and residence authority of the result of the investigations within three months. If no notification takes place within this time limit, the settlement and residence authority shall assume that the investigations by the Aliens Police Authority have produced no result.”

N, Ambiguo

us

Unclear transposition - In exercise of the optional right given to MS by Art 35, Austria has adopted, for instance, measures against marriages as well as adoptions of convenience. - The cases of abuse of rights or fraud are not enumerated exhaustively by the Directive. Thus, an additional provision on adoption should not be a problem. - There are different measures to prevent marriages and adoptions. The order include obligations to notify the alien police as well as penalties e.g. in cases of entering into or arranging marriages to obtain residence and e.g. in the case of arranging or initiating adoptions professionally prison sentence - There is no specific provision as to the guarantee of the principle of proportionality as well as of the procedural safeguards as enshrined in Art 30 and 31 which cover such measures. This can be a conformity problem. The guarantees are ensured partly by the AVG and partly by the VStG (Verwaltungsstrafgesetz, Administrative Penal Act)



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§ 117 Abs 1 – 5 FPG

„Ein Österreicher oder ein zur Niederlassung im Bundesgebiet berechtigter Fremder, der eine Ehe mit einem Fremden eingeht, ohne ein gemeinsames Familienleben im Sinn des Art. 8 EMRK führen zu wollen und weiß oder wissen musste, dass sich der Fremde für die Erteilung oder Beibehaltung eines Aufenthaltstitels, für den Erwerb der österreichischen Staatsbürgerschaft oder zur Hintanhaltung aufenthaltsbeendender Maßnahmen auf diese Ehe berufen will, ist, wenn die Tat nicht nach einer anderen Bestimmung mit strengerer Strafe bedroht ist, vom Gericht mit Geldstrafe bis zu 360 Tagessätzen zu bestrafen. (2) Ein Österreicher oder ein zur Niederlassung im Bundesgebiet berechtigter Fremder, der mit dem Vorsatz, sich oder einen Dritten durch ein dafür geleistetes Entgelt unrechtmäßig zu bereichern, eine Ehe mit einem Fremden eingeht, ohne ein gemeinsames Familienleben im Sinn des Art. 8 EMRK führen zu wollen und weiß oder wissen musste, dass sich der Fremde für die Erteilung oder Beibehaltung eines Aufenthaltstitels, für den Erwerb der österreichischen Staatsbürgerschaft oder zur Hintanhaltung aufenthaltsbeendender Maßnahmen auf diese Ehe

“(1) Any Austrian or any alien entitled to settle within the Federal territory who enters into a marriage with an alien without intending to lead a joint family life within the meaning of Article 8 ECHR and who knows or who should have known that the alien will rely upon this marriage for the purpose of the granting or retaining of a residence permit, for the purpose of acquiring Austrian citizenship or in order to prevent measures to bring the residence to an end shall be sentenced by the court to a fine of up to 360 daily rate units unless the offence is penalised by another provision with a more severe penalty. (2) Any Austrian or any alien entitled to settle within the Federal territory who, with the intention of unlawfully enriching himself or a third party by means of a payment made for this purpose, enters into a marriage with an alien without intending to lead a joint family life within the meaning of Article 8 ECHR and who knows or should have known that the alien will rely upon this marriage for the purpose of the granting or retaining of a residence permit, for the purpose of acquiring Austrian citizenship or in order to prevent measures to bring residence to an end shall be sentenced by the court to a term of imprisonment of up to one



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§ 118 Abs 1 - 5 FPG

berufen will, ist, wenn die Tat nicht nach einer anderen Bestimmung mit strengerer Strafe bedroht ist, vom Gericht mit Freiheitsstrafe bis zu einem Jahr oder mit Geldstrafe bis zu 360 Tagessätzen zu bestrafen. (3) Wer gewerbsmäßig Ehen vermittelt oder anbahnt, obwohl er weiß oder wissen musste, dass sich die Betroffenen für die Erteilung oder Beibehaltung eines Aufenthaltstitels, für den Erwerb der österreichischen Staatsbürgerschaft oder zur Hintanhaltung aufenthaltsbeendender Maßnahmen auf diese Ehe berufen, aber kein gemeinsames Familienleben im Sinn des Art. 8 EMRK führen wollen, ist, wenn die Tat nicht nach einer anderen Bestimmung mit strengerer Strafe bedroht ist, vom Gericht mit Freiheitsstrafe bis zu drei Jahren zu bestrafen. (4) Der Fremde, der sich im Sinne des Abs. 1 auf die Ehe berufen will, ist als Beteiligter nicht zu bestrafen. (5) Nach Abs. 1 ist nicht zu bestrafen, wer freiwillig, bevor eine zur Strafverfolgung berufene Behörde von seinem Verschulden erfahren hat, an der Feststellung des Sachverhaltes mitwirkt. (1) Ein Österreicher oder ein zur Niederlassung im Bundesgebiet berechtigter Fremder, der einen eigenberechtigten Fremden an

year or a fine of up to 360 daily rate units unless the offence is penalised by another provision with a more severe penalty. (3) Any person who arranges or initiates marriages by way of trade, although he knows or should have known that the persons concerned rely upon this marriage for the purpose of the granting or retaining of a residence permit, for the purpose of acquiring Austrian nationality or in order to prevent measures to terminate residence, but who do not intend to lead a joint family life within the meaning of Article 8 ECHR shall be sentenced by the court to a term of imprisonment of up to three years unless the offence is penalised by another provision with a more severe penalty. (4) The alien who intends to rely upon the marriage pursuant to (1) shall not be penalised as a party involved. (5) Any person who voluntarily cooperates in establishing the facts before an authority called upon to prosecute the matter has discovered his guilt shall not be penalised under (1). (1) Any Austrian or any alien entitled to settle within the Federal territory who adopts an adult alien and makes an



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Kindes statt annimmt und einen Antrag zur Bewilligung der Annahme an Kindes statt beim Pflegschaftsgericht stellt, obwohl er weiß oder wissen musste, dass sich der Fremde für die Erteilung oder Beibehaltung eines Aufenthaltstitels, für den Erwerb der österreichischen Staatsbürgerschaft oder zur Hintanhaltung aufenthaltsbeendender Maßnahmen auf diese Annahme an Kindes statt beruft, aber keine dem Verhältnis zwischen leiblichen Eltern und Kindern entsprechende Beziehung führen will, ist, wenn die Tat nicht nach einer anderen Bestimmung mit strengerer Strafe bedroht ist, vom Gericht mit Geldstrafe bis zu 360 Tagessätzen zu bestrafen. (2) Ein Österreicher oder ein zur Niederlassung im Bundesgebiet berechtigter Fremder, der mit dem Vorsatz, sich oder einen Dritten durch ein dafür geleistetes Entgelt unrechtmäßig zu bereichern, einen eigenberechtigten Fremden an Kindes statt annimmt, obwohl er weiß oder wissen musste, dass sich der Fremde für die Erteilung oder Beibehaltung eines Aufenthaltstitels, für den Erwerb der österreichischen Staatsbürgerschaft oder zur Hintanhaltung aufenthaltsbeendender Maßnahmen auf diese Annahme an Kindes statt beruft, aber keine dem Verhältnis zwischen

application to the Court of Custodianship for consent to the adoption, although he knows or should know that the alien is relying upon this adoption for the purpose of the granting or retaining of a residence permit, for the purpose of acquiring Austrian citizenship or in order to prevent measures to terminate the residence but does not intend to have a relationship in accordance with the relations between natural parents and children shall be sentenced by the court to a fine of up to 360 daily rate units unless the offence is penalised by another provision with a more severe penalty. (2) Any Austrian or any alien entitled to settle within the Federal territory who, with the intention of unlawfully enriching himself or a third party by means of a payment made for this purpose, adopts an adult alien although he knows or should know that the alien is relying upon this adoption for the purpose of the granting or retaining of a residence permit, for the purpose of acquiring Austrian citizenship or in order to prevent measures to terminate the residence but who does not intend to have a relationship in accordance with the relations between natural parents and children shall be sentenced by the court to a term of



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leiblichen Eltern und Kindern entsprechende Beziehung führen will, ist, wenn die Tat nicht nach einer anderen Bestimmung mit strengerer Strafe bedroht ist, vom Gericht mit Freiheitsstrafe bis zu einem Jahr oder mit Geldstrafe bis zu 360 Tagessätzen zu bestrafen. (3) Wer gewerbsmäßig (§ 70 StGB) Adoptionen nach Abs. 1 oder 2 vermittelt oder anbahnt, obwohl er weiß oder wissen musste, dass sich die Betroffenen für die Erteilung oder Beibehaltung eines Aufenthaltstitels, für den Erwerb der österreichischen Staatsbürgerschaft oder zur Hintanhaltung aufenthaltsbeendender Maßnahmen auf diese Annahme an Kindes statt berufen, aber keine dem Verhältnis zwischen leiblichen Eltern und Kindern entsprechende Beziehung führen wollen, ist, wenn die Tat nicht nach einer anderen Bestimmung mit strengerer Strafe bedroht ist, vom Gericht mit Freiheitsstrafe bis zu drei Jahren zu bestrafen. (4) Das Wahlkind ist nach Abs. 1 als Beteiligter nicht zu bestrafen. (5) Nach Abs. 1 ist nicht zu bestrafen, wer freiwillig, bevor eine zur Strafverfolgung berufene Behörde von seinem Verschulden erfahren hat, an der Feststellung des Sachverhaltes mitwirkt.“

imprisonment of up to one year or a fine of up to 360 daily rate units, unless the offence is penalised by another provision with a more severe penalty. (3) Any person who, by way of trade (§70 StGB) arranges or initiates adoptions under (1) or (2) although he knows or should know that the parties concerned are relying upon this adoption for the purpose of the granting or retaining of a residence permit, for the purpose of acquiring Austrian citizenship or in order to prevent measures to terminate the residence, but who do not intend to have a relationship in accordance with the relations between natural parents and children, shall be sentenced by the court to a term of imprisonment of up to three years unless the offence is penalised by another provision with a more severe penalty. (4) The adoptive child shall not be penalised under (1) as a party involved. (5) Any person who voluntarily cooperates in establishing the facts before an authority called upon to prosecute the matter has discovered his guilt shall not be penalised under (1).”



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(B) § 30 NAG

“(1) Ehegatten, die ein gemeinsames Familienleben im Sinne des Art 8 EMRK nicht führen, dürfen sich für die Erteilung und Beibehaltung von Unterhaltstiteln nicht auf die Ehe berufen. (2) An Kindes statt angenommene Fremde dürfen sich bei der Erteilung und Beibehaltung von Aufenthaltstiteln nur dann auf diese Adoption berufen, wenn die Erlangung und Beibehaltung des Aufenthaltstitels nicht der ausschließliche oder vorwiegende Grund für die Annahme an Kindes - statt war.”

“(1) Spouses who do not lead a joint family life together within the meaning of Article 8 ECHR may not rely upon the marriage for the purpose of the granting and retention of residence permits. (2) Adopted aliens may only rely upon this adoption in respect of the granting and retention of residence permits if the obtaining and retention of the residence permit was not the exclusive or main reason for the adoption.”

Unclear transposition - In exercise of the optional right given to MS by Art 35, Austria has adopted, for instance, measures against marriages as well as adoptions of convenience. - The cases of abuse of rights or fraud are not exhaustively enumerated by the Directive. Thus, the addition of adoption should not be a problem. - However, taking the definition of “marriages to obtain residence” is very broad and highly problematic in view of Art 35, since it does not particularly refer to any specific (subjective) elements such as an abusive or fraudulous intent. - Furthermore, it is not clear whether § 30 NAG applies to Union citizens and their family members, as it only speaks of “Aufenthaltstitel”. - Moreover, there is no specific provision as to the guarantee of the principle of proportionality as well as to of procedural safeguards enshrined in Art 30 and 31.

Art.36 Sanctions Member States shall lay down provisions on the sanctions applicable to breaches of national rules adopted for the implementation of this Directive and shall take the measures required for their application. The sanctions laid down shall be effective and proportionate. Member States shall notify the Commission of these provisions not later than 30 April 2006 and as promptly as possible in the case of any subsequent changes.

(A) § 120 FPG

„(1) Wer als Fremder 1. nicht rechtmäßig in das Bundesgebiet einreist oder 2. sich nicht rechtmäßig im Bundesgebiet aufhält, begeht eine Verwaltungsübertretung und ist mit Geldstrafe bis zu 2 180 Euro, im Fall ihrer Uneinbringlichkeit mit Freiheitsstrafe bis zu drei Wochen, zu bestrafen. Als Tatort gilt der Ort der Betretung oder des letzten bekannten Aufenthaltes; bei Betretung in einem öffentlichen Beförderungsmittel die nächstgelegene

“(1) Any person who, being an alien: 1. unlawfully enters the Federal territory or 2. unlawfully resides within the Federal territory, shall commit an administrative misdemeanour punishable by a fine of up to €2,180 or, if this fine cannot be collected, a term of imprisonment of up to three weeks. The place of entry or of the last known residence shall be deemed to be the place where the offence is committed; in the

Y Effective transposition See Art. 35 concerning the sanctions for marriage and adoptions to obtain residence. Austrian law contains various sanctions but whether they are “effective and proportional” must be checked case by case.



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Ausstiegsstelle, an der das Verlassen des öffentlichen Beförderungsmittels gemäß dem Fahrplan des Beförderungsunternehmers möglich ist. (2) Wer die Tat nach Abs. 1 begeht, obwohl er wegen einer solchen Tat bereits einmal rechtskräftig bestraft wurde, ist mit Geldstrafe bis zu 4 360 Euro, im Fall ihrer Uneinbringlichkeit mit Freiheitsstrafe bis zu sechs Wochen zu bestrafen. (3) Eine Verwaltungsübertretung gemäß Abs. 1 Z 2 liegt nicht vor, 1. wenn die Ausreise nur in ein Land möglich wäre, in das eine Abschiebung unzulässig (§ 50) ist; 2. solange dem Fremden ein Abschiebungsaufschub erteilt worden ist, 3. im Fall des Aufenthalts eines begünstigten Drittstaatsangehörigen ohne Visum oder 4. solange dem Fremden die persönliche Freiheit entzogen ist. (4) Eine Bestrafung gemäß Abs. 1 Z 2 schließt eine solche wegen der zugleich gemäß Abs. 1 Z 1 begangenen Verwaltungsübertretung aus. (5) Eine Verwaltungsübertretung nach Abs. 1 liegt nicht vor, wenn der Fremde einen Antrag auf internationalen Schutz gestellt hat und ihm der Status des Asylberechtigten oder subsidiär Schutzberechtigten zuerkannt

event of entry in a public means of transport, the offence shall be deemed to have been committed at the first exit point at which it is possible to leave the public means of transport according to the timetable of the transport company. (2) Any person who commits the offence under (1) although he has already been penalised with legal finality for such an offence shall be punishable by a fine of up to €4,360, or if such a fine cannot be collected by a term of imprisonment of up to six weeks. (3) An administrative misdemeanour pursuant to subsection 1(2) shall not apply: 1. if the departure would only be possible to a country to which an expulsion is not permissible (§50); 2. as long as the alien has been granted a stay of expulsion; 3. in the event of the residence of a favoured third country national without a visa, or 4. as long as the alien is deprived of his personal freedom. (4) A sentence under subsection 1(2) shall preclude any sentence in respect of the administrative misdemeanour committed at the same time pursuant to subsection 1(1). (5) An administrative misdemeanour pursuant to (1) shall not apply if the alien has made an application for



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§ 121 Abs 2 Z 2 FPG (B) § 77 Abs 1 Z 5 NAG

wurde. Während des Asylverfahrens ist das Verwaltungsstrafverfahren unterbrochen.“ „(2) Wer […] 2. sein Reisedokument nicht mit sich führt oder gemäß § 32 Abs. 2 verwahrt; […] begeht eine Verwaltungsübertretung und ist mit Geldstrafe bis zu 218 Euro, im Fall ihrer Uneinbringlichkeit mit Freiheitsstrafe bis zu einer Woche, zu bestrafen.“ “Wer […] eine Anmeldebescheinigung oder eine Daueraufenthaltskarte nach §§ 53 und 54 nicht rechtzeitig beantragt, begeht eine Verwaltungsübertretung und ist mit Geldstrafe bis zu 200 Euro zu bestrafen.”

international protection and has been recognised as being entitled to asylum status or entitled to subsidiary protection. The administrative criminal proceedings shall be suspended during the asylum proceedings.” “(2) Any person who […] 2. fails to carry his travel document with him or to keep it safe under §32(2); […] shall commit an administrative misdemeanour and shall be punishable by a fine of up to €218, or if such a fine cannot be collected, by a term of imprisonment of up to one week.” “Any person who […] fails to apply at the proper time for a reporting certificate or a permanent residence card under §§53 and 54, shall commit an administrative misdemeanour and be liable to a fine of up to €200.”

[see Art 8.2 and 9.3]

Art.37 More favourable national provisions The provisions of this Directive shall not affect any laws, regulations or administrative provisions laid down by a Member State which would be more favourable to the persons covered by this Directive.

According to the Austrian government, many provisions of the national legal order fall under this category; as to this and the problems related to it see Art 7.1 (b), 8.2, 8.5 (c), 10.1, 10.2 (a), 10.2 (c), 11.1 as well as, in particular, Art 12.1, 16.1. and 19.1.

Art.38 1. Articles 10 and 11 of Regulation (EEC) No 1612/68 shall be repealed with effect from 30 April 2006. 2. Directives 64/221/EEC, 68/360/EEC,

No transposition necessary



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72/194/EEC, 73/148/EEC, 75/34/EEC, 75/35/EEC, 90/364/EEC, 90/365/EEC and 93/96/EEC shall be repealed with effect from 30 April 2006. 3. References made to the repealed provisions and Directives shall be construed as being made to this Directive.

Art.39 No later than 30 April 2008 the Commission shall submit a report on the application of this Directive to the European Parliament and the Council, together with any necessary proposals, notably on the opportunity to extend the period of time during which Union citizens and their family members may reside in the territory of the host Member State without any conditions. The Member States shall provide the Commission with the information needed to produce the report.

No transposition necessary

Art.40 Transposition 1. Member States shall bring into force the laws, regulations and administrative provisions necessary to comply with this Directive by 30 April 2006.

N The majority of the provisions supposed to transpose the Directive are to be found in the Aliens and Police Act (FPG) and the Settlement and Residence Act (NAG) which were adopted in the framework of the so-called “Aliens Law Package”, BGBl I No 100/2005 which, for its main part, entered into force on 1 January 2006; see § 126 FPG and § 82 NAG.

When Member States adopt those measures, they shall contain a reference to this Directive or shall be accompanied by such a reference on the occasion of their official publication. The methods of making such reference shall be laid down by the Member States.

N As far as can be seen, there is no such reference within the laws in question. However, the official publication of the “Aliens Law Package” in BGBl I No 100/2005 (the Federal Law Gazette) contains in its heading a reference to “CELEX-Nr 32004L0083”. It is doubtful though whether this highly technical



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reference meets the Directive’s requirements with regard to the need of transparency, also vis-à-vis the citizens.

2. Member States shall communicate to the Commission the text of the provisions of national law which they adopt in the field covered by this Directive together with a table showing how the provisions of this Directive correspond to the national provisions adopted.

See the material provided by Austria in the letter to the Commission of 6 December 2006

austria_table_of_correspondence_en

Documents

austrian law

federal act

aliens law package

federal law gazette

residence law

field of aliens law

austrian aliens police

aliens police act fpg