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AnthonyValckeSupervisingSolicitor*

EURightsClinic**ECAS/UniversityofKentatBrussels

AvenuedelaToisond’Or,77B-1060Brussels,Belgium

T:+32(0)25480494F:+32(0)25480499E:rights.clinic@ecas.org

HisExcellencyMrDonaldTuskPresidentoftheEuropeanCouncilRuedelaLoi175B-1048Brussels

byemail:ec.president@consilium.europa.eu

cc. PrebenAamann,preben.aamann@consilium.europa.euCarlaValtorta,carla.valtorta@consilium.europa.eu

Brussels,25January2018DearPresidentTusk,

Brexit:ProtectingCitizens’RightsandNewNegotiatingDirectives

We are representatives of various organisations that provide legal assistance, advice andother formsof support to EU citizens and their familymembers in theUK, aswell asUKnationalsandtheirfamilymembersintheother27MemberStates.

While we welcome the breakthrough achieved in the negotiations that has resulted inagreementonmanyaspectsofcitizens’rightsascontainedintheJointReportof8December20171,wewritetoexpressourfearsandconcernsthattheWithdrawalAgreementwillnotcomprehensivelyprotectallrightswhicharecurrentlyenjoyedbyEUcitizensandtheirfamilymembersasamatterofEUlaw.

WewishtorecallthatthenegotiatingguidelinesoftheCouncilof29April2017calledfor“reciprocalguaranteestosafeguardthestatusandrightsderivedfromEUlawatthedateofwithdrawalofEUandUKcitizens,andtheirfamilies”.WealsowishtorefertotheCouncil’sdirectives of 22May 2017 which recognised that “[t]he [Withdrawal] Agreement shouldsafeguardthestatusandrightsderivedfromUnionlawatthewithdrawaldate”.

1JointReportfromthenegotiatorsoftheEuropeanUnionandtheUnitedKingdomGovernmentonprogressduringphase1ofnegotiationsunderArticle50TEUontheUnitedKingdom'sorderlywithdrawalfromtheEuropeanUnion,8December2017<https://ec.europa.eu/commission/sites/beta-political/files/joint_report.pdf>.

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WenotethattheseprinciplesweregivenfurtherexpressionbytheCommission’s"EssentialPrinciplesonCitizens'Rights"of24May2017,whichcommittedtoensuringthattherightssetoutintheWithdrawalAgreementshouldprovidethe“samelevelofprotectionassetoutinUnionlawatthedateofwithdrawalofEU27citizens”.

However, ithasbecomeapparent that theJointReportof8December2017willnot fullycovertheentirespectrumofrightswhichallEUcitizensandfamilymemberspresentlyenjoyinconnectionwithresidence,workandequaltreatmentunderEUlaw.In this respect,we therefore consider that the statementmadeby theCommission in itsCommunicationof8December20172that“theJointReportmeansthatbothUnioncitizensandUnitedKingdomnationals,aswellastheirrespectivefamilymemberscancontinuetolive, work or study as they currently do under the same conditions as under Union law,benefiting fromthe fullapplicationof theprohibitionofanydiscriminationongroundsofnationality”isnotcorrectasamatteroflawandfact.

Indeed, it has been confirmed to us inwriting byMsMarie Simonsen3 (on behalf ofMrBarnier,ChiefNegotiator,Commission’sBrexitTaskForce)thatthefollowingcategoriesofEUcitizens and family members who currently enjoy rights of residence, work and equaltreatmentunderEUlawhavebeenexcludedfromthedealreachedattheendofthephase1negotiationsconcerningtheUK’stermsofwithdrawalfromtheEU:

– familymembersofEUcitizenswhohavereturnedhomeafterhavingresidedinanotherMemberStateasrecognisedbytheCourtof Justice’s ruling inCaseC-370/90SurinderSinghandsubsequentcases,asregardsboththosewhohavereturnedhomebeforeBrexitandthosewhoareexercisingfreemovementrightsonthedateoftheUK’swithdrawalfromtheEUandwhowillreturntotheirhomeMemberStateafterthatdate;and

– primary carers of Union citizens having a right of residence in the EU citizens’ homecountry arising from the Court of Justice’s ruling in Case C-34/09Ruiz Zambrano andsubsequentcases.

Moreover, the rights to continuous free movement of British citizens who are currentlyresiding in an EU27Member State have also been excluded from the scope of the dealreachedattheendofthephase1negotiations,togetherwithrelatedrightstoestablishment

2CommunicationfromtheCommissiontotheEuropeanCouncil(Article50)onthestateofprogressofthenegotiationswiththeUnitedKingdomunderArticle50oftheTreatyonEuropeanUnion,COM(2017)784final<https://ec.europa.eu/commission/sites/beta-political/files/1_en_act_communication.pdf>.3EmailfromMarieSimonsentotheEURightsClinic,14December2017.

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andtheprovisionofcross-borderservicesandothermatterssetoutatpoint58ofthejointtechnicalnote.4

Finally, certain other related issues have also been excluded from the scope of the dealreachedattheendofthephase1negotiationswhicharelikelytoadverselyaffecttheabilityofEUcitizenstoprotecttheirrightsofresidenceafterBrexitoccurs:

– ensuring that the interpretation of “lawful residence” fully reflects the conditionsapplicableunderEUlawinordertoavoidarestrictiveapplicationofconceptsofEUlaw(suchas,butnot,limitedto“worker”,“genuineandeffectivework”,“genuinechanceofbeingengaged”,“personhavingretainedthestatusofaworkerorself-employedperson”,“comprehensivesicknessinsurance”)thatmightleadtoarefusaltorecognisetherightsofresidenceorpermanentresidencetoEUcitizensandtheirfamilymembersintheUKaswellasUKcitizensandtheirfamilymembersintheEU27;

– ensuringthatthecommitmentsmadebytheUKnottorequireinactiveEUcitizensandtheirfamilymembersresidingintheUKtodemonstratethattheyhold“comprehensivesickness insurance” for thepurposesofdetermininganyapplication toobtainastatusconferringtherightsofresidence,asprovidedforbytheWithdrawalAgreement,andbeissuedwitharesidencedocumentattestingtotheexistenceofthatright;

– ensuring that the commitmentsmade by theUK not to impose a requirement on EUcitizensinworktodemonstrate“genuineandeffectivework”byreferencetotheprimaryearningsthresholdundernationallawforthepurposesofdetermininganyapplicationtoobtain a status conferring the rights of residence, as provided for by theWithdrawalAgreement,andbeissuedwitharesidencedocumentattestingtotheexistenceofthatright;and

– ensuringthatrestrictionstakenongroundsofpublicpolicyorsecurityrelatedtoconductafter the specified date will at the very least involve an individual assessment thatcomplieswiththeprinciplesofproportionalityandequality,adheretofundamentalandhumanrightsandprovideforproceduralsafeguardsandfullrightsofappeal.

In the Annex, you will find further background information on the reasons that havepromptedustoraisetheseissueswithyou,includingbriefsummariesofthecasesmentionedabove.

Wearethereforeseekingyourwrittenassurancethat,initsnextsetofnegotiatingguidelinesanddirectives5,theEuropeanCouncilwillexplicitlycallupontheCommissiontoensurethat: 4JointtechnicalnoteexpressingthedetailedconsensusoftheUKandEUpositionsonCitizens’Rights,8December2017<https://ec.europa.eu/commission/publications/joint-technical-note-expressing-detailed-consensus-uk-and-eu-positions-respect-citizens-rights_en>.5TheproposalsforthesearecontainedintheCommissionRecommendationforaCouncilDecisionsupplementingtheCouncilDecisionof22May2017authorisingtheopeningofnegotiationswiththeUnitedKingdomofGreat

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– theCommissionwillgiveprioritytothecontinuationofnegotiationsoncitizens’rightsasadistinct strandof thesecondphaseof thenegotiations inorder toworkondetailedarrangementsrequiredtoenhanceandextendtheprinciplesandcommitmentssetoutintheJointReport,aswillalsobethecaseforthespecificsituationoftheislandofIreland;6

– theCommissionwillnegotiatetoensuretheprotectionoftheacquiredrightsoffamilymembersofEUcitizenswhohavereturnedhomeafterhavingresidedinanotherMemberStateasrecognisedbytheCourtofJustice’srulinginCaseC-370/90SurinderSinghandsubsequentcases,asregardsboththosewhohavereturnedhomebeforeBrexitandthosewhoareexercisingfreemovementrightsonthedateoftheUK’swithdrawalfromtheEUandwhowillreturntotheirhomeMemberStateafterthatdate;

– theCommissionwillnegotiatetoensuretheprotectionoftheacquiredrightsofprimarycarersofUnioncitizenshavingarightofresidenceintheEUcitizens’homecountryarisingfromtheCourtofJustice’srulinginCaseC-34/09RuizZambranoandsubsequentcases;

– theCommissionwillnegotiatetoensurethecontinuingrightoffreemovementinEU27MemberStatesofBritishcitizenswhoarecurrentlyresidinginahostMemberStateotherthantheUK;

– the Commissionwill negotiate to ensure that theWithdrawal Agreementwill containspecific wording addressing the commitments made by the UK on “comprehensivesicknessinsurance”and“genuineandeffectivework”;and

– the Commissionwill negotiate to ensure that theWithdrawal Agreementwill containspecificwordingtoensurethatrestrictionsongroundsofpublicpolicyorsecurityrelatedtoconductafterthespecifieddatemustinvolveanindividualassessmentthatcomplieswith theprinciplesofproportionalityandequality,adhere to fundamentalandhumanrightsandprovideforproceduralsafeguardsandfullrightsofappeal.

There is a serious risk that, if theareasof concern thatwehave identifiedabove remainunaddressedandarenotthesubjectofexplicitprotections intheWithdrawalAgreement,those EU citizens and family members who are affected will become the victims ofdeportationafterBrexit.

We are confident that you share our desire to prevent - post-Brexit - the occurrence ofsituationswherebyEUcitizensor familymemberswillbedeprivedof the rights that theypreviouslyenjoyedasamatterofEUlawbeforetheUK’swithdrawalfromtheEU.

BritainandNorthernIrelandforanagreementsettingoutthearrangementsforitswithdrawalfromtheEuropeanUnionandtheassociatedAnnex,COM(2017)830final.6SeeAnnextotheRecommendationforaCouncilDecisionsupplementingtheCouncilDecisionof22May2017authorisingtheopeningofnegotiationswiththeUnitedKingdomofGreatBritainandNorthernIrelandforanagreementsettingoutthearrangementsforitswithdrawalfromtheEuropeanUnionCOM(2017)830final,point6.

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WewouldbegratefultoreceiveconfirmationfromyourselfthattheaboveissueswillbethesubjectofexplicitinstructionstotheCommissioninthenextsetofnegotiatingguidelinesanddirectivestobeadoptedbytheEuropeanCouncil.

Westandreadytoattendameetingtodiscusstheseissuesinpersonwithyou,shouldyourequirefurtherclarifications.WealsoremainatthedisposaloftheCommissiontobeabletolendouradviceinthedraftingofthefinalagreementandwehopeyouwillencouragetheCommissiontoconsultus.

Wethankyouforyourkindassistanceinthismatterandlookforwardtoyourresponse.

Yourssincerely,AnthonyValckeFounderandSupervisingSolicitorEURightsClinicOnbehalfofthefollowingsignatories:ElspethAttwooll,formerMemberoftheEuropeanParliamentforScotlandandhonoraryaffiliateofUniversityofAberdeenLawSchoolDianaBaxter,Partner,WesleyGrykSolicitorsLLPSueBent,ChiefExecutive,CentralEnglandLawCentreLapoBettarini,FoundingMember,Europe4PeopleJulieBishop,Director,LawCentresNetworkBradK.Blitz,ProfessorofInternationalPolitics,MiddlesexUniversityandLondonSchoolofEconomicsDrJustinBorg-Barthet,SeniorLecturerinLaw,UniversityofAberdeenNoreenBurrows,EmeritusProfessorofEuropeanLaw,UniversityofGlasgowRogerCasale,ChiefExecutiveOfficer,NewEuropeansCeliaClarke,Director,BailforImmigrationDetainees(BID)IreneCouzigou,SeniorLecturerinLaw,UniversityofAberdeenScottCrosby,Avocatand,AdjunctProfessorofHumanRights,VesaliusCollegeDrEgleDagilyte,SeniorLecturerinLaw,AngliaRuskinUniversitySebDanceMEP,EuropeanParliamentDrLeylaDeAmicis,GlasgowCaledonianUniversityEllenDesmet,AssistantProfessorofMigrationLaw,HumanRightsandMigrationLawClinic,GhentUniversityCostanzadeToma,Co-Chair,AdvocacyGroup,the3millionMoEgan,SolicitorandLecturerinLaw,UniversityofStirlingMatthewEvans,Director,TheAIRECentreMichaelFawole,CentreDirector,NorthEastLawCentreMariaFletcher,SeniorLecturerinLaw,UniversityofGlasgowJaneGolding,SolicitorandChair,BritishinEurope

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ElspethGuild,JeanMonnetProfessoradpersonam,QueenMaryUniversityofLondonandRadboudUniversityNijmegenNicolasHatton,FoundingCo-Chair,the3millionEricaHoward,AssociateProfessorofLaw,MiddlesexUniversityAssyaKavrakova,Director,EuropeanCitizenActionService(ECAS)EleonoreKofman,ProfessorofGender,MigrationandCitizenship,MiddlesexUniversityandLondonSchoolofEconomicsJean-MichelLafleur,AssociateDirector,CentreforEthnicandMigrationStudies,UniversitédeLiègeJeanLambertMEP,EuropeanParliamentThorstenLauterbach,TeachingFellow,RobertGordonUniversityAberdeenCaroleLyons,LecturerinLaw,RobertGordonUniversityAberdeenWillemMaas,JeanMonnetChairofPoliticalScience,GlendonCollege,YorkUniversityDrSandraMantu,CentreforMigrationLaw,RadboudUniversityNijmegenPatrickMarples,ChiefExecutiveOfficer,SouthWestLondonLawCentresJoylonMaughamQC,Director,GoodLawProjectNicolasMaulet,LecturerinLaw,RobertGordonUniversityAberdeenDrClareFrancesMoran,LecturerinLaw,EdinburghNapierUniversityElisaMorgera,ProfessorofGlobalEnvironmentalLaw,StrathclydeUniversityDrCharlotteO’Brien,SeniorLecturerinLaw,UniversityofYorkLaurentPech,ProfessorofEuropeanLaw,MiddlesexUniversityStevePeers,ProfessorofEU,HumanRights&WorldTradeLaw,EssexUniversityRosaPérezMonclús,SeniorPolicyOfficer,CultureActionEuropeDrAnniPues,RechtsanwältinandLecturerinLaw,UniversityofGlasgowNazekRamadan,Director,MigrantVoiceDrPierreSchammo,ReaderinLaw,DurhamUniversityAnnetteSchrauwen,ProfessorofEuropeanintegration,UniversityofAmsterdamMollyScottCatoMEP,EuropeanParliamentJoShaw,ProfessorofLaw,SalvesenChairofEuropeanInstitutions,UniversityofEdinburghStijnSmismans,ProfessorofLaw,JeanMonnetChairinEuropeanLawandGovernance,CardiffUniversityIyiolaSolanke,ProfessorofEULawandSocialJustice,UniversityofLeedsEleanorSpaventa,ProfessorofEuropeanLaw,DurhamUniversityFreekSpinnewijn,Director,FEANTSADrBernardSteunenberg,ProfessorinPublicAdministrationandAdPersonamJeanMonnetChairinEuropeanPolitics,LeidenUniversityDrJeffTurk,ResearchFellow,KULeuvenDrAnthonyValcke,SupervisingSolicitor,EURightsClinicYannisVardakastanis,President,EuropeanDisabilityForumHerwigVerschueren,ProfessorofInternationalandEuropeanLabourandSocialSecurityLaw,UniversityofAntwerpLeanneWoodAM,WelshAssemblyColinYeo,Barrister,GardenCourtChambersRuviZiegler,AssociateProfessorinInternationalRefugeeLaw,UniversityofReading

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Annex:LegalBackgroundItisnecessarytoensurethatallfreemovementrightsthatcurrentlyexistasamatteroflaware explicitly covered by the Withdrawal Agreement to ensure compliance with thenegotiatingguidelinesoftheCouncilof29April2017,whichcalledfor“reciprocalguaranteestosafeguardthestatusandrightsderivedfromEUlawatthedateofwithdrawalofEUandUKcitizens,andtheirfamilies”,togetherwiththeCouncil’sdirectivesof22May2017whichrecognised that “[t]he [Withdrawal] Agreement should safeguard the status and rightsderivedfromUnionlawatthewithdrawaldate”.InitsWorkingpaper"EssentialPrinciplesonCitizens'Rights"of24May2017,theCommissioncommittedtoensuringthat“therightssetoutin[theWithdrawalAgreementshouldprovidethe]samelevelofprotectionassetoutinUnionlawatthedateofwithdrawalofEU27citizen”(ouremphasis).TheseEssentialPrinciplesalsospecificallyconfirmedthat“thematerialscope[oftheWithdrawalAgreement]shouldcovertherightssetoutin…Article21[TFEU](citizens–freemovement)”andthat“theWithdrawalAgreementshouldapplyto…EU27citizenswhoresideorhaveresidedintheUK…[and]UKnationalswhoresideorhaveresidedintheEU27atthedateofentryintoforceoftheWithdrawalAgreement”.InOctober2017,theEuropeanParliament’sresolutiononthestateofplayofnegotiationswiththeUnitedKingdom“emphasise[d]thatthewithdrawalagreementmustincorporatethefull set of rights citizens currently enjoy, such that there is no material change in theirposition”and“[s]tressedinthatregardthatthewithdrawalagreementshouldmaintainthewholesetofEuropeanUnionrulesoncitizens’rightsasdefinedinrelevantEuropeanUnionlegislation”(ouremphasis).1. EUcitizensandfamilymembers:SurinderSinghrightsInCaseC-370/90SurinderSingh,theCourtofJusticehasheldthatEUcitizenswhoresideinaMemberStateotherthantheircountryofnationalityhavearighttoreturntotheirhomeMemberStateaccompaniedbytheirfamilymemberswithwhomtheyhadresidedinthefirstState. In Case C-456/12O & B, the Court of Justice confirmed that this right was alsoconferredbyArticle21oftheTreatyontheFunctioningoftheEuropeanUnion(TFEU).Surinder Singh rights should be explicitly covered by theWithdrawal Agreement becausetheseenablefamilymemberstorelyuponEUlawtoclaimarightofresidenceintheirEUrelative’scountryoforiginandtheWithdrawalAgreementshouldprovidethesamelevelofprotectionassetoutinUnionlawatthedateofwithdrawalofEU27citizen.

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InpracticethismeansthatbeneficiariesofSurinderSinghrightshavebeenabletoobtainaresidencerightunderthesameconditionsthatapplyforfamilymembersofEUcitizensascontainedinDirective2004/38.IntheeventthatbeneficiariesofSurinderSinghrightsarenotincludedwithinthescopeoftheWithdrawalAgreement,thereiscurrentlynothinginUKlawthatwouldenablethemtoautomaticallyretainarighttoresideintheUK.Suchfamilymembersarethereforeatseriousriskofexpulsion.WhilewedonotknowpreciselyhowmanyfamilymemberscurrentlybenefitfromSurinderSinghrightsintheUKbecausetheHomeOfficedoesnotkeepsuchinformationinaneasilyextractable format7, we estimate that this is likely to affect tens of thousands of familymemberswhoarecurrentlylawfullyresidingintheUK.However,itisnotonlyfamilymembersofUKnationalswhostandtoloseprotectionfollowingBrexitifSurinderSinghrightsarenotincludedwithinthescopeoftheWithdrawalAgreement.FamilymembersofEUcitizenscurrently living intheUKwhodecidetoreturnhomeafterBrexit are alsounlikely tobeable claima right to returnhomeunderEU law, since theirresidenceintheUKwouldnolongerconstituteresidenceinanotherMemberState.As a result, in order to ensure that all rights arising under Article 21 TFEU are protectedfollowingtheUK’sdeparturefromtheEU,theWithdrawalAgreementmustexplicitlycovertherightsoffamilymembersofEUcitizenswhohavereturnedhomeafterhavingresidedinanotherMember State in accordancewith the Court of Justice’s ruling in Case C-370/90SurinderSinghandsubsequentcase law,aswellas thosewhowilldosoafter theUKhaswithdrawnfromtheEU.2. EUcitizensandfamilymembers:RuizZambranorightsInCaseC-34/09RuizZambrano,theCourtofJusticerecognisedthattheprimarycarerofanEUchildhasarighttoresideinthechild’shomeMemberState.ThisrulingprovidescorrespondingprotectionstoEUminorsintheirhomeMemberStateasthatenjoyedbyEUminorsandtheircarersinotherMemberStatesasrecognisedbytheCourtinCaseC-200/02Chen.ThislattercasehasalreadybeenthesubjectofagreementintheJointReport.ThereisnolegitimatereasonwhyRuizZambranorightsshouldbeexcludedfromthescopeoftheWithdrawalAgreement. 7ResponseoftheHomeOfficetoA.McKay,FOIrequest43085,22March2017;ResponseoftheHomeOfficetoA.Maqsood,FOIrequest43085,25February2014.

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It is therefore necessary to ensure these rights are explicitly covered by theWithdrawalAgreementtosafeguardthestatusandrightsderivedfromEUlawatthedateofwithdrawalofEUandUKcitizensandtheirfamilies.Noexceptionwasmadeasregardsanycategoryoffamilymembersorsourceofrights.AlthoughwedonotknowpreciselyhowmanyfamilymemberscurrentlybenefitfromRuizZambranorightsintheUKbecausetheHomeOfficedoesnotkeepsuchinformationinaneasilyextractableformat,8weestimatethatthisislikelytoaffecttensofthousandsoffamilymemberswhoarecurrently lawfully residing in theUK,giventhateveryyearover80,000childrenborninEnglandandWalesareborntoacouplewhereoneparentwasBritishandtheotherbornoutsidetheUK9.GiventhattheWithdrawalAgreementshouldseektoprotecttherightsofallEUcitizensandUKnationalstogetherwiththeirfamilymembers,itisthereforenecessarytoensurethattheWithdrawalAgreementexplicitlycovers therightsof familymembersofUnioncitizens, inaccordancewiththeCourtofJustice’srulinginCaseC-34/09RuizZambranoandsubsequentcases.3. Lawfulresidence"Lawfulresidence"shouldmeanthatresidencecomplieswiththeconditionslaiddowninEUlaw.

8ResponseoftheHomeOfficetotheEURightsClinic,FOIrequest46559,4January2018:“DerivativeresidencecardcasesarenotseparatelyidentifiableinthedataavailableregardingEEAresidencedocumentdecisionsandarenotrecordedinareportableanalysableformatwithinUKVIelectronicsystemsorUKVI’scaseworkdatabases.”9UKStatisticsAuthority,dataset‘LivebirthsinEnglandandWalesbyparents'countryofbirth’.In2016,89,566childrenwereborntoacouplewhereoneparentwasBritishandtheotherbornoutsidetheUK.Similarfiguresarereportedforpreviousyears:<https://www.ons.gov.uk/peoplepopulationandcommunity/birthsdeathsandmarriages/livebirths/datasets/parentscountryofbirth>.

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TheproblemisthattheUKinterpretsthoseconditionsrestrictively,asmadeclearbyvariousstudies and reports of the EU institutions10, civil society11 and the Commission’s openinfringementproceedingsregardingresidencerightsintheUK12.

10Seeforexample,EuropeanParliament,‘ReportontheEUCitizenshipReport2017:StrengtheningCitizens’RightsinaUnionofDemocraticChange’(2017/2069(INI))<http://www.europarl.europa.eu/sides/getDoc.do?pubRef=-//EP//NONSGML+REPORT+A8-2017-0385+0+DOC+PDF+V0//EN>;EuropeanCommission,‘ReportfromtheCommissiontotheEuropeanParliament,theCouncil,theEuropeanEconomicandSocialCommitteeandtheCommitteeoftheRegionsunderArticle25oftheTFEUonprogresstowardseffectiveEUCitizenship2013-2016’,COM(2017)32final<http://ec.europa.eu/newsroom/document.cfm?doc_id=41930>StephanieReynolds,NathalieMeurensandGillianKelly,‘ObstaclestotheRightofFreeMovementandResidenceforEUCitizensandtheirFamilies’:CountryReportfortheUnitedKingdom(PE556.967,EuropeanParliament2016)<http://www.europarl.europa.eu/RegData/etudes/STUD/2016/556967/IPOL_STU%282016%29556967_EN.pdf>;EuropeanParliament,‘Resolutionof12March2014ontheEUCitizenshipReport2013.EUcitizens:yourrights,yourfuture’(2013/2186(INI))<http://www.europarl.europa.eu/sides/getDoc.do?pubRef=-//EP//NONSGML+TA+P7-TA-2014-0233+0+DOC+PDF+V0//EN>EuropeanCommission,‘ReportfromtheCommissiontotheEuropeanParliament,theCouncil,theEuropeanEconomicandSocialCommitteeandtheCommitteeoftheRegionsunderArticle25oftheTFEUonprogresstowardseffectiveEUCitizenship2011-2013’,COM(2013)270final<http://ec.europa.eu/justice/citizen/files/com_2013_270_en.pdf>;Commission,‘EUCitizenshipReport2010:DismantlingtheobstaclestoEUcitizens’rights’,COM(2010)603final<http://ec.europa.eu/justice/citizen/files/com_2010_603_en.pdf>;EuropeanParliament,‘ReportontheapplicationofDirective2004/38/EContherightofcitizensoftheUnionandtheirfamilymemberstomoveandresidefreelywithintheterritoryoftheMemberStates’(2008/2184(INI),2009)<http://www.europarl.europa.eu/sides/getDoc.do?pubRef=-//EP//NONSGML+REPORT+A6-2009-0186+0+DOC+PDF+V0//EN>;ECAS,‘ComparativestudyontheapplicationofDirective2004/38/ECof29April2004ontheRightofCitizensoftheUnionandtheirfamilymemberstomoveandresidefreelywithintheterritoryoftheMemberStates’,(PE410.650,EuropeanParliament2009)<http://www.europarl.europa.eu/RegData/etudes/etudes/join/2009/410650/IPOL-JURI_ET%282009%29410650_EN.pdf>;EuropeanCommission,‘ReportfromtheCommissiontotheEuropeanParliamentandtheCouncilontheapplicationofDirective2004/38/EContherightofcitizensoftheUnionandtheirfamilymemberstomoveandresidefreelywithintheterritoryoftheMemberStates’COM(2008)840final<http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2008:0840:FIN:en:PDF>;MilieuLtd.andEdinburghUniversity’sEuropaInstitute,‘ConformitystudiesofMemberStates’nationalimplementationmeasurestransposingCommunityinstrumentsintheareaofcitizenshipoftheUnion-FinalReportI:Directive2004/38/EContherightofcitizensoftheUnionandtheirfamilymemberstomoveandresidefreelywithintheterritoryoftheMemberStates’(Commission2008)<https://200438ecstudy.wordpress.com/>.11Seeforexample,EgleDagilyteandMargaretGreenfields,‘UnitedKingdomwelfarebenefitreformsin2013–2014:Romabetweenthepillory,theprecipiceandtheslipperyslope'(2015)37JournalofSocialWelfareandFamilyLaw476-495;CharlotteO’Brien‘Thepillory,theprecipiceandtheslipperyslope:theprofoundeffectsoftheUK'slegalreformprogrammetargetingEUmigrants’(2015)37JournalofSocialWelfareandFamilyLaw111-136;SylviadeMars,‘EconomicallyinactiveEUmigrantsandtheUnitedKingdom'sNationalHealthService:unreasonableburdenswithoutreallinks?’39EuropeanLawReview2014770-789;JoShawandNinaMiller,‘WhenLegalWorldsCollide:AnExplorationofWhatHappenswhenEUFreeMovementLawMeetsUKImmigrationLaw’(2013)38EuropeanLawReviewVolume137-166;;AnthonyValcke,‘FiveYearsoftheCitizensDirective–Part2’(2011)25JournalofImmigrationAsylumandNationalityLaw331-357;SergioCarreraandAnaïsFaurerAtger,‘ImplementationofDirective2004/38inthecontextofEUenlargement’,(CentreforEuropeanPolicyStudies2009)<http://aei.pitt.edu/10758/1/1827.pdf>.

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Forexample,theUKauthoritiespresentlyengageinthefollowingpracticesthatdonotcomplywithEUlaw:13– a restrictive interpretation of the concept of "worker" by imposing aweekly earnings

threshold of £157 per week (the primary earnings threshold above which nationalinsurancecontributionsbecomepayableundernationallaw);

– a restrictive interpretation of the concept of "person having retained the status of aworker"bylimitingthatstatusto6monthsandexcludingtheself-employed;

– arestrictiveinterpretationoftherightofjobseekerstoremainintheUKwhilelookingfor

workbyimposingonthemanobligationtodemonstratetheyhave“compellingevidence”ofcontinuingtoseekemploymentandhavingagenuinechanceofbeingengaged;

– a restrictive interpretation of the concept of "comprehensive sickness insurance" by

excludingrelianceontheNHS;– anexpansiveinterpretationoftheconceptof"abuseofrights"byconsideringsleepingon

thestreetsas"misuseofrights";and– theexclusionofdualBritish/EUnationalsfromthebenefitofEUresidencerules.TheEuropeanParliament’sResolutionof3October2017alsocalledfortheUKto“refrainfromanyadministrativeorotherpracticeswhichresult inobstaclesanddiscriminationforcitizensoftheEU-27residentintheUnitedKingdom”aswellascallon“allotherMemberStates,fromtheirside,[to]ensurethatUKcitizensresidingintheEuropeanUnionaretreatedinfullconformitywithEuropeanUnionlawgiventhattheyremainEUcitizensuntiltheUnitedKingdom’swithdrawalfromtheEuropeanUnion.”Asaresult,manyEUcitizensandtheirfamilymemberswhoshouldbeconsideredas"lawfullyresident"intheUKasamatterofEUlawareinsteadconsideredasnotexercisingTreatyrightsandthereforenot"lawfullyresident"bytheUKauthorities.

12Commission‘Freemovement:CommissionaskstheUKtoupholdEUcitizens’rights’,PressreleaseIP/12/417,26April2012<http://europa.eu/rapid/press-release_IP-12-417_en.htm>.13TheEURightsClinicanditspartnersremainatyourdisposaltoprovideyouwiththeevidencetosupporteachofthesepoints.Shouldyoufeelitwouldbeusefultohavethisevidenceatyourdisposal,pleasedonothesitatetogetintouchviaemailrights.clinic@ecas.org.

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Regrettably,thereisalsoevidencethatsuchrestrictivepracticeshavealsobeenreplicatedinotherMemberStates,whichwouldaffectUKnationalsandtheirfamilymembers14.4. “Comprehensivesicknessinsurance”and“genuineandeffectivework”ThetermsoftheWithdrawalAgreementmustalsoincludeexplicitwordingthatreflectsthefollowingundertakinggivenbytheUKauthoritiesnottoapplysuchrestrictivepracticesasmadeclearbypreviousjointtechnicalnotesandpublicpronouncements:

“UK prepared to specify in the WA details of implementation such as lack ofComprehensiveSicknessInsurance(CSI)ornottesting'genuineandeffective'work”(joint technical note on EU-UK positions on citizens’ rights after third round ofnegotiations,31August2017)“We have agreedwith the EU that the conditions for EU citizens and their familymemberstogetsettledstatusintheUKwillbethesameas,ormoregenerousthan,thosesetoutintheexistingFreeMovementDirective.…Wewillnotcheckthatyouhold comprehensive sickness insurance regardless of what activity you have beenundertakingintheUK”https://www.gov.uk/guidance/status-of-eu-nationals-in-the-uk-what-you-need-to-know

Without such explicit wording, there would be nothing to stop the UK authorities fromrenegingonthesecommitmentsafterBrexitand littlethattheEUinstitutionscoulddotoenforcesuchcommitments.ItshouldalsobenotedthatthisproblemisnotlimitedtotheUK.Similarproblemshavealsobeen reportedby EU citizens and their familymembers as regards the applicationof the“comprehensivesicknessinsurance”requirementinotherMemberStates,includingFrance,Italy,Spain,SwedenandNorway.15

14SandraMantu,EgleDagilyte,MatthewEvans,ElspethGuild,KathrinHamenstädt,AlessandraLang,ElsaMescoli,AnnetteSchrauwen,EleanorSpaventaandAnthonyValcke,‘EUcitizenshipandExpulsion’(2017)RadboudUniversityCentreforMigrationLawWorkingPaperSeries,No2017/02.15SeeSingleMarketScoreboard,Performancepergovernancetool:SOLVITandYourEuropeAdvice<http://ec.europa.eu/internal_market/scoreboard/performance_by_governance_tool/index_en.htm>.

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6. RestrictionsofrightsongroundsofpublicpolicyorsecurityThe terms of theWithdrawal Agreementmust include explicit wording that provides foradequatesafeguardstoprotectEUcitizensandtheirfamilymembersfromdisproportionate,arbitraryordiscriminatoryuseofrestrictionsongroundsofpublicpolicyorsecurityrelatedtoconductafterthespecifieddate.TheUnitedKingdomandtheMemberStatesretainthefreedomtotakemeasurestorestrictresidence rights on grounds of public policy and public security. However, when suchrestrictions are imposed on individuals, there must be safeguards in place to preventdisproportionate,arbitraryordiscriminatorymeasuresthatreplicatethosecurrentlyinplaceasamatterofEUlaw.ThecurrentEUrules16requirethatrestrictivemeasures:– maybetakenonlyonacase-by-casebasiswherethepersonalconductofanindividual

represents a genuine, present and sufficiently serious threat affecting one of thefundamentalinterestsofthesociety;

– cannotbebasedsolelyonconsiderationspertainingtotheprotectionofpublicpolicyorpublicsecurityadvancedbyanotherMemberState;

– cannotbeadoptedongeneralpreventivegroundsbutmustbebasedonanactualthreat

andcannotbejustifiedmerelybyageneralrisk.Automaticexpulsionscannotbeallowed;– following a criminal conviction cannot be automatic and must take into account the

personalconductoftheoffenderandthethreatthatitrepresentsfortherequirementsofpublicpolicy.

Oncetheauthoritieshaveestablishedthatthepersonalconductoftheindividualrepresentsa threat that is serious enough to warrant a restrictive measure, they must carry out aproportionalityassessmenttodecidewhetherthepersonconcernedcanbedeniedentryorremovedongroundsofpublicpolicyorpublicsecurity.Thepersonalandfamilysituationoftheindividualconcernedmustbeassessedcarefullywithaviewtoestablishingwhethertheenvisagedmeasureisproportionate.We wish to recall that the negotiating guidelines of the Council of 29 April 2017, theCommission’s "Essential Principles on Citizens' Rights" of 24 May 2017 and EuropeanParliament’sResolutionof3October2017allcommittedtoensuringthattherightssetout 16Articles27-32ofDirective2004/38.

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intheWithdrawalAgreementshouldprovidethesamelevelofprotectionassetoutinEUlawat thedateofwithdrawal. There is thereforeno justifiable reason for removing suchprotectionsaftertheUKwithdrawsfromtheEU.Moreover,itwillberecalledthattheCourtofJusticehasconfirmedthatsimilarproceduralsafeguardsalsoapplyinthecontextofmeasurestakenongroundsofpublicpolicyorsecurityagainst third-country nationals.17 These minimal procedural safeguards operate as aminimum levelof standardswhich theWithdrawalAgreementcannotderogate fromasamatterofEUlaw.18ToallowotherwisewillmeanthatmeasurestakenongroundsofpublicpolicyorsecurityrelatedtoconductafterthespecifieddateagainstpersonsfallingwithinthescopeoftheWithdrawalAgreementwillenjoyproceduralsafeguardswhichfallwellbelowthecurrentsafeguardsthatcurrentlyapplytothirdcountrynationalsintheEU.Inordertopreservesuchprotections,thetermsoftheWithdrawalAgreementmustincludeexplicitwordingthatprovidesforEUlawtocontinuetoapplytorestrictionsongroundsofpublicpolicyorsecurityrelatedtoconductafterthespecifieddate.Inthealternative,suchrestrictionsmustbesubjecttoadequatesafeguardsobligationsthatinvolvesmakinganindividualassessmentthatcomplieswiththeprinciplesofproportionalityandequality,adheretofundamentalandhumanrightsandprovideforproceduralsafeguardsandfullrightsofappeal.7. ContinuingrightsoffreemovementforBritishnationalsresidinginEU27The terms of the Withdrawal Agreement should ensure that British nationals who arepresentlyresidinginanEU27MemberStateareabletomovetoanotherEUMemberStateafter Brexit, aswell as continue to benefit from existing rights to establishment and theprovisionofcross-borderservicesandothermatterssetoutatpoint58ofthejointtechnicalnote.19AmongthecurrentpanoplyofexistingEUrights,BritishnationalswhoarepresentlyresidinginanEU27MemberStateareabletomovetoanotherEUMemberStateforshortorlongstayspursuanttoArticles5-7ofDirective2004/38.TheyalsohavearighttoworkinaMemberStateotherthantheircountryofresidencepursuanttoArticle45TFEUasfrontierworkersorpostedworkers.TheymayestablishthemselvesinanotherMemberStateunderArticle49 17Seeforexample,CaseC-240/17E;C‑554/13ZhAndO;CaseC-126/03DörrandÜnal;CaseC467/02Cetinkaya;CaseC-340/97Nazli.18SeetothateffectJoinedCasesC-402/05andC-415/05,KadiandAlBarakaatInternationalFoundation.19JointtechnicalnoteexpressingthedetailedconsensusoftheUKandEUpositionsonCitizens’Rights,8December2017<https://ec.europa.eu/commission/publications/joint-technical-note-expressing-detailed-consensus-uk-and-eu-positions-respect-citizens-rights_en>.

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TFEU and provide cross-border services pursuant to Article 56 TFEU. In addition, Britishcitizens have the right to seek recognition of their professional qualifications in any EUMember State in accordance with Directive 2005/36. All these rights necessitate BritishcitizensbeingabletomovetoanEUMemberStateotherthantheircountryofresidence.Inthisconnection,itmustalsobepointedoutthatDirective2003/109onlong-termresidencecannot inanywaybeconsideredtoprovideanadequate legalbasistocovertherightsofcontinuousfreemovementwhichBritishcitizenswhocurrentlyresideinanEU27MemberState are able to benefit from. Indeed, under Directive 2003/109, the right of long-termresidents to move to another Member State is conditional upon meeting additionalrequirementswhichdonotapplytoEUcitizensandtheirfamilymembersunderArticle21TFEUandDirective2004/38.20Inorder topreserve the rightsof continuous freemovementofBritishnationalswhoarecurrentlyresiding inanEU27MemberState, it isthereforenecessaryforthetermsoftheWithdrawalAgreementshouldensurethatBritishnationalswhoarepresentlyresidinginanEU27MemberStateareabletomovetoanotherEUMemberStateafterBrexit,aswellascontinuetobenefitfromexistingrightstoestablishmentandtheprovisionofcross-borderservicesandothermatterssetoutatpoint58ofthejointtechnicalnote.

20Seefurther,ElspethGuild,StevePeersandJonathanKingham,‘AfteraHardBREXIT-BritishcitizensandresidenceintheEU’(2017)31JournalofImmigrationAsylumandNationalityLaw121-130.