Spain: Supreme Court. Chamber of Contentious-Administrative Proceedings n. 2662/2020, 29th July 2020, Appeal No. 1953/2019

Country of Decision:
Country of Applicant:
Date of Decision:
29-07-2020
Citation:
Chamber of Contentious-Administrative Proceedings, Case 2662/2020, of 29 July 2020.
Court Name:
Supreme Court
National / Other Legislative Provisions:
Regulation (EC) No. 562/2006 of the European Parliament and of the Council of 15 March 2006 establishing a Community Code on the rules governing the movement of persons across borders (Schengen Borders Code) – Article 36
article 13 and article 5.
Regulation (EU) 2016/399 of the European Parliament and of the Council of 9 March 2016 on a Union Code on the rules governing the movement of persons across borders (Schengen Borders Code) – Article 6
article 41
Treaty between the Kingdom of Belgium
the Kingdom of Denmark
the Federal Republic of Germany
the Hellenic Republic
the French Republic
Ireland
the Italian Republic
the Grand Duchy of Luxembourg
the Kingdom of the Netherlands
the United Kingdom of Great Britain and Northern Ireland (Member States of the European Communities) and the Kingdom of Spain
the Portuguese Republic
concerning the accession of the Kingdom of Spain and the Portuguese Republic to the European Economic Community and to the European Atomic Energy Community
Act 12/2009 of 30 October regulating the Right of Asylum and Subsidiary Protection (Ley 12/2009
de 30 de octubre
reguladora del derecho de asilo y de la protección subsidiaria) – Article 18
article 25
article 30
article 22
article 33.1.a)
article 31
article 32
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Headnote: 

Asylum applicants in Melilla and Ceuta can change their legal residence with the sole obligation of informing the relevant authorities.

Facts: 

The applicant, from Algeria, is awaiting the decision for his asylum claim in Melilla. He intended to change his residence, presenting his travel ticket and identity documentation, however, the trip was denied on the application of the Schengen rules.

On the 17th October 2017, his application to change his legal residence was rejected by the General Commissary for Foreigners and Borders. He successfully appealed said decision and was granted the possibility to change his residency from Melilla to Almería.

The State’s Attorney appeals this decision before the Supreme Court.

Decision & Reasoning: 

The contested decision, reaffirming the right of the applicant to change his legal residence, was made on the basis that, as his application was admitted to consideration, then he is already subject to the national international protection procedure. As such, he cannot be returned expelled to his home country during the processing of his application, which entitles him the right to change his legal domicile within the Spanish territory, with the obligation of communicating this change.

The State’s Attorney appeals this decision on the basis of the interpretation of articles 18.1 of Act 12/2009, 36 of the Regulation (CE) 562/2006 and the 3.1.F of the Schengen acquis. Article 18.1 of Act 12/2009 responds to the effects of the admission of asylum claims, which the Attorney sustain does not include the right of circulation throughout the national territory. Article 36 of the Regulation (CE) 562/2006 gives a special status to the cities of Ceuta and Melilla, granting the possibility of the State of making identity controls in the people within those territories and any other point of the peninsula. The State’s Attorney affirms this reasoning by applying the applicable doctrine of the CJEU, establishing that articles 5.4 of the mentioned Regulation, as well as art. 4.2 of the Act of the Foreigners contain the prohibition of the change of legal residence from Celta and Melilla to the Peninsula when the decision on an asylum application is pending.

The Court noted that the application of the Schengen acquis of 1985 as a base to appeal this decision is incorrect, as the Schengen Borders Code of 2016 had already been approved. The referenced Article 36 of the old regulations are reproduced in the new instrument in article 41. From the interpretation of this provision, the Court finds that Ceuta and Melilla have indeed a special treatment; however, it does not mean that the provisions of the Agreement of Adhesion are not applicable to these territories.

The Court recognises that applicants pending a decision are considered foreigners, and therefore should be treated as such. Article 18 of Act 12/2009 contains the obligation of informing of the legal residence and any changes that may occur; therefore, from an examination of the wording of the article, we can conclude that a foreigner can change his domicile within the territory.

Outcome: 

Appeal rejected.

Other sources cited: 

National Legislation

Act 12/2009 of 30 October regulating the Right of Asylum and Subsidiary Protection (Ley 12/2009, de 30 de octubre, reguladora del derecho de asilo y de la protección subsidiaria) – Article 18, article 25, article 30, article 22, article 33.1.a), article 31, article 32

Royal Decree 203/1995, of February 10, which approves the Regulations for the application of Law 5/1984, of March 26, regulating the right to asylum and refugee status, modified by Law 9 / 1994, of May 19 (Real Decreto 203/1995, de 10 de febrero, por el que se aprueba el Reglamento de aplicación de la Ley 5/1984, de 26 de marzo, reguladora del derecho de asilo y de la condición de refugiado, modificada por la Ley 9/1994, de 19 de mayo) – Article 13.2

Spanish Constitution (Constitución Española. Boletín Oficial del Estado, 29 de diciembre de 1978, núm. 311) – Article 13.1, article 10.2, article 19.

Organic Act 4/2000, of 11 January, on the Rights and Liberties of Foreigners in Spain and their Social Integration (“Act on Foreigners”) (Ley Orgánica 4/2000, de 11 de enero, sobre derechos y libertades de los extranjeros en España y su integración social) – Article 5

Royal Decree 557/2011 of 20 April approving the Spanish Law 4/2000 on the rights and liberties of foreigners in Spain and their social integration and its Amending Legislative Instrument 2/2009 Spain - Spanish Law 1/1979 of 26 September Penitentiary Procedures (Real Decreto 557/2011, de 20 de abril, por el que se aprueba el Reglamento de la Ley Orgánica 4/2000, sobre derechos y libertades de los extranjeros en España y su integración social, tras su reforma por Ley Orgánica 2/2009) – Article 4.2, article 13.2

Act 29/1998, of July 13, regulating the Contentious-Administrative Jurisdiction (Ley 29/1998, de 13 de julio, reguladora de la Jurisdicción Contencioso-administrativa) – Article 88.2.b), article 88.2.c), article 88.3.a),

Instrument of Ratification of July 23, 1993 of the Protocol of Accession to the Schengen Agreement (Instrumento de Ratificación de 23 de julio de 1993 del Protocolo de Adhesión al Acuerdo de Schengen) – Article 3.1.F,

Instrument of ratification of the Agreement of Accession of the Kingdom of Spain to the Agreement of application of the Schengen Agreement of June 14, 1985 between the Governments of the States of the Benelux Economic Union, of the Federal Republic of Germany and of the French Republic, relative to the gradual abolition of controls at the common borders, signed in Schengen on June 19, 1990, to which the Italian Republic acceded by the Agreement signed in Paris on November 27, 1990, made on June 25, 1991 (Instrumento de ratificación del Acuerdo de Adhesión del Reino de España al Convenio de aplicación del Acuerdo de Schengen de 14 de junio de 1985 entre los Gobiernos de los Estados de la Unión Económica Benelux, de la República Federal de Alemania y de la República Francesa, relativo a la supresión gradual de los controles en las fronteras comunes, firmado en Schengen el 19 de junio de 1990, al cual se adhirió la República Italiana por el Acuerdo firmado en París el 27 de noviembre de 1990, hecho el 25 de junio de 1991) – Article 3.1, article 10.3, artile 11.1.a), article 5

Instrument of Ratification of the Treaty made in Lisbon and Madrid on June 12, 1985, on the accession of the Kingdom of Spain and the Portuguese Republic to the European Economic Community and the European Atomic Energy Community (Instrumento de Ratificación del Tratado hecho en Lisboa y Madrid el día 12 de junio de 1985, relativo a la adhesión del Reino de España y de la República Portuguesa a la Comunidad Económica Europea y a la Comunidad Europea de la Energía Atómica)

Instrument of ratification of the Convention on the determination of the State responsible for examining applications for asylum presented in the Member States of the European Communities, done in Dublin on June 15, 1990 (Instrumento de ratificación del Convenio relativo a la determinación del Estado responsable del examen de las solicitudes de asilo presentado en los Estados miembros de las Comunidades Europeas, hecho en Dublín el 15 de junio de 1990) – Article 5

Other Legislation

Regulation (EC) No. 562/2006 of the European Parliament and of the Council of 15 March 2006 establishing a Community Code on the rules governing the movement of persons across borders (Schengen Borders Code) – Article 36, article 13 and article 5.

The Schengen acquis - Convention implementing the Schengen Agreement of 14 June 1985 between the Governments of the States of the Benelux Economic Union, the Federal Republic of Germany and the French Republic on the gradual abolition of checks at their common borders.

Regulation (EU) 2016/399 of the European Parliament and of the Council of 9 March 2016 on a Union Code on the rules governing the movement of persons across borders (Schengen Borders Code) – Article 6, article 41

Treaty between the Kingdom of Belgium, the Kingdom of Denmark, the Federal Republic of Germany, the Hellenic Republic, the French Republic, Ireland, the Italian Republic, the Grand Duchy of Luxembourg, the Kingdom of the Netherlands, the United Kingdom of Great Britain and Northern Ireland (Member States of the European Communities) and the Kingdom of Spain, the Portuguese Republic, concerning the accession of the Kingdom of Spain and the Portuguese Republic to the European Economic Community and to the European Atomic Energy Community

Domestic Case Law

Supreme Court ruling n. 8840/2019 (Contentious Chamber, Section 1), of September 16, 2019 (appeal n. 1953/2019) -(Sentencia del Tribunal Supremo n. 8840/2019 (Sala de lo Contencioso, Sección 1ª), de 16 de septiembre de 2019 (recurso n. 1953/2019))

Judgement of the High Court of Justice n. 19/2019 (Contentious Chamber, Section 1), of January 17, 2019 (appeal n. 564/2018) – (Sentencia del Tribunal Superior de Justicia n. 19/2019 (Sala de lo Contencioso, Sección 1ª), de 17 de enero de 2019 (recurso 564/2019))

Judgment of the Constitutional Court n. 17/2013, of February 26, 2013 (appeal n. 1024/2004) – (Sentencia del Tribunal Constitucional n. 17/2013, de 26 de febrero de 2013 (recurso de inconstitucionalidad n. 1024/2004)).