Europees Sociaal Handvest c.a.
Heerma van Voss, G.J.J.; Keizer, A.
Citation
Heerma van Voss, G. J. J., & Keizer, A. (2004). Europees Sociaal Handvest c.a. Deventer:
Kluwer. Retrieved from https://hdl.handle.net/1887/14634
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284 Europees Soclaal Handvest Art. 19 Europees Sociaal HandvestArt.19 285
The right of migrant workers and their
families
toprotection andassistance
Art.
19. With a view to ensuring the
effec-tive exercise of the right of migrant workers
and their families to protection and assistance
in the territory of any other Contracting Party,
the Contracting Parties undertake:
1.
to maintain or to satisfy themselves that
there are maintained adequate and free
ser-vices to assist such workers, particularly in
ob-taining accurate information, and to take all
appropriate steps, so far as national laws and
regulations permit, against misleading
propa-ganda relating to emigration and immigration;
2. to adopt appropriate measures within
their own jurisdiction to facilitate the
depar-ture, journey and reception of such workers
and their families, and to provide, within their
own jurisdiction, appropriate services for
health, medical attention and good hygienic
conditions during the journey;
3. to promote co-operation, as appropriate,
between social services, public and private, in
emigration and immigration countries;
4. to secure for such workers lawfully
with-in their territories, with-insofar as such matters are
regulated by law or regulations or are subject
to the control of administrative authorities,
treatment not less favourable than that of their
own nationals in respect of the following
mat-ters:
(a)
remuneration and other employment
and working conditions;
(b)
membership of trade unions and
enjoy-ment of the benefits of collective bargaining;
(c)
accommodation;
5. to secure for such workers lawfully
with-in their territories treatment not less
favour-able than that of their own nationals with
re-gard to employment taxes, dues or
contribu-tions payable in respect of employed persons;
6. to facilitate as far as possible the reunion
of the family of a foreign worker permitted to
establish himself in the territory;
7. to secure for such workers lawfully
with-in their territories treatment not less
favour-able than that of their own nationals with
re-gard to legal proceedings relating to matters
referred to in this Article;
8. to secure that such workers lawfully
re-siding within their territories are not expelled
unless they endanger national security or
of-fend against public interest or morality;
9. to permit, within legal limits, the transfer
of such parts of the earnings and savings of
such workers as they may desire;
10.
to extend the protection and assistance
provided for in this Article to self-employed
migrants insofar as such measures apply.
Aantekeningen
ALGEMEEN
- Vgl. het
herziene
ESH, waarin 2 nieuwe paragra-fen op het gebied van taalverwerving zijn opgeno-men.Nederlandse wetgeving
- Algemene wet gelijke behandeling, wet van 2 maart 1994, 5tb. 1994, 230.
Uitvoeringswet verdrag migrerende werknemers, wet van 2 december 1982, 5tb. 1995, 198. Voor de tekst, zie Hoofdstuk 3B.
Remigratiewet, wet van 22 april 1999, 5tb. 1999, 426.
Wet arbeid vreemdelingen, wet van 21 december 1994,5tb. 1997,510.
Wet arbeidsvoorwaarden grensoverschrijdende arbeid, wet van 2 december 1999,Stb.1999, 554.
286 Europees Sociaal Handvest Art. 19 Europees Sociaal Handvest Art. 19 287
PARLEMENTAIRE BEHANDELING
- 'M.b.t.leden 1,2 en 3: De ondergetekenden zijn van mening, dat aan de daarin gestelde voorwaarden hier te lande wordt voldaan.'(MvT, 8606, R533) INTERNATIONALE CONTEXT
Raad van Europa
- Europees Verdrag inzake rechtsposite migre-rende werknemers. Goedkeuringswet van 2 decem-ber 1982,
stb.
1982, 678. Bekrachtigd op 1 februari 1983. Inwerkingtreding op 1 mei 1983,Trb.1983,44.Europese Unie
- Artikelen 39-42 EG-verdrag.
Verordening 1612/68 (Dicriminatieverbod en ver-blijfsrecht).
Verordening 1251/70 (Verblijfsrecht na afloop be-trekking).
Richtlijn 68/360/EEG (Verplaatsing en verblijf). Richtlijn 64/221/EEG (maatregelen voor vreemde-lingen t.a.v.verplaatsingen verblijfwegensopenbare orde, veiligheid en volksgezondheid).
Intemationale Arbeidsorganisatie
- Nr.97 (migrerende arbeiders)(herzien), Stb. 1951, 544. Nederlandse vertaling in Trb. 1951, 34. Bekrachtigd op 20 mei 1952,Trb. 1957,192. Toepas-selijk verklaard op Nederlandse Antillen (en Aruba, 1986), 10 juni 1955,Trb.1957,192.
TOELICHTING
Europees Comite voor50dale Rechten
- 'This article embodies a series of provisions in-tended to assist and improve the legal, social and ma-terial position of migrant workers and their families.
Its peculiarity lies in its containing certain specific elements which distinguish it from most of the other provisions in Part IIof the Charter. In fact it goes be-yond merely guaranteeing equality of treatment as between foreign and national workers in the sense that, recognising that migrants are in fact
hand-icapped, it provides for the institution by the Con-tracting States of measures which are more favour-able and more positive to this category of persons than in regard to the states' own nationals. Such being the case, the Contracting Parties should not limit the fulfilment of their obligations under this article to en-suring non-discrimination between their nationals and foreigners but should pursue a positive and con-tinuous course of action. Itis in the sense that para-graph 6 stipulates that the Contracting Parties are to
''fadlitateas far as possible the reunion of the family of a foreign worker (... )"
The application of most of the provisions contained in this article can be extended also to self-employed workers (cf.Para. 10 of Article 19), which incidently is something new by comparison with earlier interna-tional instruments in this field..
Furthermore, each Contracting Party that has ac-cepted the provisions of paragraph 1,2,3,9 and 10 of this article stands committed to various obligations both towards nationals of other Contracting Parties who are within its territories or wish to come there to work, or who may wish to be accompanied or joined by members of their families and towards its own na-tionals wishing to proceed abroad for similar reasons. Asfor the Committee's interpretation on the field of applicationratione personaeof this article, reference should be made to the comments on Article 18.'
(Conci.I,81)
- 'In effect, equality in law does not always and necessarily ensure equality in practice. Hence, addi-tional action becomes necessary owing to the differ-ent situation of migrant workers as compared with nationals. This is the case, for example, with mea-sures taken in certain states in connection with allo-cation of government financed housing for which a period of residence is required, or as regards restric-tions which might be imposed on the transfer abroad of the earnings of migrant workers when all residents are subject to restrictions on the export of currencies. The Committee wished to draw the Contracting Parties' attention to the fact that any measures of this kind, although not specifically intended to limit mi-grant workers' rights, would in practice operate in this sense and thus constitute a violation of one or more of the provisions of Article 19 of the Charter.'
(Conci. V, 123)
coun-288 Europees Sociaal Handvest Art. 19 Europees Sociaal Handvest Art. 19 289 tries pursuing a policy tending to protect the
employ-ment of their own nationals, in the face of economic difficulties, had adopted some restrictive measures in regard to the residence and employment of migrant workers and their families, encouraging, inter alia, the progressive departure of these workers from their territory. The committee, which did not have to pronounce on all aspects of this policy, nevertheless drew attention to the need of guaranteeing to mi-grant workers, who were nationals of other Contract-ing Parties, as well as to members of their families, the exercise of the rights provided for by the Charter in conformity with the international obligation entered into by virtue of this instrument. The committee, in-deed, had to find that the attitude of states in this re-spect has not always been in conformity with the Charter.' (Cond.VI, XIII)
- 'While it is clear from the Appendix to the Char-ter that the CharChar-ter itself does not set out to establish a system for the free movement of manpower as does the Treaty of Rome for example, it does nevertheless oblige states to give specific protection to nationals of other contracting parties lawfully resident in their territory; ie they must liberalise the regulations gov-erning their employment, guarantee them equal treatment with regard to working conditions, hous-ing, trade union membership, facilitate family re-union, only in serious circumstances authorise explu-sions, etc.,'(Conci. VIII,14)
- 'Equal treatment between migrants and the rest of the population is a constant problem, and Article 19 requires that Contracting Parties be especially aware of it.Itis true that paragraphs 1 to 3 of Article 19 were drafted at a time when migration trends were very different compared to today's tendencies. Mi-gration was usually collective and organised by the receiving state or the employers of that state. Jour-neys were then long between the state of origin and the host state. Currently, migration is more often in-dividual and the time spent in travelling relatively short. Paragraphs 1 to 3 should therefore be read tak-ing account of these developments. By contrast, the other paragraphs of Article 19, and especially para-graphs 4, 5, 6 and 8 have preserved every dimension of their original importance and topicality, and are of fundamental importance for the effective implemen-tation of social rights in modern Europe. The
Commit-tee therefore asks states to do their utmost to ensure observance of these provisions.
The Committee also recalls that paragraph 10 of Ar-ticle 19, prohibits any discrimination between em-ployed and self-emem-ployed migrant workers on one hand, and between self-employed migrant workers and the national self-employed of the state con-cerned on the other. The Committee further under-lines that the principle of non-discrimination should apply in all the areas covered by paragraphs 1 to 9 of Article 19: (Cond.XIV-I, 44)
Aantekeningen lid 1
TOELICHTING
Europees Comtte voor Sociale Rechten
- 'In the view of the Committee this paragraph is one of those under Article 19 that apply both to the nationals of any given Contracting State who are lo-cated in the territory of another, or who wish to go there, and to any nationals of a state who are moving out of it orwish to do so, for the same reasons. (... ) the Committee is of opinion that the provisions of para-graph 1 of Article 19 are aimed to ensure not merely assimilation of foreign workers to nationals but also the institution of more favourable measures operat-ing to the advantage of the foreign workers:(Conci.I,
82)
- 'The Committee reaffirmed that a Contracting Party could not be released from obligations entered into under the Charter by reasons of the reduced vo-lume of migratory movements affecting it. (... )'
(Conci. II,195)
- 'The Committee (... ) would, however, like to re-call that the scope of Article 19, paragraph 1, included all the services of advice and assistance to migrant workers except those covered by the more specific provisions of paragraphs 2-9 ofthis article:(Conci.IV,
114)
- 'On the basis of the information contained in the
xe-290 Europees Sociaal Handvest Art. 19 Europees Sociaal Handvest Art. 19 291 nophobia includes a constitutional
non-discrimina-tion clause, a number of criminal law provisions, the General Equal treatment Act (AWGB), the Political Parties Financing Act, and new regulations on cyber-crime. Where practical measures are concerned, the report says that the Government has instituted pro-grammes to instruct police officers and public prose-cutors in prevention of racism and xenophobia. Fur-ther, it funds information centres against racism and discrimination in general. Lastly, the Government is encouraging the adoption of codes of good practice in enterprises. The Committee considers that as a whole the measures described represent appropriate means of combating racism and xenophobia in the context of misleading propaganda. It therefore concludes that the situation in the Netherlands is in conformity with Article 19§1 of the Charter.' (CondXVI-l vol.2, 456)
- 'The report states that information is always available for migrants in English from the Immigra-tion and NaturalisaImmigra-tion Service. Furthermore, all em-bassies have a website with information on possibil-ities of coming to work in the Netherlands and of stat-utory and procedural regulations involved. (... ) The Committee concludes that the situation in the Neth-erlands is in conformity with Article 19§1 of the Char-ter.' (CondXVII-l vol.1,162)
Aantekeningen lid 2
TOELICHTING
Europees Comitevoor Sociale Rechten
- 'In its interpretation of this paragraph the Com-mittee considered that its requirements concerning health services, medical attention and hygienic con-ditions devolving upon Contracting States relate only to journeys by migrant workers, and/or their families, between the country of origin and that of destination; this paragraph therefore does not oblige the Con-tracting States that have accepted it to take any such measures either before or after such journeys.'(Concl. 1,.83)
- 'The Committee, reviewing its interpretation of this paragraph, concluded that the obligation to "pro-vide, within their own jurisdiction, appropriate ser-vices for health, medical attention and good hygienic conditions during the journey" related to migrant
workers and their families travelling either collec-tively or under the public or private arrangements for collective recruitments and that the Contracting Par-ties could obviously not provide such services for mi-grant workers and their families making their own travel arrangements; however, in that case the need for reception facilities would be all the greater. It would also like to make clear that "reception" must be provided at the time of arrival and the period imme-diately following, that is to say dyuring the weeks in which migtrant workers and their families find them-selves in a particularly difficult position.'(Conci. IV; 115)
- 'The Committee observes that theDutch govern-ment continues to provide for appropriate services for health and medical attention. The Committee therefore concludes that the situation in the Nether-lands is in conformity with Article 19§2 of the Char-ter.'(Concl. XVII-l vol.1, 163)
Aantekeningen lid 3
TOELICHTING
Europees Comitevoor Sociale Rechten
- 'TheIrishGovernment's third report argues, first, that Article 19, paragraph 3, only provides for such an undertaking "as appropriate", leaving each govern-ment free to decide whether or not co-operation should be arranged. The Committee was unable to ac-cept this interpretation. Article 19, paragraph 3, in-volved a specific undertaking and it considered that the words "as appropriate" should be understood as applying not to the undertaking as such, but to the ways of implementing it, co-operation being orga-nised "as appropriate" either between public services or between private services or between both of them depending on the structure of the social services in the countries concerned.'(Conci. III, m.b.t. Ierland, 90-91)
- 'The Committee recalled that it had consistently held this provision to extend to all social issues which may arise in connection with migration. Indeed, Arti-cle 19 para. 3 did not apply to social security at all
(... ).' (Conct. XIV-l vol.1,m.b.t.Ierland,261)
pUb-292 Europees Sociaal Handvest Art. 19 Europees Sociaal Handvest Art. 19 293 lie or private organisations which make life easier for
migrant workers and their families, help them to adapt to their new environment and at the same time facilitate relations between migrant workers and any member their family who have remained in their country of origin. Co-operation therefore entails such public and/or private services working together.'
(Conci. XIV-1vol.1,m.b.t.Belgie, 137)
- 'On the basis of the information contained in the
Dutchreport and earlier reports, the Committee notes that there is no change in the situation regarding co-operation between social services in the Netherlands and emigration and immigration countries, which it has found in conformity with the Charter in the past. It concludes that the situation in the Netherlands is in conformity wi:th Article 19§3 of the Charter.'(Conci. XVlI-1 vol.1, 163)
Aantekeningen lid 4
ALGEMEEN
- Vgl. artikel 6 para. 1 onder a IAO-Conventie nr.97.
PARLEMENTAIRE BEHANDELING
- 'Wat lid 4 betreft, moge worden opgemerkt dat de collectieve arbeidsovereenkornsten te dezer zake geen onderscheid maken tussen Nederlanders en niet-Nederlanders. Buitenlandse arbeiders hebben evengoed het recht om tot een vakvereniging toe te treden als de Nederlandse. Ook wat betreft het ver-krijgen van huisvesting worden voor buitenlandse arbeiders geen andere normen aangelegd dan voor Nederlandse.'
TOELICHTING
Europees Comite voor Sociale Rechten
- 'The Committee interpreted the import of this paragraph in the light of the following passages quot-ed from it: "insofar as such matters are regulatquot-ed by law or regulations or are subject to the control of ad-ministrative authorities". In this connection, the Committee desired to make clear that if, in a given State, the matters in question were not covered by
legislation or regulations, nor subject to the control of administrative authorities of that State, the latter could not be regarded as failing to comply with the provisions of the said paragraph.'(Conci.lI, 67)
- 'As during the previous cycles of supervision the Committee considered the scope of provisions of Ar-ticle 19, paragraph 4, it recalled its earlier ruling (Con-clusions II, p. 68) that it is not enough for a govern-ment to prove that no discrimination exists in law alone but that it is obliged to prove in addition that no discrimination is practised in fact, orto inform the su-pervisory organ of the practical measures taken to remedy it.'(Concl.lII, 92)
- '(... ) the Committee thought it appropriate to state down that the obligation deriving from this par-agraph to grant the migrant worker equality of treat-ment in respect of employtreat-ment is increasing in im-portance and poses particular problems in a period when most Contracting Parties are suffering from ec-onomic recession. The countries concerned should take specific action to avoid discrimination to the ex-tent that an increase of the level of unemployment is likely to have a particular impact on this category of workers.'(Conci.IV, 119)
- 'The report further added that nationals of for-eign countries which allowedTurkishnationals to ac-quire real property within their territory were au-thorised on the basis of reciprocity to acquire real property in Turkey. The Committee referred to its case law according to which a restriction in law upon the acquisition or renting of accommodation by a mi-grant worker was contrary to Article 19 para. 4 (Con-clusions IV, p. 121).It also pointed out that the Char-ter did not contain "any provision for reciprocity ei-ther general or specific" (Conclusions VII, p.77).'
(Conci. XlII-3, m.b.t. Turkije, 414)
- 'However, the Committee recalls that only na-tionals ofLuxembourgand of the European Union are eligible for joint works councils. It is of the opinion that this situation is not in conformity with Article 19 para. 4b.' (Conci. XV-1 Addendum, m.b.t. Luxemburg,
71)
294 Europees Sociaal Handvest Art. 19 Europees Sociaal Handvest Art. 19 295 Pending receipt of the information requested, the
Committee concludes that the situation in the Neth-erlands is in conformity with Article 19§4 of the Char-ter.' (Concl. XVll-1 vol.1, 164)
Aantekeningen lid 5
PARLEMENTAIRE BEHANDELING
_ 'Buitenlandse arbeiders zijn aan dezelfde voor-schriften wat betreft loonbelasting en het betalen van premies voor de sociale verzekering onderworpern als de Nederlandse.'(MvT, 8606, R533)
TOELICHTING
Europees Comite
voor
Sociale Rechten_ 'The Committee notes from theDutchreport that there have been no changes to the situation which it had previously found to be in conformity with the Charter. Ittherefore concludes that the situation in the Netherlands is in conformity with Article 19§5 of the Charter.'(Conci. XVll-1 vol.1, 164)
Aantekeningen lid 6
ALGEMEEN
- Deel IIvan de Bijlage ESH is van toepassing: 'For the purpose of this provision, the term "family of a foreign worker" is understood to mean at least his wife and dependent children under the age of 21 years.'
- Vgl. de Bijlagebij artikel16 van hetherzieneESH, waarin het 'gezin van een migrerende werknemer' omvat de echtgenoot of echtgenote van de werkne-mer en de ongetrouwde kinderen, die minderjarig zijn volgens het gastland en afhankelijk van de werk-nemer.
PARLEMENTAIRE BEHANDELING
- 'Dit lid bepaalt, dat de overeenkomstsluitende partijen zich verbinden zoveel mogelijk de vereni-ging van legaal in het land verblijvende buitenlandse werknemers met hun gezinnen te vergemakkelijken. Hoewel het uitgangspunt van de bepaling ook toen
reeds werd onderschreven, werd het in 1966 raad-zaam geoordeeld om dit zesde lid van de goedkeuring uit te zonderen, aangezien een gezaghebbende uitleg van het verdrag ontbrak, en het niet zonder meer dui-delijk was wat onder "zo veel mogelijk" diende te worden verstaan. In het bijzonder speelde daarbij een rol de vraag, of de beslissing omtrent het al dan niet toestaan van gezinshereniging in een concreet geval afhankelijk zou mogen worden gesteld van de be-schikbaarheid van passende huisvesting voor het ge-zin. Een zodanige voorwaarde werd en wordt name-lijk bij gezinshereniging gesteld en handhaving van deze eis wordt noodzakelijk geacht ten einde te kun-nen voorkomen, dat het gezin na aankomst in Neder-land in een onaanvaardbare huisvestingssituatie zou komen te verkeren. Voorts speelt de vraag of de be-trokken bepaling toelaat dat gezinshereniging pas wordt toegestaan nadat de buitenlandse werknemer gedurende zekere tijd in Nederland heeft verbleven. Wij achten het niet wenselijk dat het gezin zich bij de werknemer zou voegen voordat deze zelfzich eniger-mate aan zijn nieuwe woon- en werkmilieu heeft aangepast en voordat omtrent de duurzaamheid van zijn verblijfvoldoende zekerheid zou zijn verkregen. Met het oog hierop moet kunnen worden vastgehou-den aan het vereiste dat gezinshereniging eerst een jaar na de tewerkstelling van de werknemer, afkom-stig uit een wervingsland, kan plaatsvinden.
296
Europees Sociaal Handvest Art. 19 Europees Sociaal Handvest Art. 19297
TOELICHTING
Europees Comite voor SociaIeRechten
- 'While the Committee agreed that in this case there was no obligation to abolish discrimination against migrants in the matter of housing, it reiterat-ed its view that because of the fundamental impor-tance for family reunion of adequate housing, Article 19, paragraph 6 obliges states to take practical mea-sures of some kind to assist migrant workers in ob-taining accommodation suitable for their families; de
jure equality. in access to housing being a means, among others, for carrying out this obligation.'(Cond. IV, m.b.t. Oostenrijk, 124)
- 'The Committee found that the severe restric-tions in force in the United Kingdomon husbands re-joining their wives working in the United Kingdom were compatible with the Charter as specified in the wording of Article 19 (6) of the Annex to this instru-ment. However these restrictions had the secondary effect of preventing a married woman breadwinner, national of another Contracting Party, employed in the United Kingdom, from bringing in her dependent children unless the husband was incapable oflooking after the children or the marriage had broken down. The Committee was of the opinion (see above) that the term "worker" in the Charter meant both men and women workers unless the context imposed a differ-ent interpretation, and that consequdiffer-ently the defini-tion of a migrant worker's family in the Appendix to the Charter included the dependent children (though not the husband)ofa woman worker.'(Cond.IV, m.b.t. het Verenigd Koninkrijk, 127)
- 'The aim of paragraph 6 is to oblige states to cre-ate the conditions which make family reunion pos-sible. The extent of the effort of each state is made conditional, by this provision, on the objective possi-bilities which shape its action in this sense.
Therefore, as paragraph 6 provides for the obliga-tion to "facilitate as far as possible the reunion... ", it should not be interpreted in the sense that it permits the adoption of restrictions likely to deprive this obli-gation of its content.
The Appendix to the Charter completes this rule by defining the terms "family of a foreign worker" as meaning "at least his wife and dependent children under the age of 21 years". In this respect, the
com-mittee underlined that given the very terms of this Appendix, it should by no means be interpreted as permitting the establishment, under the form of a general rule, of an age limit lower than 21 years. But since the persons concerned must also be "depend-ent" on the migrant worker, in accordance with the said Appendix, thos fulfilling the age condition could be deprived of the right to family reunion in the case where it is established that they are no longer de-pendent on the migrant worker.
The concept of "dependent" persons should be un-derstood, under this provision of the Charter, as being that of persons who depend, for their existence, on their family, in particular because of economic rea-sons or, as the case may be, for such rearea-sons as contin-uation of education without remuneration or for rea-sons of health.
Given the above considerations, the committee moreover thought that the principle of family re-union is but an aspect of the recogni tion in the charter (Article 16) ofthe obligation of states to ensure social legal and economic protection of the family which is regarded as "the fundamental unit of society". Conse-quently, the application of Article 19, paragraph 6 should in any case take account of the need to fulfil this obligation.'(Cond.VIII,211-212)
- 'The government again challenges the Commit-tee's interpretation of Article 19 para. 6.Itobserves that according to the wording of this provision, Con-tracting Parties should "facilitate as far as possible" family reunion. In the opinion of the government this leaves the Contracting Parties a relatively wide mar-gin of appreciation in regulating family reunion. The Committee holds that Article 19 para. 6 should not be interpreted in the sense that it permits the adoption of restrictions likely to deprive this obligation of its content (Conclusions VIII, p. 211 ).Asstated previous-ly,it does not find it possible to re-interpret Article 19 para. 6 (Conclusions XIII-2, p. 385).'(Cond.XIV-lvol. 1, m.b.t. Duitsland, 340)
298 Europees Sociaal Handvest Art. 19
Europees Sociaal Handvest Art. 19 299 which is in line with the requirements of the revised
European Social Charter, ratification of which is un-derway.
The Committee recalls firstly that as long as the re-vised Charter is not yet in force in Belgium, the 1961 Charter should be complied with. It also recalls that the Appendix to the Charter provides that dependent children under the age of twenty-one have the right to family reunion: in cases where legislation sets a lower age limit, the Committee asks for evidence in the reports that family reunion is granted in practice up to the age of twenty-one:
(Concl. XV-1 vol.
1,m.b.t.
Belgie, 104)- The Committee takes note of the information contained in the
Dutch
report.Scope offamily reunion
In its previous conclusion, the Committee found the situation in the Netherlands with regard to 19§6 not in conformity with the Charter on the grounds that many children aged between eighteen and twen-tyone were not qualified in law for family reunion and were also denied the right to family reunion in prac-tice. The report mentions that the Committee cannot take such far reaching conclusions on the basis of the statistics provided by the Dutch government in its previous report. (... )
The report also states, that out of the2032 applica-tions mentioned in the statistics, more than 1300 re-late to family formation, which in the opinion of the Dutch government is not considered to be family re-unification falling within the scope of paragraph 6 of Article 19. Firstly, the Committee does not share the Dutch government's point of view that family forma-tion cannot be considered to fall under the scope of paragraph 6 of Article 19. Forthe purpose of applying this provision, the term 'family of a foreign worker' is understood to mean at least the worker's spouse and dependent children. There is no mention in this arti-cle that the family should have existed before the mi-grant worker came to the Netherlands. (... )
The Committee recalls that the Appendix to Article 19§6 requires family reunion to be secured to chil-dren of migrant workers up to the age of twenty-one years. Since the family members concerned must a.lso be 'dependent' on the migrant worker, those fulfilling the age condition could be denied the right to family reunion in the case where it is established that they are no longer dependent on the migrant worker. The
Committee emphasises that the concept ofdepend-ent' persons should be understood as being that of persons who depend for their existence on their fam-ily, in particular because of economic reasons or for such reasons as continuation of education without remuneration or for health reasons. These children have no independent existence outside the family. The Committee notes that Dutch national legislation on family reunion requires that for children above the age of eighteen years an additional criterion be ful-filled in order to exercise the right of family reunion, namely the requirement that these children should be morally dependent on the migrant worker. The Committee finds no basis for this in the Charter. This additional requirement is regarded as a restrictive term. The Committee observes that this could well have the effect of discouraging applications for family reunion in respect of dependents rather than facili-tating the process as required by paragraph 60fArti-cle 19.
Conditions governingfamiiy reunion
Term of residencesta-300 Europees Sociaal Handvest Art. 19 Europees Sociaal Handvest Art. 19 301 tistical information as to how many applications for
family reunion have been rejected for said migrants and how many of these migrants were above the age of minority.
Income
The report states that income from welfare support (non-contributory benefits) does not enter into the assessment of the income stipulated for approval of family reunion, and that consequently any request from persons without other income will be refused. The Committee considers that the level of means re-quired to bring in the family should not be so restric-tive as to prevent any family reunion. It can be con-cluded from Dutch legislation and practice, that a mi-grant worker who receives welfare support is pre-vented from exercising the right to family reunion. The Committee observes that this restriction could have the effect of discouraging applications for family reunion in respect of dependents rather than facili-tating the process as required by paragraph 6 of Arti-cle 19.
Conclusion
Based on the information at its disposal, the Com-mittee concludes that the situation in the Nether-lands is not in conformity with Article 19§6 of the Charter, on the grounds that:
- many children aged between eighteen to twen-ty-one years whose parents are nationals of Contract-ing Parties not belongContract-ing to the European Union and not parties to the Agreement on the European Eco-nomic Area are ineligible for family reunion;
- the three year waiting period which applies to migrant workers who have settled in the territory by means of family reunion is too long;
- migrant workers receiving welfare support are deprived of exercising the right to family reunion.' (Concl.XVII-lvol.1, 165-168)
Aantekeningen lid 7
PARLEMENTAIRE BEHANDELING
- 'Voor de onderdanen van de meeste Staten, wel-ke dee Ivan de Raadvan Europa uitmawel-ken, is de mate-rie van dit lid in het Haags Rechtsvorderingsverdrag geregeld. Echter zijn niet aIle leden van de Raad van Europa bij dit verdrag aangesloten. Met het oog hier-op is een bijzondere uitvoeringswet nodig(ziede
Uit-voeringswet van8maart 1980 onder IF, bew.).' (MvT, 8606,R533)
TOELICHTING
EuropeesComuevoor SodaleRechten
- 'The Committee took the opportunity to make it clear that, according to the wording of this paragraph, the equality of treatment which it lays down must in-clude everything covered by Article 19, and that it was therefore insufficient for a state to guarantee it only in some fields for example in criminal law and the law concerning contracts of employment.'(Concl. 1,217)
- 'It(het Comue, bew.)recalled that paragraph 7 of Article 19 provides that Contracting Parties should 'secure for migrant workers lawfully within their ter-ritories treatment not less favourable than that of their own nationals in respect oflegal proceedings... ' Domicile or absence of it is not mentioned in the text, which requires only lawful presence within a state's territory.'(Cond. VII, 108)
- 'The Committee notes from the Dutch report that there have been no change to the situation which it had previously found to be in conformity. It therefore concludes that the situation in the Netherlands is in conformity with Article 19§7 of the Charter.'(Cond.
XVII-l vol.1, 168-169) Aantekeningen lid 8
PARLEMENTAIRE BEHANDELING
- 'Wij menen dat deze bepaling van de goedkeu-ring uitgezonderd dient te blijven (... ). Aanvaarding van deze verdragsbepaling zou niet langer toe laten, dat de verblijfsvergunning van een vreemdeling wordt ingetrokken indien hij niet meer over voldoen-de midvoldoen-delen beschikt.'(NEV, 8606,R533)
302 Europees Sociaal Handvest Art. 19 Europees Sociaal Handvest Art. 19 303 het Europese Verdrag inzake de rechtspositie van
mi-grerende werknemers.
Centraal stond destijds de vraag naar de reikwijdte van de in artikel 19, achtste lid, van het Europees So-ciaal Handvest genoemde verwijderingsgrond, voor zover deze inbreuken op de openbare orde betrof. Naast deze uit 1961 daterende globale bepaling staat thans de in 1977 bij het nu aan de orde zijnde verdrag getroffen uitgewerkte regeling omtrent verblijfsver-gunningen, neergelegd in artikel 9 van het verdrag.
Het samenstel van de aldus op Europees niveau tot stand gekomen rechtsregels omtrent de verblijfs-rechten van migrerende werknemers geeft thans vol-doende duidelijkheid over de reikwijdte van die rech-ten. Buiten twijfel is gesteld dat het complex van ver-dragsbepalingen en de Vreemdelingenwet niet met elkaar in strijd zijn. Het voorbehoud met betrekking tot artikel19, achtste en tiende lid, voorzien in artikel 2 van de Rijkswet tot goedkeuring van ht Europees Sociaal Handvest, verliest derhalve zijn zin bij de in-werkingtreding van het nieuwe verdrag voor Neder-land. Het voorgestelde artikel 4 voorziet dan ook in gelding van artikel 19, achtste en tiende lid, van het Europees Sociaal Handvest voor Nederland.' (MvT, 16075, R 1142)
Dit Europees verdrag inzake de rechtspositie van migrerende werknemers en de leden 8 en 10 van arti-kel19 ESH zijn bekrachtigd op 1 februari 1983.
Inwerkingtreding op 1 mei 1983. ZieTrb.1983, 44. Goedkeuringswet van 2 december 1982,Stb. 1982,
678. Zie voor de behandeling in de Staten-Generaal: Kamerstukken II 1979/80, 16075 (R 1142); 1981/ 82,16075 (R 1142); Handelingen II 1981/82, p.2755-2764; 2773-2781; 2841; Kamerstukkenl 1981/82, 16075 (R 1142)(71; 110); 1982/83,16075 (R 1142) (9,9a); Handelingen I 1982/83, p.122-127, 134-142 (bew.). TOELICHTING
Europees Comite voor Sociale Rechten
- 'The Committee is of opinion that in order to fulfil its obligations under this paragraph a state must not only have laws excluding in principle any possibility of expelling workers who are legally resident in its
territory - unless they endanger national security or offend against public order or morality - but must in addition provide suitable guarantees against the pos-sibility of arbitrary decisions in this matter.'(Concl.I,
86)
- 'The Committee specified in this connection that in order to benefit from the protection here provided for, a migrant worker must be in possession of all pa-pers legally required by the country of residence for regular residence, including, if need be, a residence permit and a work permit.'(Concl.lI, 197)
- 'The Committee also expressed concern that a foreign worker who, during the four first years of his residence inCyprus,lost the job for which he had been granted a work permit, was apparently obliged to leave Cyprus. Although this allowed employers to ex-ert intolerable pressure on the migrant worker con-cerned, the Committee had to recognise that, in view of the interpretation given above, the situation was not incompatible with the Charter.' (Cond. II, m.b.t. Cyprus,198)
- 'Recalling its importance, the Committee stressed moreover that this provision and paragraph 4 of Article 13 are complementary to each other. In view of the reference made by the latter provision to the European Convention on Social and Medical As-sistance of 1953, the Charter thus protects also for-eigners lawfully residing on the territory of a Con-tracting Party against the possibility of expulsion due to their being in need or to their bad state of health. This protection completes that provided by para-graph 8 of Article 19, which protects these persons against expulsionunless they endanger national se-curity or offend against public interest or morality.
The Committee underlined, on the one hand, the limitative nature of this list of reasons for expulsion, which would lead it to consider as contrary to the Charter an expulsion based exclusively on health rea-sons.'(cf Conclusions V, 138)
304 Europees Sociaal Handvest Art. 19 Europees Sociaal Handvest Art. 19 305 - 'The Committee noted in Conclusions XIII-3
(p.423) that during the reference period 1992-93, a number of nationals had been expelled fromTurkey
for health reasons (for "being infected with conta-gious diseases and Aids"). Recalling that according to its established case law, a threat to public health can-not be considered as included in the concept of public interest and does not justify expulsion except in the case of a refusal to undergo appropriate treatment, it concluded that the situation was contrary to the Charter.'(Cond.XIV-l vol.2,m.b.t. Turkije, 782)
- 'The Committee concludes that the situation in
Germanyis not in conformity with Article19 para. 8 of the Charter as certain grounds for deportation laid down by the 1991 Foreign Nationals Act (not being able to meet own needs or those of dependants with-out recourse to social assistance, using heroin, co-caine and other drugs, prolonged homelessness, re-course to assistance for the upbringing of children outside the family, serious crime committed by mi-nors) go beyond the grounds permitted by this provi-sion of the Charter.'(Cond. XV-1 Addendum2, m.b.t. Duitsland,52)
- 'On the basis of the information contained in the
Dutchreport and earlier reports, the Committee ob-serves no change in the rules on expulsion of the mi-grant worker's family, which it previously considered not to be in conformity with Article19§8. The Com-mittee recalls that in its previous report the Dutch government stated that the expulsion of a migrant worker entails the expulsion of his family members, where they have been admitted to Dutch territory on the grounds of family reunion.
In the report reference is made to the minutes of the meeting of the Governmental Committee of October 2002. During that meeting the Dutch government asked the Committee to give an explanation for its in-terpretation of Article19§8 in combination with Arti-cle19§6. In particular, it asked whether Article 19§6 confers on each of its beneficiaries a personal right of residence distinct from the original right held by the migrant worker. The Committee recalls that para-graph 8 of Article 19 provides safeguards as to the grounds for expulsion of migrant workers. This para-graph is to be interpreted restrictively, in the sense that the sole grounds for expulsion contained in this paragraph are the threat to national security or of-fence against public interest or morality.
Further-more, the wording of paragraph 8 makes no explicit mention of the expulsion of the family members of a migrant worker as a consequence of his or her expul-sion. If the family members do not pose a threat to national security or offend against public interest or morality they may not be expelled for the simple rea-son that the migrant worker is expelled. Therefore, the Committee reiterates that migrant workers' fam-ily members cannot be expelled in connection with his or her own expulsion. The Committee recognises that the expulsion of a migrant worker could result in the family members staying in the country of receipt. The family members are free to chose whether they want to follow their expelled spouse to his or her country of origin. Furthermore, the Committee notes that Parties should guarantee the reunion of the fam-ily of a migrant worker. Given the wording of para-graph 6 of Article19, this right exists once a migrant worker is permitted to establish himself in the terri-tory. As explicitly stated in Article 19§6, this right may be exercised intheterritoryof the receiving state. This is the basis for an independent right of residence for the family of the migrant worker. (... )
The Committee therefore concludes that the situa-tion in the Netherlands is not in conformity with Arti-cle19§8, on the ground that a migrant worker's fam-ily members who have settled on Dutch territory as a result of family reunion are expelled when the mi-grant worker is expelled:(Cond. XVll-l vol.1,
169-170)
Aantekeningen lid 9
PARLEMENTAIRE BEHANDELING
- 'Aan het overmaken naar het buitenland van hier te lande verdiende lonen en verworven spaargelden worden geen belemmeringen in de weg gelegd.'
(MvT, 8606, R533)
TOELICHTING
Europees ComitevoorSodaleRechten
restric-306 Europees Sociaal Handvest Art. 19 Europees Sociaal Handvest Art. 20 307 tion, while authorising some limit on what might be
transferred for currency reasons, could not be under-stood as permitting a state which had accepted para-graph 9 to place any obstacle in the way of transfer-ring a reasonable amount of earnings and savings, having regard to the situation of the migrant and his family.'(Condl, 86)
- 'The information contained in theSwedishreport confirmed that, despite the existence of the rule un-der which transfers of money to countries other than the country of origin are not normally permitted, ex-ceptions are possible on some conditions, eg for the payment of maintenance and payments to depend-ants. (... ) The Committee was therefore able to con-clude that Sweden continued to comply with this provision of the Charter.' (Cond. X-1, m.b.t. Zweden,
155)
- 'The Committee notes from theDutchreport that there have been nochanges to the situation which it had previously found to be in conformity. It therefore concludes that the situation in the Netherlandsis in conformity with Article 19§9 of the Charter.' (Cenci. XVll-1 vol. 1, 170)
Aantekeningen lid 10
PARLEMENTAIRE BEHANDELING
- Zieonder de parlementaire behandeling bij lid 8.
TOELICHTING
Europees Comite voor SocialeRechten
- 'Asthis provision relates solely to extending the protection and assistance embodied in the other par-agraphs of Article 19 to self-employed workers. it is important that the following comments should be considered not in isolation. but together with those made on each of the other paragraphs of Article 19. Hence any statement that a particular state has ful-filled its obligations deriving from paragraph lOis valid only in so far as the Committee has been able to reach a like conclusion in respect of the other para-graphs also.'(Cond.l, 87)
- '(... ) the Committee recalled that paragraph 10 or Article 19 implies not only equality of treatment in law between salaries workers and independent
workers but provides as well for positive and specific measures for the latter category (... ).'(CondIV, m.b.t. Noorwegen,131)
- 'On the basis of the information contained in the Dutch report and previous reports under the Eu-ropean Social Charter of 1961, the Committee notes that there is no discrimination between migrant em-ployees and self-employed migrants. However, in its conclusions under Article 19§6 and 19§8, it has con-cluded that the situation in the Netherlands is not in conformity with the Charter. Accordingly, the Com-mittee concludes that the situation in the Nether-lands is also not in conformity with Article 19§10 of the Charter.'(Concl. XVll-1 vol.1,170)
DEEL III
Verplichtingen
Art. 20. - 1. leder der
Overeenkomstslui-tende Partijen is verplicht:
(a)
deeI I van het onderhavige Handvest te
beschouwen als een verklaring van de
doel-stellingen welke zij overeenkomstig de
inlei-dende alinea van genoemd deel met aIle
daar-voor in aanmerking komende middelen zal
na-streven;
(b)
zich gebonden te achten door ten minste
vijf van de zeven hierna genoemde artikelen
van dee I IIvan het Handvest, namelijk de
arti-kelen 1, 5, 6,12,13,16 en 19;
(c)
zich, behalve door de overeenkomstig
het voorgaand lid door haar gekozen artikelen,
gebonden te achten door een aantal artikelen
of genummerde leden van deel II van het
Handvest, te harer keuze, mits het totale aantal
artikelen of genummerde leden die haar
bin-den, niet minder dan 10 artikelen of 45
genum-merde leden bedraagt.
- 2. De krachtens lid 1, sub b en c, van dit
artikel gekozen artikelen of leden worden
me-degedeeld aan de Secretaris-Generaal van de
Raadvan Europa bij de nederlegging van de
ak-te van bekrachtiging of goedkeuring door de
betrokken Overeenkomstsluitende Partij.
Par-308 Europees Sociaal Handvest Art. 20 Europees Sociaal Handvest Art. 20 309
tijen kan op een later tijdstip door
kennisge-ving aan de Secretaris-Generaal verklaren dat
zij zich gebonden acht door andere artikelen of
genummerde leden van deel II van het
Hand-vest, die zij nog niet eerder overeenkomstig lid
1 van dit artikel heeft aanvaard. Deze later
aan-vaarde verplichtingen worden geacht een
in-tegrerend deel van de bekrachtiging of
goed-keuring te zijn en hebben met ingang van de
dertigste dag na de datum van kennisgeving
hetzelfde rechtsgevolg.
- 4. De Secretaris-Generaal doet van elke
door hem overeenkomstig dit deel van het
Hand vest ontvangen kennisgeving
medede-ling aan aIle ondertekenende regeringen,
als-mede aan de Directeur-Generaal van het
Inter-nationale Arbeidsbureau.
- 5. ledere Overeenkomstsluitende Partij
dient te beschikken over een aan haar
nationa-le omstandigheden aangepast stelsel van
ar-beidsinspectie.
PART III
Undertakings
Art.20. -
1. Each of the Contracting
Par-ties undertakes:
(a)
to consider Part Iof this Charter as a
dec-laration of the aims which it will pursue by all
appropriate means, as stated in the
introduc-tory paragraph of that Part;
(b)
to consider itselfbound by at least five of
the following Articles of Part IIof this Charter:
Articles 1,5,6,12,13,16 and 19;
(c)
in addition to the Articles selected by it
in accordance with the preceding
sub-para-graph, to consider itself bound by such a
num-ber of Articles or numnum-bered paragraphs of Part
II of the Charter as it may select, provided that
the total number of Articles or numbered
para-graphs by which it is bound is not less than 10
Articles or 45 numbered paragraphs;
- 2. The Articles or paragraphs selected in
accordance with sub-paragraphs
(b)and
(c)of
paragraph 1 of this Article shall be notified to
the Secretary-General of the Council of Europe
at the time when the instrument of ratification
or approval of the Contracting Party concerned
is deposited.
- 3. Any Contracting Party may, at a later
date, declare by notification to the
Secretary-General that it considers itself bound by any
Articles or any numbered paragraphs of Part II
of the Charter which it has not already
accept-ed under the terms of paragraph 1 of this
Arti-cle. Such undertakings subsequently given
shall be deemed to be an integral part of the
ratification or approval, and shall have the
same effect as from the thirtieth day after the
date of the notification.
- 4. The Secretary-General shall
communi-cate to all the signatory Governments and to
the Director-General of the International
La-bour Office any notification which he shall
have received pursuant to this Part of the
Char-ter.
- 5. Each Contracting Party shall maintain a
system oflabour inspection appropriate to
na-tional conditions.
Aantekeningen
ALGEMEEN
- Zie Deel III van de Bijlage ESH.
- Zie voor de landen die partij zijn bij het Hand-vest, alsmede voor de door hen aangegane verplich-tingen het hie rna opgenomen ratificatie-overzicht.
- Zie voor het vraagstuk van de wederkerigheid onder paragraaf 1 van de Bijlage.
310 Europees Sociaal Handvest Art. 21 Europees Sociaal Handvest Art. 21 311
DEEL IV
Rapporten inzake
de
aanvaarde bepalingen
Art. 21.
De Overeenkomstsluitende
Partij-en zPartij-endPartij-en, in ePartij-en nader door het Comite van
Ministers te bepalen vorm,tweejaarlijkse
rap-porten inzake de toepassing van de door hen
aanvaarde bepalingen van dee
I II
van het
Handvest aan de Secretaris-Generaal van de
Raad van Europa.
PART IV
Reports concerning accepted provisions
Art. 21.
The Contracting Parties shall send
to the Secretary-General of the Council of
Eu-rope a report at two-yearly intervals,in a form
to be determined by the Committee of
Minis-ters, concerning the applicationof such
provi-sions of Part
II
of the Charter as they have
ac-cepted.
Aantekeningen
TOELICHTING
EuropeesComite voorSociateRechten
- 'In 1984 (366th meeting of the Deputies), the Committee of Ministers provisionally decided, for a six-year period, to divide the Contracting Parties to the Charter into two groups for the presentation of their biennial reports. This division was made perma-nent in October 1989.
Following a proposal by the Committee for the Eu-ropean Social Charter (Charte-Rel), the Committee of Ministers adopted in September 1992 (479th meet-ing of the Deputies) and for a period of four years, an amendment to the reporting system provided under Article 21 of the Charter. Under the new system, the Contracting Parties were to submit an annual report on selected provisions of the Charter, in order partic-ularly to allow for comparison of the different nation-al situations. Conclusions XIII-1, XIII-2, XIII-3 and the present Conclusions have followed this provisional system.
In the absence of unanimity to prolong the provi-sional system, the Ministers' Deputies decided (in Oc-tober 1995) to continue discussions in order to reach the unanimous agreement of the Contracting Parties on a system of reports. In the meantime, it was decid-ed that in June 1996 the following series of reports would be submitted: second full reports from Fin-land, Luxembourg and Portugal. first reports on the Additional Protocol from Italy and Norway and sec-ond reports on the Additional Protocol from Finland, the Netherlands and Sweden (cycle XIII-S). In the ab-sence of a unanimous agreement between the repre-sentatives of the Contracting Parties, from June 1997 the states - divided into two groups - would submit two-yearly reports on all the provisions they had ac-cepted. However, on 10 September 1996 following a proposal made by the Governmental Committee, the Committee of Ministers adopted the new system for presenting national reports by a unanimous decision of the Contracting Parties which will enter into force as from June 1997: (Cond.XIII-4, 26-27)
- 'In accordance with the new system for the pre-sentation of reports, which entered into force injune 1997, all states will report on the same provisions and with the same reference periods. Reports on the hard core provisions will be submitted by 30 June of un-even years, with the two previous years as the refer-ence period. Reports on provisions outside the hard core will be submitted by 31 March of even years and will refer each time to half of the provisions con-cerned, each with a reference period of four years:
(Cond.XIII-5,31) .
(voor het systeem t.a.v. hetherzieneEuropees Sociaal Handvest, zie document van het comite van Ministers CM(99)157,hew.)
- 'The next reports submitted on the application of the Charter that will be examined by the Committee will concern:
- from March to December 2002 half of the provi-sions outside of the hard core (Articles 2, 3,4, 9, 10 and 15 and Articles 2 and 3 of the Additional Protocol).
- from July 2003 to February 2004 on the provi-sions of the hard core (Articles 1,5,6,12,13,16 and 19)(Concl. XVI-I vol. 1, 12).
312 Europees Sociaal Handvest Art. 22 Europees Sociaal Handvest Art. 22 313 Articles 1 and 4 of the Additional Protocol." (Cond.
XVIl-l vol.1, 10)
(De hard-core bepalingen bestaan uitdeartikelen 1
(de/acto
behalve lid 4),5,6,12,13,16 en 19 ESH. Vgl. ook de bepalingen die genoemd worden in artikel20 lid 1(b).De niet hard-core bepalingen bestaan uit de overi-ge artikelen, i.e.(1lid 4),2,3,4, 7, 8, 9, 10, 11, 14, 15, 17, 18 en aIle artikelen (1-4) van het Aanvullend Pro-tocol.
Bij het voorbereiden van de nationale rapporten dient gebruik gemaak te worden van een 'form for the reports' waarin specifieke vragen staan die beant-woord dienen te worden. Deze is laatstelijk aangeno-men op 24 november 1999 op de 68ge vergadering en te raadplegen op de website van het Cornite van Mi-nisters onder nummer CM(99)156, en is laatstelijk gewijzigd m.b.t. vragen over artikel 7 lid 4 op 17 ja-nuari 2001 op de 737e vergadering.
De 'form for reports' is net als soortgelijke vragen in de Conclusions zelf in dit deel niet opgenomen, mede gezien de omvang. Desalniettemin kan het een waar-devolle bron van informatie betreffen ter interpreta-tie van de afzonderlijke bepalingen,bew.).
Rapporten inzake
de
nietaanvaarde
bepalingen
Art. 22.
De Overeenkomstsluitende
Partij-en doPartij-en de Secretaris-GPartij-eneraal van de Raad
van Europa met passende tussenruimten, op
verzoek van het Comite van Ministers,
rappor-ten toekomen inzake de bepalingen van deel II
van het Handvest, welke zij noch ten tijde van
de bekrachtiging of goedkeuring noch bij
late-re kennisgeving hebben aanvaard. Het Comite
van Ministers bepaalt op gezette tijden ten
aanzien van welke bepalingen deze
rapporten
zullen worden gevraagd en in welke vorm deze
moeten worden ingediend.
1. Reports should be submitted before 31 March 2004.
Reports concerning provisions which are not
accepted
Art. 22.
The Contracting Parties shall send
to the Secretary-General, at appropriate
inter-vals as requested by the Committee of
Minis-ters, reports relating to the provisions of Part II
of the Charter which they did not accept at the
time of their ratification or approval or in a
subsequent notification. The Committee
ofMi-nisters shall determine from time to time in
re-spect of which provisions such reports shall be
requested and the form of the reports to be
provided.
Aantekeningen
ALGEMEEN
- In 1977 besloot het Cornite van Ministers voor het eerst de procedure van artikel22 toe te passen en verzocht het de lidstaten te rapporteren over de arti-kelen 4 lid 3, 7 lid 1 en 8leden 1 en 2. De conclusies van het Europees Cornite voor Sociale Rechten (toen nog: Comite van deskundigen) getiteld: 'First report on certain provisions of the Charter which have not been accepted' werden in 1981 uitgebracht. Het regerin-scornite stuurt vervolgens de conclusies en haar ei-gen rapport door naar de Cornite van Ministers. Op basis van deze rapporten en - tot en met het derde artikel 22-rapport- een opinie van de Parlementaire Vergadering, besluit het Comite van Ministers tot een resolutie.
Er zijn tot nu toe 8 artikel 22-rapportages van het Europees Comite voor Sodale Rechten geweest:
1e Rap. artikel22: uitgebracht in 1981 t.a.v. de arti-kelen 4 lid 3, 7 lid 1 en 8,leden 1 en 2;
2e Rap. artikel22: uitgebracht in 1982 t.a.v. de arti-kelen 2 lid 4, 7 lid 4, 8 lid 4 en 19 lid 8;
3e Rap. artikel22: uitgebracht in 1989 t.a.v. de arti-kelen 2 lid 1 en 7,leden 5, 6 en 7;
4e Rap. artikel22: uitgebracht in 1995 t.a.v. de arti-kelen 7 lid 9 en 19 lid 4;
5e Rap. artikel22: uitgebracht in 1997 t.a.v. het ar-tikel4 lid 4;
314 Europees Sociaal Handvest Art. 22 Europees Sociaal Handvest Art. 22 315 7e Rap.artikel22: uitgebracht in 2000 t.a.v. de
arti-kelen 5, 6 en 13;
8e Rap.artikel22: uitgebracht in 2001 t.a.v. artikel 7, leden 1,3 en 4.
Een paar rapporten zijn via de website van het Co-mite van Ministers te bemachtigen.
Het cornite van Ministers heeft tot nu toe de aanbe-velingen uit de bovenstaande rapporten d.m.v. ver-wijzing, in zijn resoluties overgenomen en beslist niets anders dan dat de documenten naar de betref-fende staten gestuurd dienen te worden. Zie:
Res.Chs (83) 2 t.a.v. de eerste rapportage Res.Chs (84) 1 t.a.v. de tweede rapportage Res.ChS (92)1 t.a.v. de derde rapportage Res. ChS (95)3 t.a.v. de vierde rapportage
Res.ChS (99) 1 t.a.v. de vijfde en zesde rapportage Res.ChS (2001) 1 t.a.v. de zevende rapportage Res. ChS (2001) 8 t.a.v. de achtste rapportage (bew.).
TOELICHTING
Comite van Ministers
- 'Ten aanzien van het
herziene
ESH bestaat er een nieuwe procedure, getuige onderstaande beslissing (bew.).Dedsions
In accordance with Article 29 of the European So-cial Charter and the decision adopted by the Commit-tee of Ministers at the 541st meeting of the Deputies (june 1995, item 4.6), the Deputies, Representatives of the Contracting Parties to the European Social Charter or the Revised Charter in the Committee of Ministers on the basis of the abridged report of the Governmental Committee of the European Social Charter concerning Conclusions XVI-l (CM(2002) 182) and the abridged report of the Governmental Committee concerning Conclusions 2002 (Revised European Social Charter) (CM(2002)183 and corri-gendum):
(
...
)In application of Article 22 of the European Social Charter,
3. decided that states having ratified the Revised European SocialCharter should report on the non-ac-cepted provisions every five years after the date of ratification;
4. invited the European Committee of Social Rights to arrange the practical presentation and examin-ation of reports with the states concerned:
(Beslissing
4.1, aangenomen tijdens
de 821evergadering)
Europees
Comirevoor Sodale Rechten
- 'As regards the
usefulness
of the procedure under Article 22, the Committee can only confirm the com-ments it made on this point during the five previous exercises: together with the supervision of accepted provisions (Article 21), this procedure is a means of forming as complete a picture as possible of the legal and practical situations existing in all the Contracting Parties with regard toallthe standards contained in the Charter and it gives the Committee the opportu-nity to affirm the main principles of its case law. The examination of the reports on non-accepted provi-sions brings to light the factors which hinder the ac-ceptance of those standards. Explanations may con-sequently be given, and this contributes to encourag-ing new acceptances of the provision thus consid-ered, which is also one of the main aims of the procedure provided for in Article 22:(6eRap. art. 22,
7-8)- 'III. Proposal for the future of the Article 22 exer-cise
In view of the growing number of Contracting Par-ties to the 1961 Charter that have already or are cur-rently preparing to ratify the 1996 Revised Charter, the Committee proposes that, in future, states should report on the non-accepted provisions of the Revised Charter only.
Since ratification entails detailed consideration by states as to the selection of provisions of the Revised Charter, it would not be useful to invite reports on non-accepted provision until a reasonable period of time has elapsed. Given the wide diversity possible in the selection that state may make, it would be more coherent to review the situation state by state, rather than provision by provision. In order to ensure a man-ageable workload, allowing time for consideration of the situation in each state, the Committee proposes that, fiveyears after the date of ratification, each Party to the Revised Charter submit a report on all provi-sions not accepted.
316 Europees Sociaal Handvest Art. 23 Europees Sociaal Handvest Art. 24 317 Rights to embark on this detailed appraisal, state by
state every five years, beginning five years after the ratification of the Revised Charter. The practical de-tails surrounding the submission of national reports could be agreed between the European Committee of Social Rights and the states concerned. It would no longer be necessary for the Committee of Ministers to adopt a form for reports or a resolution for each im-plementation of the procedure for reports on non-ac-cepted provisions laid down in Article22.
Asfor states which have not ratified the Revised So-cial Charter, the Committee reserves the possibility to make proposals for the application of Article22 of the Social Charter.'(8e Rap. art.22, 18)
Verstrekking van exemplaren
Art. 23. -
1. Ieder der
Overeenkomstslui-tende Partijen zendt exemplaren van de in de
artikelen 21 en 22 bedoelde rapporten aan
haar nationale organisaties welke zijn
aange-sloten bij de internationale organisaties van
werkgevers en werknemers, die
overeenkom-stig artikel27, lid 2, worden uitgenodigd zich
te doen vertegenwoordigen op de
bijeenkom-sten van het sub-comite van het sociale
rege-ringscomite,
- 2. De Overeenkomstsluitende Partijen
doen de Secretaris-Generaal de van deze
na-tionale organisaties ontvangen opmerkingen
over genoemde rapporten toekomen, indien
laatstgenoemden dit verzoeken.
Communication ofcopies
Art. 23. -
1. Each Contracting Party shall
communicate copies of its reports referred to
in Articles 21 and 22 to such of its national
or-ganisations as are members of the
internation-al organisations of employers and trade unions
to be invited under Article 27, paragraph 2, to
be represented at meetings of the
Sub-com-mittee of the Governmental SocialComSub-com-mittee.
- 2. The Contracting Parties shall forward
to the Secretary-General any comments on the
said reports received from these national
orga-nisations, if so requested by them.
Aantekeningen
ALGEMEEN
- Zie artikel 1 van het Protocol tot wijziging van 1991.
- Op 21 oktober 1991 is in Turijn een protocol aan-genomen dat het ESH moest wijzigen (ETS nr.142). Voor de tekst zie hieronder Hoofdstuk 1B. De voor-naamste reden om dit Protocol aan te nemen lag in de wens om de toezichtsprocedure te versterken. Ook Nederland heeft dit protocol geratificeerd waarbij te-vens voor de Nederlandse Antillen en Aruba geratif-iceerd is. Het protocol zou de artikelen23 tot en met 30 ESH gewijzigd hebben. Dit protocol is echter nooit in werking getreden aangezien artikel 8 als voor-waarde stelt dat alle lidstaten, die het ESH geratifi-ceerd hebben, ook het protocol geratifigeratifi-ceerd dienen te hebben.
Desalniettemin is het protocol tot wijziging reeds deels de facto in werking getreden door beslissingen van het Cornite van Ministers en andere controle-rende organen(bew.).
TOELICHTING
Camite van Ministers
- Deputies: 'The Deputies (
...
)4. requested the States party to the Charter and the supervisory bodies to envisage the application of the measures provided for in this Protocol before its entry into force, in so far as the text of the Charter will al-low.'(Beslissing van11december1991tijdensde467e vetgaderuig van 'Minister's Deputies')
Bestudering van
de
rapporten
318 Europees Sociaal Handvest Art. 24 Europees Sociaal Handvest Art. 24 319
ALGEMEEN
Aantekeningen
Examination of the reports
Art. 24. The reports sent to the
Secretary-General in accordance with Articles 21 and 22
shall be examined by a Committee of Experts,
who shall have also before them any
com-ments forwarded to the Secretary-General in
accordance with paragraph 2 of Article 23.
- Zie artikel 2 van het Protocol tot wijziging van 1991.
- De bevindingen van het Cornite worden gepubli-ceerd inzgn. 'Conclusions', waartotop heden 17 cycli
zijn
verschenen. Deze Conclusions zijn sinds dene-gende cyclus onderverdeeld in twee delen en sinds de 14e cyclus elk deel ook nog eens in 2 volumes (en soms een addendum in het geval van te laat gearri-veerde nationale rapportages). Voor de reden van wijziging van de rapportageverplichting, zie de Con-clusions onder artikel21.
Onderstaand voIgt een opsomming van de ver-schillende cycli waarbij tussen haakjes het jaar van publicatie staat en vervolgens de periode waarover getoetst wordt (de zgn. 'reference period'), Vanaf j uni 1997, oftewel vanaf cyclus XIV, geldt een nieuw rap-portagesysteem (zie aant. onder artikel21 )waardoor elkjaar een rapport over de implementatie van ofwei de harcore-bepalingen danwel de helft van de niet hardcore-bepalingen dient te worden ingediend. Vanaf cyclus XIV zijn de bepalingen vermeld waar de Conclusies betrekking op hebben.
de periode 1991-1992 de periode 1992-1993 de peri ode 1984-1985 de peri ode 1985-1986 deperiode1986-1987 de periode 1987-1988 de peri ode 1988-1989 de peri ode 1989-1990 de periode 1990-1991 de periode 1993-1994 de peri ode 1994-1995 Conclusions
x-i
(1987) Conclusions X-2 (1988) Conclusions XI-l (1989) Conclusions XI-2 (1991) Conclusions XII-l (1992) Conclusions XII-2 (1993) Conclusions XIII-l (1994) Conclusions XIII-2 (1995) Conclusions XIII-3 (1996) Conclusions XIII-4 (1996) Conclusions XIII-5 (1997) Conclusions XIV-l (1998) Conclusions XIV-2 (1998) Conclusions XV-l (2000) Conclusions XV-2 (2001 ) Conclusions XVI-l (2002) Conclusions XVI-2 (2003)- 'At the end of the supervision cycle, the Commit-tee (of Independent Experts, bew.) decided that it
de peri ode 1995-1996 (hardcore) de peri ode 1993-1996 (artikel 1 lid 4, 2, 3, 4, 9, 10,15 en artikel2 en 3 AP) de peri ode 1997-1998 (harcore) de periode 1995-1998 (artikeI7,8, 11, 14,17,18 en artikel 1 en 4 AP) de periode 1999-2000 (harcore) de periode 1997-2000 (artikell lid 4, 2, 3, 4, 9, 10,15 en artikel2 en 3 AP)
Conclusions XVII-l de periode 2001-2002
(2004) (hardcore)
De volgende cyclus XVII-2 in 2005 zal de niet hard-core-bepalingen van art. 7, 8, 11, 14, 17 en 18 betref-fen(bew.).
Europees Comite voor Sociale Rechten
TOELICHTING
periode van inwerking-treding tot 31 dec. 19670 de peri ode 1968-1969 de periode 1970-1971 deperiode1972-1973 de peri ode 1974-1975 de peri ode 1976-1977 deperiode1978-1979 de peri ode 1980-1981 deperiode1982-1983 de periode 1982-19841 Conclusions I (1970) Conclusions II (1971 ) Conclusions III(1973) Conclusions IV(1975) Conclusions V (1977) Conclusions VI(1979) Conclusions VII (1981) Conclusions VIII (1984) Conclusions IX-1 (1985) Conclusions IX-2 (1986)
