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United Nations

A/CN.4/565

General Assembly

Distr.: General

10 July 2006

Original: English

06-26029 (E) 271206

*0626029*

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 2

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

3

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. 4

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 5

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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 6

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 thequotesdbs_dbs31.pdfusesText_37