Exclusion of Persons Who Have Links with Terrorism From Refugee Status In View of the Court of Justice of the European Union’s Judgments
Today, terrorism threatens not just international peace and security but also national security and public order. With the increase of terrorist attacks in recent years, states have been implementing stricter policies and excluding more foreigners who have links with terrorism from refugee status. Exclusion of persons who have links with terrorism from refugee status falls within the scope of Article 1 F of the Convention relating to the Status of Refugees (1951 Convention). Similar provisions to Article 1 F of the 1951 Convention can be found in European Union Law and Turkish Law. The Court of Justice of the European Union (CJEU) has clarified a number of important issues related to terrorism and exclusion over the years. In this study, the principles introduced by the CJEU on the exclusion of persons who have links with terrorism from refugee status will be identified through an analysis of the following decisions: Bundesrepublik Deutschland v B (C-57/09) and D (C-101/09), H. T. v Land Baden-Württemberg, C 373/13 and Commissaire général aux réfugiés et aux apatrides v. Mostafa Lounani, C-573/15. In doing so, how the CJEU interprets Article 12 of the Directive 2011/95/EU of the European Parliament and of the Council which is modelled after Article 1 F of the 1951 Convention will be outlined.
Avrupa Birliği Adalet Divanı Kararları Işığında Terörizm ile İlişkisi Olan Kişilerin Mülteci Statüsünden Hariç Bırakılması
Terörizm günümüzde uluslararası barış ve güvenlik kadar ulusal güvenlik ve kamu düzenini de tehdit etmektedir. Terör saldırılarının son yıllarda artış göstermesi ile devletler terör ile ilişkisi olan yabancıları mülteci statüsünden hariç tutma yoluna daha sık başvurmaya başlamıştır. Terör ile ilişkisi olan yabancıların mülteci statüsünden hariç bırakılması 1951 tarihli Mültecilerin Hukuki Durumuna İlişkin Cenevre Sözleşmesi’nin (1951 Sözleşmesi) 1. maddesinin F fıkrası kapsamında incelenmektedir. 1951 Sözleşmesi m. 1 F’yi esas alan düzenlemeler hem Avrupa Birliği Hukukunda hem de hukukumuzda yer almaktadır. Avrupa Birliği Adalet Divanı verdiği kararlar ile bugüne kadar terörizm ve mülteci statüsünden hariç bırakmaya ilişkin önemli birçok hususu açığa kavuşturmuştur. Bu çalışmada Avrupa Birliği Adalet Divanı’nın 9 Kasım 2010 tarih ve C-57/09 ve C-101/09 sayılı B ve D Kararı, 24 Haziran 2015 tarih ve C 373/13 sayılı T Kararı ve 31 Ocak 2017 tarih ve C-573/15 sayılı Lounani Kararı incelenmek suretiyle terör ile ilişkisi olan kişilerin mülteci statüsünden hariç bırakılması konusu ele alınacaktır. Makalede Avrupa Birliği Adalet Divanı’nın terör ile ilişkisi olan kişilerin mülteci statüsünün dışında bırakılmasına ilişkin ortaya koyduğu ilkeler tespit edilecek ve Divan’ın 1951 Sözleşmesi m. 1 F’yi esas alan 2011/95/EU sayılı AB Vasıf Yönergesi m. 12’de yer alan düzenlemeleri ne şekilde yorumladığı ortaya konulacaktır.
Today, terrorism threatens not just international peace and security but also national security and public order. With the increase of terrorist attacks in recent years, states have been implementing stricter policies and excluding more foreigners who have links with terrorism from refugee status. Exclusion from refugee status is regulated under Article 1 F of the Convention relating to the Status of Refugees (1951 Convention) as follows:
“The provisions of this Convention shall not apply to any person with respect to whom there are serious reasons for considering that:
(a) he 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 has committed a serious non-political crime outside the country of refuge prior to his admission to that country as a refugee;
(c) he has been guilty of acts contrary to the purposes and principles of the United Nations.”
Similar provisions to Article 1 F of the 1951 Convention can be found in European Union Law and Turkish Law. Council Directive 2004/83/EC of 29 April 2004 on minimum standards for the qualification and status of third country nationals or stateless persons as refugees or as persons who otherwise need international protection and the content of the protection granted (Qualification Directive) clarified who is eligible for refugee status and subsidiary protection in the EU and who would be excluded from these statuses. Directive 2011/95/EU of the European Parliament and of the Council of 13 December 2011 on standards for the qualification of thirdcountry nationals or stateless persons as beneficiaries of international protection, for a uniform status for refugees or for persons eligible for subsidiary protection, and for the content of the protection granted (Recast Qualification Directive) has replaced the Qualification Directive for all EU Member States except the United Kingdom and Ireland in 2013. Exclusion from refugee status has been regulated under Article 12 of the Qualification Directive and Article 12 of the Recast Qualification Directive in a very similar manner. Article 12 paras (2) and (3) of the Recast Qualification Directive establishes rules for exclusion from refugee status, which are modelled after Article 1 F of the 1951 Convention, as follows:
“2. A third-country national or a stateless person is excluded from being a refugee where there are serious reasons for considering that:
(a) he or 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 or she has committed a serious non-political crime outside the country of refuge prior to his or her admission as a refugee, which means the time of issuing a residence permit based on the granting of refugee status; particularly cruel actions, even if committed with an allegedly political objective, may be classified as serious non-political crimes;
(c) he or she has been guilty of acts contrary to the purposes and principles of the United Nations as set out in the Preamble and Articles 1 and 2 of the Charter of the United Nations. 3. Paragraph 2 applies to persons who incite or otherwise participate in the commission of the crimes or acts mentioned therein.”
Terrorism, membership of a terrorist group or committing terrorist acts are not identified clearly as exclusion grounds under Article 1 F of the 1951 Convention though exclusion of persons who have links with terrorism mostly falls within the scope of Article 1 F paras (b) and (c) as well as Article 12 paras (2) and (3) of the Recast Qualification Directive. The Court of Justice of the European Union (CJEU) has over the years clarified a number of important issues related to Article 12 of the Recast Qualification Directive as well as terrorism and exclusion. In this study, the principles introduced by the CJEU on exclusion of persons who have links with terrorism from refugee status will be identified through an analysis of the following decisions: Bundesrepublik Deutschland v B (C-57/09) and D (C101/09), H. T. v Land Baden-Württemberg, C 373/13 and Commissaire général aux réfugiés et aux apatrides v. Mostafa Lounani, C-573/15. In doing so, how the CJEU interprets Article 12 of the Recast Qualification Directive which is modelled after Article 1 F of the 1951 Convention will be outlined.
