Expulsion of aliens - Memorandum by the Secretariat

664 Pages·2006·3.37 MB·English

A
United Nations /CN.4/565

General Assembly
Distr.: General
10 July 2006

Original: English

International Law Commission
Fifty-eighth session
Geneva, 1 May-9 June and 3 July-11 August 2006

Expulsion of aliens

Memorandum by the Secretariat

Summary

The present study was prepared to assist the International Law Commission in the
consideration of the topic of the expulsion of aliens. The study endeavours to provide a
comprehensive analysis of the possible issues which may require consideration in the context of the
present topic. It further provides an analytical summary of the relevant legal materials contained in
treaty law, international jurisprudence, other international documents, national legislation and national
jurisprudence. It surveys relevant materials adopted at the international level, the regional level as
well as the national level. It also reproduces the relevant extracts of the various legal materials for
ease of reference.
The study is based on the premise that every State has the right to expel aliens. However, this
right is subject to general limitations as well as specific substantive and procedural requirements.
Traditionally, the right of expulsion was subject to general limitations such as the prohibition of abuse
of rights, the principle of good faith, the prohibition of arbitrariness and standards relating to the
treatment of aliens. Contemporary international human rights law has had a significant impact on the
law relating to the expulsion of aliens in terms of the development of more specific substantive and
procedural requirements. Recent trends in national law and practice with respect to the expulsion of
aliens suspected of involvement in international terrorism may raise issues with respect to compliance
with these requirements.
The study approaches the topic first from the perspective of the expulsion of aliens in general in
relation to the grounds and other considerations relating to the decision to expel an alien, the
procedural requirements for the expulsion of an alien, and the implementation of the decision to expel
an alien by means of voluntary departure or deportation. The study then turns to the special
considerations that may apply to the expulsion of specific categories of aliens, such as illegal aliens,
resident aliens, migrant workers, minor children, refugees and stateless persons. The study also

06-26029 (E) 271206
*0626029*
A/CN.4/565

addresses questions relating to the deprivation of nationality and the expulsion of former nationals as
aliens. The expulsion of enemy aliens who are nationals of an opposing State during an armed
conflict is considered under the relevant jus in bello, including international humanitarian law, as well
as the human rights standards for the expulsion of aliens which continue to apply in armed conflict.
At the conclusion of the consideration of the expulsion of individual aliens, the study provides a brief
overview of the possible forms of reparation for unlawful expulsion based on State practice.
The study then turns to the question of the collective expulsion and the mass expulsion of aliens.
The individual expulsion, the collective expulsion and the mass expulsion of aliens may be viewed as
being governed by separate legal regimes and are treated as such for purposes of the present study. A
State has a broad discretionary right to expel aliens from its territory when their continuing presence
is contrary to its interests subject to certain limitations and requirements. In contrast, the collective
expulsion of a group of aliens as such (even a small group) is contrary to the very notion of the
human rights of individuals and is therefore prohibited. The collective expulsion of a group of aliens
does not take into account the consequences of the presence, the grounds and other factors affecting
the expulsion, the procedural requirements for the expulsion or the rules relating to the
implementation of the expulsion decision with respect to a single one of these aliens. The decision
concerning expulsion is made with respect to the group of aliens as a whole. Mass expulsion involves
the expulsion of a large number of aliens within a relatively short period of time. Mass expulsion may
be viewed as an abuse of the right of expulsion and as imposing an excessive burden on the receiving
State. Mass expulsion is prohibited except in very exceptional circumstances involving a change in
the territory of a State or armed conflict. Even in such cases, the expulsion of a large number of aliens
must comply with the general limitations as well as the substantive and procedural requirements for
the expulsion of individual aliens to the extent possible under these exceptional circumstances. The
collective expulsion or the mass expulsion of aliens may also violate the principle of non-
discrimination and therefore constitute an additional violation of international law or an aggravated
form of the prohibition of collective expulsion or mass expulsion.
The study consists of Parts I to XII as well as Annexes I and II. General aspects of the study are
addressed in Parts I and II. Part I provides a general introduction to the topic of the expulsion of
aliens. Part II provides general background information concerning the increasing phenomenon of
international migration on a global level in order to facilitate the consideration of the present topic in
the light of the contemporary situation and challenges with respect to the presence of aliens in the
territory of States.
Part III addresses the scope of the topic which raises a number of important issues such as
whether the Commission should consider: (1) the special rules that may apply to specific categories
of aliens; (2) the similar measures that may be taken by States to compel the departure of aliens;
(3) the expulsion of aliens in time of armed conflict; and (4) the collective expulsion and the mass
expulsion of aliens.
Part IV draws attention to the potential relevance of a number of terms for purposes of the
consideration of the present topic. Some of these terms relate to the notion of “alien” and specific
categories of aliens, including: illegal alien, resident alien, migrant worker, family, refugee, asylee,
asylum seeker, stateless person, former national and enemy alien. The other terms relate to the action
taken by a State to compel the departure of an alien. The paper suggests a functional approach to the
2
A/CN.4/565

notion of “expulsion” notwithstanding the different terms that may be used in national legal systems
for measures which perform the same function. The paper also suggests distinguishing between the
expulsion of an alien in terms of the decision to expel and the implementation of the decision by
means of voluntary departure or deportation. National legal systems vary in the use of the terms
“expulsion” and “deportation”. The two terms are used for purposes of the present study to facilitate
the consideration of the substantive and procedural requirements that apply to the expulsion of an
alien and the implementation of the decision to expel.
Parts V to IX address the right of a State to expel an alien from its territory, the general
limitations on the right of expulsion under traditional and contemporary international law as well as
the more specific substantive and procedural requirements concerning the grounds and other
considerations relating to the decision to expel an alien, the procedural requirements for the expulsion
of an alien, and the implementation of the expulsion decision by voluntary means or deportation.
Part X deals with the special considerations that may apply to the expulsion of specific categories
of aliens, such as illegal aliens, resident aliens, migrant workers, minor children, refugees, stateless
persons, former nationals and enemy aliens in time of armed conflict.
Part XI briefly discusses the possible forms of reparation for the unlawful expulsion of aliens
based on State practice, including restitution, compensation and satisfaction. It also briefly discusses
issues relating to the burden of proof in such cases.
Part XII provides a general overview of the issues and relevant materials relating to the collective
expulsion and the mass expulsion of aliens in contrast to the expulsion of one or more individual
aliens to facilitate the decision as to whether such expulsions should be included within the scope of
the present topic. Given the significant differences in the legal regimes governing individual
expulsions, collective expulsions and mass expulsions, the Commission may wish to consider
addressing them in separate parts or chapters of its work if it decides to undertake these aspects of the
topic.
Annex I contains an extensive selected bibliography of the relevant materials that were used in
the preparation of the study, including: treaties and similar documents; international jurisprudence;
the practice of international organizations, regional organizations and treaty-monitoring bodies; the
national laws of States; the national jurisprudence of States; literature; and reports of non-
governmental organizations.
Annex II provides a list of the abbreviations for the national laws of various States which are
cited throughout the study.
3
A/CN.4/565

Contents

Paragraphs Page
I. Introduction ....................................................................................... 1-5 14
II. Factual background ............................................................................ 6-21 16
III. Scope of the topic .............................................................................. 22-120 23
A. The notion of aliens .................................................................... 23-41 23
1. Aliens in general ................................................................. 23-25 23
2. Specific categories of aliens ................................................. 26-27 25
3. Aliens with special privileges and immunities..................... 28-32 26
(a) Diplomats ....................................................................... 29 27
(b) Consular officers ............................................................ 30 27
(c) Members of special missions ......................................... 31 28
(d) International civil servants ............................................ 32 29
4. Members of armed forces .................................................... 33-35 31
(a) National armed forces .................................................... 33 31
(b) Multinational armed forces............................................. 34 32
(c) Lex specialis ................................................................... 35 33
5. Nationals............................................................................... 36 34
6. Former nationals .................................................................. 37-41 37
B. The notion of presence in the territory of another State .............. 42-66 41
1. The presence of an alien ...................................................... 42-50 41
(a) Lawful presence ............................................................. 44 42
(b) Transitory presence ........................................................ 45-48 42
(c) Physical presence ........................................................... 49-50 45
2. The territory of a State ......................................................... 51-53 46
3. Special situations ................................................................. 54-59 47
(a) Premises subject to the principle of inviolability ........... 55 48
(b) Common carriers ............................................................ 56-57 50
(c) Warships ......................................................................... 58 52
(d) Military bases ................................................................. 59 52
4. Interception of aliens ............................................................ 60-66 53
(a) Illegal aliens travelling by sea ........................................ 61-64 54
(b) Aliens suspected of international terrorism ................... 65-66 59
4
A/CN.4/565

C. The notion of expulsion .............................................................. 67-92 61
1. Expulsion ............................................................................. 67-90 61
(a) Constructive expulsion.................................................... 68-73 62
(b) Non-admission................................................................ 74-78 65
(c) Denial of a residency permit (refus de séjour) ............... 79-80 69
(d) Refoulement .................................................................... 81-82 70
(e) Extradition ...................................................................... 83-84 71
(f) Rendition ........................................................................ 85-87 73
(g) Forcible transfer or internal displacement...................... 88 74
(h) Expulsion stricto sensu or functional approach ............. 89-90 75
2. Deportation .......................................................................... 91-92 76
D. Expulsion of aliens in time of armed conflict.............................. 93-106 77
E. Collective expulsion and mass expulsion.................................... 107 84
F. Treaty law ................................................................................... 108-114 85
G. National law and practice ............................................................ 115-120 90
IV. Use of terms........................................................................................ 121-184 95
A. Terms relating to aliens .............................................................. 122-177 95
1. Alien .................................................................................... 122-126 95
2. Illegal alien ........................................................................... 127-129 98
3. Resident alien ....................................................................... 130-133 99
4. Migrant worker .................................................................... 134-139 102
5. Family .................................................................................. 140-145 106
6. Refugee ................................................................................ 146-159 110
7. Displaced person .................................................................. 160-163 120
8. Asylee .................................................................................. 164-171 121
9. Asylum seeker ...................................................................... 172 124
10. Stateless person .................................................................... 173-175 124
11. Former national .................................................................... 176 126
12. Enemy alien ......................................................................... 177 127
B. Expulsion and deportation .......................................................... 178-184 127
1. Expulsion ............................................................................. 179-181 127
2. Deportation .......................................................................... 182-184 129
V. The right of a State to expel aliens from its territory ........................ 185-200 131
A. The inherent nature of the right of expulsion ............................. 185-192 131
B. The discretionary nature of the right of expulsion .................... 193-197 136
5
A/CN.4/565

C. The limited nature of the right of expulsion ............................... 198-200 137
VI. General limitations on the right of a State to expel aliens .................. 201-298 140
A. Traditional limitations ................................................................. 201-250 140
1. The prohibition of the abuse of rights .................................. 201-209 140
2. The principle of good faith .................................................. 210-226 149
3. The prohibition of arbitrariness ............................................ 227-239 157
4. Treatment of aliens ............................................................... 240-250 163
(a) Denial of justice ............................................................. 241-243 165
(b) National treatment .......................................................... 244-245 168
(c) International minimum standard .................................... 246-249 169
(d) Relevant standard for the expulsion of aliens................. 250 172
B. Contemporary limitations............................................................ 251-294 173
1. The impact of human rights on the treatment of aliens ........ 251-255 173
2. The principle of non-discrimination..................................... 256-286 179
(a) The notion of discrimination .......................................... 256-257 179
(b) Relationship to the principle of equality ........................ 258-259 181
(c) Differential treatment versus discrimination .................. 260-261 182
(d) De jure and de facto discrimination................................ 262-263 184
(e) Recognition of the principle of non-discrimination ....... 264-267 185
(f) Grounds for discrimination............................................. 268-284 188
(i) Race...................................................................... 269-272 189
(ii) Sex ....................................................................... 273-275 191
(iii) Language ............................................................. 276 193
(iv) Religion ............................................................... 277-279 193
(v) Alienage ............................................................... 280-281 195
(vi) National origin ..................................................... 282-283 197
(vii) Other types of discrimination .............................. 284 198
(g) Relevance of the principle of non-discrimination to the
expulsion of aliens ......................................................... 285-286 199
3. Principle of legality .............................................................. 287-294 200
C. The continuing relevance of general limitations ......................... 295-298 206
VII. Grounds and other considerations relating to the expulsion decision 299-595 208
A. Grounds for expulsion ................................................................ 299-444 208
1. Requirement of a valid ground for expulsion ...................... 299-305 208
2. Margin of appreciation.......................................................... 306-308 210
3. Duty to provide the ground for an expulsion ....................... 309-318 212
6
A/CN.4/565

4. Sufficient basis for the ground.............................................. 319 218
5. Validity of grounds ............................................................... 320-324 218
6. Possible grounds for expulsion ............................................ 325-422 220
(a) Illegal entry.................................................................... 326-333 221
(b) Breach of conditions for admission .............................. 334-339 226
(c) Public order or welfare of the State (ordre public) ....... 340-362 230
(d) National security............................................................ 363-376 241
(e) Higher interest of the State ........................................... 377-379 248
(f) Violation of law............................................................. 380-391 249
(g) Public health and safety ................................................ 392-400 257
(h) Morality ........................................................................ 401-407 263
(i) Economic grounds ........................................................ 408-414 267
(j) Preventive measure or deterrent ................................... 415 270
(k) Reprisal ......................................................................... 416-417 270
(l) Political activities ........................................................ 418-421 271
(m) Other ............................................................................. 422 273
7. The principle of non-discrimination..................................... 423-429 273
8. Disguised extradition ........................................................... 430-443 276
(a) Disguised or de facto extradition .................................. 432-433 278
(b) Expulsion or extradition ............................................... 434-443 280
9. Confiscatory expulsion ........................................................ 444 285
B. Human rights considerations ....................................................... 445-488 286
1. The rights of the family......................................................... 446-467 287
2. The rights of the child .......................................................... 468-474 298
3. Freedom of expression ......................................................... 475-476 301
4. Trade union rights................................................................. 477-478 302
5. Property rights....................................................................... 479-481 302
6. The principle of non-discrimination..................................... 482-487 304
7. Restrictions and derogations ................................................ 488 309
C. Destination.................................................................................... 489-595 311
1. The rights of aliens ............................................................... 492-505 312
(a) Choice of destination .................................................... 493-497 312
(b) Right to enter or return to the State of nationality ........ 498-503 315
(c) Principle of non-discrimination .................................... 504 319
7
A/CN.4/565

(d) Relationship between human rights considerations and
the duty of admission by a State .................................... 505 319
2. The State of destination ....................................................... 506-532 320
(a) State of nationality ......................................................... 507-512 320
(b) State of residence ........................................................... 513 325
(c) State of passport issuance............................................... 514-515 325
(d) State of embarkation ...................................................... 516-518 327
(e) State party to a treaty ..................................................... 519-522 328
(f) Consenting and other States ........................................... 523-532 332
3. Limitations on the expulsion of an alien to a particular State 533-594 335
(a) The principle of non-refoulement ................................... 533-534 335
(b) The prohibition of expulsion to certain States under
human rights law ............................................................ 535-577 337
(i) International Covenant on Civil and Political Rights 536-539 338
(ii) Convention against Torture and Other Cruel,
Inhuman or Degrading Treatment or Punishment ... 540-565 340
(1) Prohibition of expulsion to certain States ......... 540 340
(2) Committee against Torture ............................... 541 341
(3) Relevant considerations .................................... 542-543 343
(4) Substantial grounds .......................................... 544 344
(5) Personal risk of torture ..................................... 545-548 344
(6) Present and foreseeable danger ........................ 549-555 346
(7) State officials .................................................... 556-558 349
(8) Subsequent expulsion to a third State ............... 559-561 350
(9) Absolute prohibition ......................................... 562-565 352
(iii) International Convention on the Elimination of
All Forms of Racial Discrimination........................ 566 354
(iv) European Convention on Human Rights ................ 567-571 354
(v) American Convention on Human Rights ............... 572 356
(vi) African Charter on Human and Peoples’ Rights .... 573 357
(vii) National legislation ............................................... 574 357
(viii) National jurisprudence .......................................... 575-577 358
(c) Health considerations...................................................... 578-584 360
(d) Diplomatic assurances.................................................... 585-594 364
4. Expulsion to a State which has no duty to admit ................. 595 371
VIII. Procedural requirements ..................................................................... 596-696 372
8
A/CN.4/565

A. Nature of proceedings ................................................................. 601-603 376
B. Procedural guarantees.................................................................. 604-696 378
1. Principle of non-discrimination ........................................... 604-606 378
2. Right to receive notice of expulsion proceedings ................ 607 379
3. Detention during the proceedings ........................................ 608-611 380
4. Right to submit reasons against expulsion ........................... 612-624 383
(a) General considerations ................................................... 612-618 383
(b) Right to a hearing ........................................................... 619-623 386
(c) Right to be present ......................................................... 624 389
5. Right to consular protection ................................................. 625-631 390
6. Right to counsel ................................................................... 632-643 393
(a) Legal aid ......................................................................... 641-643 396
7. Translation and interpretation .............................................. 644-646 397
8. Decision ............................................................................... 647-656 398
(a) Notification of the decision ............................................ 647-649 398
(b) Reasoned decision .......................................................... 650-656 400
9. Review procedure ................................................................ 657-689 402
(a) Decision to expel ............................................................ 657-687 402
(b) Determination of the State of destination ...................... 688-689 419
10. National security or public order exception ......................... 690-696 419
IX. Implementation of the expulsion decision ......................................... 697-744 423
A. Voluntary departure .................................................................... 697-701 423
B. Deportation ................................................................................ 702-744 425
1. Rights of the alien................................................................. 702-714 425
(a) Humane treatment .......................................................... 702-710 425
(b) Property rights and similar interests............................... 711-714 431
2. Detention .............................................................................. 715-737 433
3. Practical arrangements ......................................................... 738-742 446
4. Refusal to admit.................................................................... 743 450
5. Cooperation agreements ...................................................... 744 450
X. Special considerations for specific categories of aliens..................... 745-956 452
A. Illegal aliens ............................................................................... 745-755 452
1. General limitations................................................................ 745-747 452
(a) Traditional limitations .................................................... 745 452
(b) Contemporary limitations .............................................. 746-747 452
9
A/CN.4/565

2. Grounds and other considerations relating to the expulsion
decision ................................................................................ 748-751 453
(a) Grounds .......................................................................... 748-749 453
(b) Human rights considerations ......................................... 750-751 453
3. Procedural requirements ...................................................... 752-753 456
4. Departure .............................................................................. 754 456
5. Exclusion from certain treaty provisions ............................. 755 457
B. Resident aliens ........................................................................... 756-787 457
1. General considerations ......................................................... 756-761 457
2. Grounds and other considerations relating to the expulsion
decision................................................................................. 762-779 460
(a) Grounds .......................................................................... 762-778 460
(b) Human rights considerations .......................................... 779 466
3. Procedural requirements ...................................................... 780-785 467
4. Departure .............................................................................. 786-787 470
(a) Reasonable opportunity to protect property and similar
interests .......................................................................... 786 470
(b) Detention ........................................................................ 787 470
C. Migrant workers and members of their families ...................... 788-825 470
1. General limitations ............................................................... 788-789 470
(a) Traditional limitations .................................................... 788 470
(b) Contemporary limitations .............................................. 789 471
2. Grounds and other considerations relating to the expulsion
decision................................................................................. 790-807 471
(a) Grounds .......................................................................... 790-803 471
(b) Human rights considerations .......................................... 804-806 476
(i) Rights of the family ................................................. 804 476
(ii) Property rights .......................................................... 805-806 477
(c) Destination ..................................................................... 807 477
3. Procedural requirements ...................................................... 808-819 477
(a) Right to submit reasons against expulsion ..................... 809-810 478
(b) Right to consular protection ........................................... 811 478
(c) Right to legal assistance and interpretation .................... 812 478
(d) Notification of a reasoned decision ................................ 813 479
(e) Right to a review procedure ........................................... 814-818 479
(f) Right to seek compensation and right to re-enter .......... 819 481
10