Brussels, 23 May 2001
28-29 May 2001
Subject : Proposal for a Council Directive on minimum standards for giving temporary protection in the event of a mass influx of displaced persons and on measures promoting a balance of efforts between Member States in receiving such persons and bearing the consequences thereof
Delegations will find attached the text of the above-mentioned draft Directive as it results from the discussions of the Permanent Representatives Committee on 23 May 2001. Comments made by delegations are shown in footnotes.
on minimum standards for giving temporary protection in the event of a mass influx of displaced persons and on measures promoting a balance of efforts between Member States in receiving such persons and bearing the consequences thereof
The purpose of this Directive is to establish minimum standards for giving temporary protection in the event of a mass influx of displaced persons from third countries who are unable to return to their country of origin and to promote a balance of efforts between Member States in receiving and bearing the consequences of receiving such persons.
For the purposes of this Directive:
(a) "temporary protection in the event of a mass influx" means a procedure of exceptional character to provide, in the event of a mass influx or imminent mass influx of displaced persons from third countries who are unable to return to their country of origin, immediate and temporary protection to such persons, in particular if there is also a risk that the asylum system will be unable to process this influx without adverse effects for its efficient operation, in the interests of the persons concerned and other persons requesting protection; hereinafter referred to as "temporary protection";
(b) "Geneva Convention" means the Convention of 28 July 1951 relating to the status of refugees, as amended by the New York Protocol of 31 January 1967;
(c) "displaced persons from third countries who are unable to return to their country of origin" means third-country nationals or stateless persons who have had to leave their country or region of origin, or have been evacuated, in particular in response to an appeal by international organisations, and are unable to return in safe and durable conditions because of the situation prevailing in that country, who may fall within the scope of Article 1A of the Geneva Convention or other international or national instruments giving international protection, in particular:
- persons who have fled areas of armed conflict or endemic violence;
- persons at serious risk of or who have been the victims of systematic or generalised violations of their human rights;
(d) "mass influx" means arrival in the Community of a large number of displaced persons from third countries who are unable to return to their country of origin, who come from a specific country or geographical area, whether their arrival in the Community was spontaneous or aided, for example through an evacuation programme;
(e) "refugees" means third-country nationals or stateless persons within the meaning of Article 1A of the Geneva Convention;
(f) "unaccompanied minors" means third-country nationals or stateless persons below the age of eighteen, who arrive on the territory of the Member States unaccompanied by an adult responsible for them whether by law or custom, and for as long as they are not effectively taken into the care of such a person, or minors who are left unaccompanied after they have entered the territory of the Member States.
(g) "residence permit" means any permit or authorisation issued by the authorities of a Member State and taking the form provided for in that State's legislation, allowing a third‑country national or a stateless person to reside on its territory.
(h) "sponsor" means a third-country national enjoying temporary protection in a Member State in accordance with a decision taken under Article 5 and who wants to be joined by members of his/her family.
1. Temporary protection shall not prejudge recognition of refugee status under the Geneva Convention.
2. Member States shall apply temporary protection with due respect for human rights and fundamental freedoms and their obligations regarding non-refoulement.
3. The establishment, implementation and termination of temporary protection shall be the subject of regular consultations with the Office of the United Nations High Commissioner for Refugees (UNHCR) and other relevant international organisations.
4. This Directive shall not apply to persons who have been accepted under temporary protection schemes prior to its entry into force.
5. This Directive shall not affect the prerogative of the Member States to adopt or retain more favourable conditions for persons covered by temporary protection.
Duration and implementation of temporary protection
Without prejudice to Article 6, the duration of temporary protection shall be one year.
Unless terminated under the terms of Article 6(1)(b), it may be extended automatically by six‑monthly periods for a maximum of one year.
Where reasons for temporary protection persist, the Council may decide [by qualified majority], on a proposal from the Commission, which shall also examine any request by a Member State that it submit a proposal to the Council, to extend that temporary protection by up to one year.
1. A mass influx of displaced persons shall be established by a Council decision [adopted by a qualified majority] on a proposal from the Commission, which shall also examine any request by a Member State that it submit a proposal to the Council.
2. The Commission proposal shall include at least :
(a) a description of the specific groups of persons to whom the temporary protection applies;
(b) the date on which the temporary protection will take effect;
(c) an estimation of the scale of the movements of displaced persons.
3. The Council Decision shall have the effect of introducing temporary protection for the displaced persons to which it refers, in all the Member States, in accordance with the provisions of this Directive. The Decision shall include at least :
(a) a description of the specific groups of persons to whom the temporary protection applies;
(b) the date on which the temporary protection will take effect;
(c) information received from Member States on their reception capacity;
(d) information from the Commission, UNHCR and other relevant international organisations.
4. The Council decision shall be based on:
(a) an examination of the situation and the scale of the movements of displaced persons;
(b) an assessment of the advisability of establishing temporary protection, taking into account the potential for emergency aid and action on the ground or the inadequacy of such measures;
(c) information received from the Member States, the Commission, UNHCR and other relevant international organisations.
5. The European Parliament shall be informed of the Council decision.
1. Temporary protection shall come to an end:
(a) when the maximum duration has been reached;
(b) at any time, by Council decision adopted by a qualified majority on a proposal from the Commission, which shall also examine any request by a Member State that it submit a proposal to the Council.
2. The Council decision shall be based on the establishment of the fact that the situation in the country of origin is such as to permit the safe and durable return of those granted temporary protection with due respect for human rights and fundamental freedoms and Member States' obligations regarding non-refoulement. The European Parliament shall be informed of the decision.
1. Member States may extend temporary protection as provided for in this Directive to additional categories of displaced persons over and above those to whom the Council Decision provided for in Article 5 applies, where they are displaced for the same reasons and from the same country or region of origin. They shall notify the Council and the Commission immediately.
2. The provisions of Articles 24, 25 and 26 shall not apply to the use of this possibility, with the exception of the structural support included in the European Refugee Fund set up by Decision 596/2000/EC, under the conditions laid down in that Decision.
Obligations of the Member States towards persons enjoying temporary protection
1. The Member States shall adopt the necessary measures to provide persons enjoying temporary protection with residence permits for the entire duration of the protection. Documents or other equivalent evidence shall be issued for that purpose.
2. Whatever the period of validity of the residence permits referred to in paragraph 1, the treatment granted by the Member States to persons enjoying temporary protection may not be less favourable than that set out in Articles 9 to 16.
3. The Member States shall, if necessary, provide persons to be admitted to their territory for the purposes of temporary protection with every facility for obtaining the necessary visas, including transit visas. Formalities must be reduced to a minimum because of the urgency of the situation. Visas should be free of charge or costs reduced to a minimum.
The Member States shall provide persons enjoying temporary protection with a document, in a language likely to be understood by the beneficiaries, in which the provisions relating to temporary protection and being relevant to them are clearly set out.
To enable the effective application of the Council decision referred to in Article 5, Member States shall register the personal data referred to in Annex II, first indent, with respect to the persons enjoying temporary protection on their territory.
A Member State shall take back a person enjoying temporary protection on its territory, if the said person remains or seeks to enter without authorisation on the territory of another Member State during the period covered by the decision taken under Article 5. Member States can, on basis of a bilateral agreement, decide that this provision should not apply.
The Member States shall authorise, for a period not exceeding that of temporary protection, persons enjoying temporary protection to engage in employed or self-employed activities, subject to rules applicable to the profession, as well as in activities such as educational opportunities for adults, vocational training and practical workplace experience. For reasons of labour market policies, Member States may give priority to EU citizens and citizens of States bound by the Agreement on the European Economic Area and also to legally resident third-country nationals who receive unemployment benefit. Ordinary law in the Member States applicable to remuneration, to the access to social security systems relating to employed or self-employed activities, and other conditions of employment shall apply.
1. The Member States shall ensure that persons enjoying temporary protection have access to suitable accommodation or, if necessary, receive the means to obtain housing.
2. The Member States shall make provision for persons enjoying temporary protection to receive the necessary assistance in terms of social welfare and means of subsistence, if they do not have sufficient resources, as well as for medical care. Without prejudice to paragraph 4, the assistance necessary for medical care shall include at least emergency care and the essential treatment of illness.
3. Where persons enjoying temporary protection are engaged in employed or self‑employed activities, account shall be taken, when fixing the proposed level of aid, of their ability to meet their own needs.
4. The Member States shall provide necessary medical or other assistance to persons enjoying temporary protection who have special needs, such as unaccompanied minors or persons who have undergone torture, rape or other serious forms of psychological, physical or sexual violence.
1. The Member States shall grant persons under 18 years of age enjoying temporary protection access to the education system under the same conditions as nationals of the host Member State. The Member States may stipulate that such access must be confined to the state education system.
2. The Member States may allow adults enjoying temporary protection access to the general education system.
11. A Member State shall, at the request of another Member State, provide information, as contained in Annex II, on a beneficiary of temporary protection which is needed to process a matter under this Article.
1. The Member States shall as soon as possible take measures to ensure the necessary representation of unaccompanied minors enjoying temporary protection by legal guardianship, or, where necessary, representation by an organisation which is responsible for the care and well-being of minors, or by any other appropriate representation.
2. During the period of temporary protection Member States shall provide for unaccompanied minors to be placed:
(a) with adult relatives;
(b) with a foster-family;
(c) in reception centres with special provisions for minors, or in other accommodation suitable for minors.
(d) with the person who looked after the child when fleeing. The Member States shall take the necessary steps to enable this placement. Agreement by the adult person or persons concerned shall be established by the Member States. The views of the child shall be taken into account in accordance with the age and the maturity of the child.
Access to the asylum procedure in the context of temporary protection
1. Persons enjoying temporary protection must be able to lodge an application for asylum at any time.
2. The examination of any asylum application not processed before the end of the period of temporary protection, shall be completed after the end of that period.
The criteria and mechanisms for deciding which Member State is responsible for considering an asylum application shall apply. In particular, the Member State responsible for examining an asylum application submitted by a beneficiary of the temporary protection scheme adopted on the basis of this Directive, is the Member State which has accepted his transfer on its territory .
1. The Member States may provide that temporary protection may not be enjoyed concurrently with the status of asylum seeker while applications are under consideration.
2. Where, after an asylum application has been examined, refugee status or, where applicable, other kind of protection is not granted to a person eligible for or enjoying temporary protection, the Member States shall, without prejudice to Article 28, provide for that person to enjoy or to continue to enjoy temporary protection for the remainder of the period of protection.
Return and measures after temporary protection
When the temporary protection ends, the ordinary law on protection and aliens in the Member States shall apply, without prejudice to Articles 21 to 23.
1. The Member States shall take the measures necessary to make possible the voluntary return of persons enjoying temporary protection or whose temporary protection has ended. The Member States shall ensure that the provisions governing voluntary return of persons enjoying temporary protection facilitate their return with respect for human dignity.
The Member State shall ensure that the decision of those persons to return is taken in full knowledge of the facts. The Member States may provide for exploratory visits.
2. For as long as the temporary protection has not ended, the Member States shall, on the basis of the circumstances prevailing in the country of origin, give favourable consideration to requests for return to the host Member State from persons who have enjoyed temporary protection and exercised their right to voluntary return.
3. At the end of the temporary protection, the Member States may provide for the obligations laid down in Chapter III to be extended individually to persons who have been covered by temporary protection and are benefiting from a voluntary return programme. The extension shall have effect until the date of return.
1. The Member States shall take the measures necessary to ensure that the enforced return of persons whose temporary protection has ended and who are not eligible for admission is conducted in respect of human dignity.
2. In cases of enforced return, Member States shall consider any compelling humanitarian reasons which may make return impossible or unreasonable in specific cases.
1. The Member States shall take the necessary measures concerning the conditions of residence of persons who have enjoyed temporary protection and, in view of their state of health, cannot reasonably be expected to travel for example if they would suffer from serious negative effects if their treatment is interrupted. So long as that situation continues, they shall not be expelled.
2. The Member States may allow families whose children are minors and attend school in a Member State to benefit from residence conditions allowing the children concerned to complete the current school period.
The measures provided for in this Directive shall benefit from the European Refugee Fund set up by Decision 596/2000 , under the terms laid down in that Decision.
1. The Member States shall receive persons who are eligible for temporary protection in a spirit of Community solidarity. They shall indicate – in figures or in general terms – their capacity to receive such persons. This information shall be set out in the decision provided for in Article 5. After that decision has been adopted, the Member States may indicate additional reception capacity by notifying the Council and the Commission. This information shall be passed on swiftly to UNHCR. 
2. The Member States concerned, acting in cooperation with the competent international organisations, shall ensure that the beneficiaries defined in the decision provided for in Article 5, who have not yet arrived in the European Union have expressed their will to be received on their territory.
3. When the number of those entitled to temporary protection following a sudden and massive influx exceeds the reception capacity referred to in paragraph 1, the Council will, as a matter of urgency, examine the situation and take appropriate action, including recommending additional support for Member States affected.
1. For the duration of the temporary protection, the Member States shall cooperate with each other with regard to transferral of the residence of persons enjoying temporary protection from one Member State to another, subject to the consent of the persons concerned to such transferral.
2. A Member State shall communicate requests for transfers to the other Member States and notify the Commission and UNHCR. The Member States shall inform the requesting Member State of their capacity for receiving transferees.
3. A Member State shall, at the request of another Member State, provide information, as contained in Annex II, on a beneficiary of temporary protection which is needed to process a matter under this Article.
4. Where a transfer is made from one Member State to another, the residence permit in the Member State of departure shall expire and the obligations towards the persons concerned relating to temporary protection in the Member State of departure shall come to an end. The new host Member State shall grant temporary protection to the persons concerned.
5. The Member States shall use the model pass set out in Annex I for transfers between Member States of persons enjoying temporary protection.
1. With a view to the administrative cooperation required to implement the temporary protection scheme, the Member States shall each appoint a national contact point, whose address they shall communicate to each other and to the Commission. The Member States shall, in liaison with the Commission, take all the appropriate measures to establish direct cooperation and an exchange of information between the competent authorities.
2. The Member States shall, regularly and as quickly as possible, communicate the data concerning the number of persons covered by temporary protection and full information on the national laws, regulations and administrative provisions relating to the implementation of temporary protection.
1. The Member States may exclude a person from temporary protection if:
- there are serious reasons for considering that :
(a) he/she has committed a crime against peace, a war crime, or a crime against humanity, as defined in the international instruments drawn up to make provision in respect of such crimes;
(b) he/she has committed a serious non-political crime outside the Member State of reception prior to his admission to that Member State as a beneficiary of temporary protection. The severity of the expected persecution is to be weighed against the nature of the criminal offence of which the person concerned is suspected. Particularly cruel actions, even if committed with an allegedly political objective, may be classified as serious non-political crimes. This applies both to the participants in the crime and to its instigators;
(c) he/she has been guilty of acts contrary to the purposes and principles of the United Nations.
- there are reasonable grounds for regarding him/her as a danger to the security of the host Member State or, having been convicted by a final judgement of a particularly serious crime, he/she is a danger to the community of the host Member State.
2. These grounds for exclusion shall be based solely on the personal conduct of the person concerned. Exclusion decisions or measures shall be based on the principle of proportionality. The persons who have been excluded from the benefit of temporary protection by a Member State shall be entitled to legal challenge in the Member State concerned.
The Member States shall lay down the rules on penalties applicable to infringements of the national provisions adopted pursuant to this Directive and shall take all measures necessary to ensure that they are implemented. The penalties provided for must be effective, proportionate and dissuasive.
1. No later than two years after the date specified in Article 31, the Commission shall report to the European Parliament and the Council on the application of this Directive in the Member States and shall propose any amendments that are necessary. The Member States shall send the Commission all the information that is appropriate for drawing up this report.
2. After presenting the report referred to at paragraph 1, the Commission shall report to the European Parliament and the Council on the application of this Directive in the Member States at least every five years.
The Member States shall bring into force the laws, regulations and administrative provisions necessary to comply with this Directive by [31 December 2002] at the latest. They shall forthwith inform the Commission thereof.
When the Member States adopt those provisions, they shall contain a reference to this Directive or be accompanied by such a reference on the occasion of their official publication. Member States shall determine how such reference is to be made.
This Directive shall enter into force on the twentieth day following that of its publication in the Official Journal of the European Communities.
This Directive is addressed to the Member States.
Done at Brussels,
For the Council
Model pass for the transfer of persons under temporary protection
Name of the Member State delivering the pass
Reference number (*):
Issued under Article 26 of Directive EC No ../.. of ../../.. on minimum standards for giving temporary protection in the event of a mass influx of displaced persons and on measures promoting a balance of efforts between Member States in receiving such persons and bearing the consequences thereof.
Valid only for the transfer from ……………….…………………(1) to ………………….…………(2). The person in question must present himself/herself at ………………………………. (3) by ……………………(4)
Issued at: ………………………………………………………………………………………………………………………………….
PLACE AND DATE OF BIRTH: ……………………………………………………………………………………………………......
In case of a minor; name(s) of responsible adult ...................................................................................................................................
SEX : ......................................................
the beneficiary : ....
For the competent
authorities : ..........................................
The pass-holder has been identified by the authorities …………………………….……………………. (5)(6)
The identity of the pass-holder has not been established........................................................
This document is issued only pursuant to Article 26 of Directive EC No ../.. of ../../… and in no way constitutes a document which can be assimilated to a travel document authorising the crossing of the external border or a document proving the individual's identity.
(*) The reference number is allocated by the country from which the transfer to another Member State is made.
(1) Member State from which the transfer is being made.
(2) Member State to which the transfer is being made.
(3) Place where the person must present himself/herself on arrival in the second Member State.
(4) Deadline by which the person must present himself/herself on arrival in the second Member State.
(5) On the basis of the following travel or identity documents, presented to the authorities.
(6) On the basis of documents other than a travel or identity document.
The information referred to in Articles 10, 15 and 26 includes to the extent necessary one or more of the following documents or data :
– personal data on the person concerned (name, nationality, date and place of birth, marital status, family relationship),
– identity documents and travel documents of the person concerned,
– documents concerning evidence of family ties (marriage certificate, birth certificate, certificate of adoption),
– other information essential to establish the person's identity or family relationship,
– residence permits, visas or residence permit refusal decisions issued to the person concerned by the Member State, and documents forming the basis of decisions,
– residence permit and visa applications lodged by the person concerned and pending in the Member State, and the stage reached in the processing of these.
The providing Member State shall notify any corrected information to the requesting Member State.
 D : scrutiny reservation.
 The following recital will be inserted in the preamble :
"Given the exceptional character of the provisions established by this Directive in order to deal with a mass influx or imminent mass influx of displaced persons from third-countries who are unable to return to their country of origin, the protection offered should be of limited duration."
 D : scrutiny reservation.
 I : scrutiny reservation.
 E, F and P : decision to be adopted by unanimity.
 F : wanted to delete subparagraph (c).
 The following recital will be inserted in the preamble :
"With respect to the treatment of persons enjoying temporary protection under this Directive, the Member States are bound by obligations under instruments of international law to which they are party and which prohibit discrimination."
 The following recital will be added to the preamble :
"Member States should enforce adequate measures so that the processing of personal data respects the standard of protection of Directive 95/46/EC of the European Parliament and the Council of 24 October 1995 on the protection of individuals with regard to the processing of personal data and the free movement of such data.".
The following statement will be entered into the Council minutes :
"The Council requests the Commission to undertake a study as to the need for the adoption of additional common measures on the processing of personal data referred to in this Directive, given the measures already adopted by the Member States pursuant to Directive 95/46/EC of the European Parliament and of the Council on the protection of individuals with regard to the processing of data and on the free movement of such data and to submit to it any appropriate proposals."
 D : scrutiny reservation.
Cion : objected to the second sentence.
 F : scrutiny reservation.
D supported by A : wanted to delete this Article and to solve this issue in the framework of the Directive on the right to family reunification.
 E : scrutiny reservation.
 The following statement will be entered into the Council minutes :
"The Council emphasizes the importance of solidarity between Member States in the framework of temporary protection. When indicating its reception capacity in accordance with Article 25, a Member State may take into account the number of third-country nationals who have already sought international protection or who have otherwise recently arrived on its territory.
The Council recalls the role of the European Refugee Fund to support measures under this Directive."
 OJ L 252, 6.10.2000.
 F : wanted to delete the third sentence. The fourth sentence would then be amended as follows :
"After a decision has been adopted by the Council pursuant to Article 5, the Member States may indicate additional reception capacity by notifying the Council and the Commission."
In this context, F also wanted to delete Article 5(3)(c).