UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

Udlændinge- og Integrationsudvalget 2018-19 (1. samling)
UUI Alm.del Bilag 41
Offentligt

6 marts 2018

Udlændinge og Integrationsministeriet

S otsho msgade 10

1216 København K

e 61 98 40 00

Ma u m@u m dk

Web www u m dk

CVR nr 36 97 71 91

Aktdetaljer

Akttitel: UUI alm. del - spm. 665

Aktnummer: 1

UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

== AKT 221495 == Dokument 2 == UUI alm. del - spm. 665 ==

Udlændinge- og Integrationsudvalget

Til:

Udlændinge- og integrationsministeren

Dato:

5. april 2017

Udvalget udbeder sig ministerens besvarelse af følgende spørgsmål:

UUI alm. del

Spørgsmål 665

Vil ministeren kommentere Den Europæiske Menneskerettighedsdomstols dom i

sagen Paposhvili mod Belgien af 13. december 2016 samt seniorforsker, ph.d.

Peter Vedel Kessings artikel om dommen i ”EU-ret og Menneskeret” nr. 1, 2017

og redegøre for, om dommen får konsekvenser for den danske praksis med

hensyn til tildeling af humanitære opholdstilladelser efter udlændingelovens § 9 b?

Spørgsmål 666

Det fremgår af bemærkningerne til L 188 (2009-10), punkt 8.4.2., at regeringen

(den daværende VK regering) ”finder, at den danske praksis for

vurdering af

tilgængeligheden af behandlingsmuligheder i hjemlandet bør indrettes i

overensstemmelse med praksis fra Den Europæiske

Menneskerettighedsdomstol”. Er dette også den nuværende regerings opfattelse,

og vil ministeren redegøre for, hvordan regeringen vil bringe den danske praksis i

overensstemmelse med menneskerettighedsdomstolens praksis, som den er

udtrykt i dommen i sagen Paposhvili mod Belgien af 13. december 2016?

Spørgsmål 667

Har ministeriet i 2016 givet afslag på ansøgninger om opholdstilladelse efter

udlændingelovens § 9 b, som er i strid med den praksis, der udtrykkes i Den

Europæiske Menneskerettighedsdomstols dom i sagen Paposhvili mod Belgien af

13. december 2016?

Spørgsmål 668

Hvilke forpligtelser til en undersøgelse af behandlingsmulighederne i det

modtagende land giver det de danske myndigheder i sager om opholdstilladelse

efter udlændingelovens § 9 b, at Den Europæiske Menneskerettighedsdomstol i

afsnit 189 i dommen Paposhvili mod Belgien af 13. december 2016 slår fast, at

den tilbagesendende stat er forpligtet til i hver enkelt sag (”on a case-by-case

basis”) at undersøge, om den behandling, der generelt er til stede i

Udskrevet 05-04-2017 Kl. 14:52:16

1/2

UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

modtagerlandet, er tilstrækkelig og passende for at sikre, at ansøgeren ikke ved

tilbagesendelse udsættes

for en krænkelse af EMRK’s artikel 3?

Spørgsmålene er stillet efter ønske fra Johanne Schmidt-Nielsen (EL).

Svarene bedes sendt elektronisk til spørgeren på [email protected]

og til [email protected].

På udvalgets vegne

Martin Henriksen (DF)

formand

Udskrevet 05-04-2017 Kl. 14:52:16

2/2

UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

6 marts 2018

Udlændinge og Integrationsministeriet

S otsho msgade 10

1216 København K

e 61 98 40 00

Ma u m@u m dk

Web www u m dk

CVR nr 36 97 71 91

Aktdetaljer

Akttitel: UUI alm. del - svar på spm. 665

Aktnummer: 2

UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

== AKT 221627 == Dokument 6 == UUI alm. del - svar på spm. 665 ==

Information Note on the Court’s case-law

202

December 2016

Paposhvili v. Belgium [GC]

- 41738/10

Judgment 13.12.2016 [GC]

Article 3

Expulsion

Proposed deportation of person suffering from serious illness to his country of origin in

face of doubts as to the availability of appropriate medical treatment there:

expulsion

would have constituted a violation

Article 8

Expulsion

Proposed deportation of person suffering from serious illness to his country of origin in

face of doubts as to the availability of appropriate medical treatment there:

expulsion

would have constituted a violation

Facts

–

The applicant, a Georgian national, arrived in Belgium via Italy in November

1998, accompanied by his wife and the latter’s six-year-old

child. The couple

subsequently had two children. The applicant received several prison sentences for

robbery. He suffered from tuberculosis, hepatitis C and chronic lymphocytic leukaemia

(CLL). An asylum request by the applicant and his wife was refused in June 1999. The

applicant then submitted a number of requests for regularisation of his residence status,

but these were rejected by the Aliens Office. The applicant and his wife were

subsequently issued with several orders to leave the country, including one in July 2010.

On 23 July 2010, relying on Articles 2, 3 and 8 of the Convention, the applicant applied

to the European Court for an interim measure under

Rule 39 of the Rules of Court,

arguing that if he were removed to Georgia he would no longer have access to the health

care he required and that in view of his very short life expectancy he would die even

sooner, far away from his family. On 28 July 2010 the Court granted his request.

The order to leave Belgian territory was extended until 28 February 2011. On 18

February 2012 the Aliens Office issued an order to leave the country “with immediate

effect” pursuant

to the ministerial deportation order of 16 August 2007.

A medical certificate issued in September 2012 stated that failure to treat the applicant

for his hepatitis and his lung disease could lead to organ damage and significant

disability and that failure to treat his leukaemia (CLL) could result in death. A return to

Georgia would expose the patient to inhuman and degrading treatment. The applicant

was requested to report to the Aliens Office’s medical service on 24 September 2012 for

a medical check-up

and to enable the Belgian authorities to “reply to the Court’s

questions”. Referring to the Court’s judgment in

N. v. the United Kingdom

([GC],

26565/05, 27 May 2008,

Information Note 108),

the Aliens Office found in its report that

UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet



the applicant’s medical records did not warrant the conclusion that the threshold of

gravity required by Article 3 of the Convention had been reached. The applicant’s life

was not directly threatened and no ongoing medical supervision was necessary in order

to ensure his survival. Furthermore, his disease could not be considered to be in the

terminal stages at that time.

On 29 July 2010 the applicant’s wife and her three children were granted indefinite leave

to remain. The applicant died in June 2016.

Law

–

Preliminary issue:

Following the applicant’s death his relatives had expressed the

wish to pursue the proceedings. The Court noted that there were important issues at

stake in the present case, notably concerning the interpretation of the case-law in

relation to the expulsion of seriously ill aliens. The impact of this case therefore went

beyond the particular situation of the applicant. Accordingly, special circumstances

relating to respect for human rights as defined in the Convention and the Protocols

thereto required the Court to continue the examination of the application in accordance

with Article 37 § 1

in fine

of the Convention.

Article 3: In the case of

N. v. the United Kingdom

the Court had stated that, in addition

to situations of the kind addressed in

D. v. the United Kingdom

(30240/96, 2 May 1997)

in which death was imminent, there might be other very exceptional cases where the

humanitarian considerations weighing against removal were equally compelling. An

examination of the case-law subsequent to

N. v. the United Kingdom

had not revealed

any such examples. The application of Article 3 of the Convention only in cases where

the person facing expulsion was close to death had deprived aliens who were seriously

ill, but whose condition was less critical, of the benefit of that provision.

The Grand Chamber found in the present case that the “other very exceptional cases”

which might raise an issue under Article 3 should be understood to refer to situations

involving the removal of a seriously ill person in which substantial grounds had been

shown for believing that he or she, although not at imminent risk of dying, would face a

real risk, on account of the absence of appropriate treatment in the receiving country or

the lack of access to such treatment, of being exposed to a serious, rapid and

irreversible decline in his or her state of health resulting in intense suffering or to a

significant reduction in life expectancy. These situations corresponded to a high

threshold for the application of Article 3 of the Convention in cases concerning the

removal of aliens suffering from serious illness.

It was for the applicants to adduce evidence capable of demonstrating that there were

substantial grounds for believing that, if the measure complained of were to be

implemented, they would be exposed to a real risk of being subjected to treatment

contrary to Article 3.

Where such evidence was adduced it was for the authorities of the returning State, in

the context of domestic procedures, to dispel any doubts raised by it. The risk alleged

had to be subjected to close scrutiny in the course of which the authorities in the

returning State had to consider the foreseeable consequences of removal for the

individual concerned in the receiving State, in the light of the general situation there and

the individual’s personal circumstances.

The impact of removal on the person concerned had to be assessed by comparing his or

her state of health prior to removal and how it would evolve after transfer to the

receiving State.

It was necessary to verify on a case-by-case basis whether the care generally available

in the receiving State was sufficient and appropriate in practice for the treatment of the

UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet



applicant’s illness so as to prevent him or her being exposed to treatment contrary to

Article 3.

The authorities were also required to consider the extent to which the individual in

question would actually have access to that care and those facilities in the receiving

State.

Where, after the relevant information had been examined, serious doubts persisted

regarding the impact of removal on the persons concerned, it was for the returning State

to obtain individual and sufficient assurances from the receiving State, as a precondition

for removal, that appropriate treatment would be available and accessible to the persons

concerned so that they did not find themselves in a situation contrary to Article 3.

The applicant had been suffering from a very serious illness and his condition had been

life‑ threatening. However, his condition had become stable as a result of the treatment

he had been receiving in Belgium, aimed at enabling him to undergo a donor transplant.

If the treatment being administered to the applicant had had to be discontinued his life

expectancy, based on the average, would have been less than six months.

Neither the treatment the applicant had been receiving in Belgium nor the donor

transplant had been available in Georgia. As to the other forms of leukaemia treatment

available in that country, there was no guarantee that the applicant would have had

access to them, on account of the shortcomings in the Georgian social insurance system.

The opinions issued by the Aliens Office’s

medical adviser regarding the applicant’s state

of health, based on the medical certificates he had provided, had not been examined

either by the Aliens Office or by the Aliens Appeals Board from the perspective of Article

3 of the Convention in the course of the proceedings concerning regularisation on

medical grounds.

Likewise, the applicant’s medical situation had not been examined in the context of the

proceedings concerning his removal.

The fact that an assessment of this kind could have been carried out immediately before

the removal measure was to be enforced did not address these concerns in itself, in the

absence of any indication of the extent of such an assessment and its effect on the

binding nature of the order to leave the country.

In conclusion, in the absence of any assessment by the domestic authorities of the risk

facing the applicant in the light of the information concerning his state of health and the

existence of appropriate treatment in Georgia, the information available to those

authorities had been insufficient for them to conclude that the applicant, if returned to

Georgia, would not have run a real and concrete risk of treatment contrary to Article 3 of

the Convention.

Conclusion:

The applicant’s expulsion would have entailed

a violation (unanimously).

Article 8: It was not disputed that family life had existed between the applicant, his wife

and the children born in Belgium. The case was therefore examined from the perspective

of “family life” and the complaint was considered

from the standpoint of the Belgian

authorities’ positive obligations.

Having observed that the Belgian authorities had not examined the applicant’s medical

data and the impact of his removal on his state of health in any of the proceedings

brought before them, the Grand Chamber had concluded that there would have been a

violation of Article 3 of the Convention if the applicant had been removed to Georgia

without such an assessment being carried out.

UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet



A fortiori,

the Belgian authorities had likewise not examined, under Article 8, the degree

to which the applicant had been dependent on his family as a result of the deterioration

of his state of health. In the context of the proceedings for regularisation on medical

grounds the Aliens Appeals Board, indeed, had

dismissed the applicant’s complaint under

Article 8 on the ground that the decision refusing him leave to remain had not been

accompanied by a removal measure.

If the Belgian authorities had ultimately concluded that Article 3 of the Convention as

interpreted

above did not act as a bar to the applicant’s removal to Georgia, they would

have been required, in order to comply with Article 8, to examine in addition whether, in

the light of the applicant’s specific situation at the time of removal, the family

could

reasonably have been expected to follow him to Georgia or, if not, whether observance

of the applicant’s right to respect for his family life required that he be granted leave to

remain in Belgium for the time he had left to live.

Conclusion:

The applicant’s

expulsion would have entailed a violation (unanimously).

Article 41: Claim for pecuniary damage dismissed; findings of a violation sufficient in

respect of non‑ pecuniary damage.

(See also

Saadi v. Italy

[GC], 37201/06, 28 February 2008,

Information Note 105)

This summary by the Registry does not bind the Court.

Click here for the

Case-Law Information Notes

UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

== AKT 221627 == Dokument 7 == UUI alm. del - svar på spm. 665 ==

28/4/2017

Ny dom fra Den Europæiske Menneskerettighedsdomstol kræver ændring af humanitær opholdstilladelse (1.2017 side 3)

Ny dom fra Den Europæiske Menneskerettighedsdomstol

kræver ændring af humanitær opholdstilladelse

(1. 2017 side 3)

Af Peter Vedel Kessing, seniorforsker, ph.d.

Den Europæiske Menneskerettighedsdomstol (EMD) har med en ny storkammerdom i Paposhvilisagen fra

december 2016 præciseret, under hvilke betingelser en deltagerstat kan udsende udlændinge med alvorlige

behandlingskrævende helbredsproblemer. Dommen er på flere måder et opgør med Domstolens tidligere yderst

restriktive praksis på området og bør føre til ændring af Udlændinge og Integrationsministeriets (UIM) praksis

for at meddele humanitær opholdstilladelse efter § 9 b, stk. 1, i udlændingeloven.

[1]

[2]

1. INDLEDNING – DANSK PRAKSIS: FRA UNDTAGELSE TIL UMULIGHED?

UIM kan efter udlændingelovens § 9 b meddele humanitær opholdstilladelse til en udlænding, der opholder sig i

Danmark og har fået afslag på asyl, »hvis væsentlige hensyn af humanitær karakter afgørende taler for at

imødekomme ansøgningen«.

Bestemmelsen, der blev indsat i udlændingeloven i 1985, var ifølge de almindelige bemærkninger til bestemmelsen

tiltænkt et snævert anvendelsesområde. Der skulle kun undtagelsesvist meddeles humanitær opholdstilladelse til

udlændinge med alvorlige behandlingskrævende helbredsproblemer.

[3]

Det til enhver tid ansvarlige ministerium har løbende informeret Folketinget om udviklingen af praksis. Det er sket

ved oversendelse af praksisnotater og besvarelse af Folketingsspørgsmål,

[4]

ligesom ministeriet siden 1993 hvert

kvartal har tilsendt Folketinget et resumé af de sager, hvor der er meddelt humanitær opholdstilladelse.

UIM’s seneste praksisnotat er fra 1. august 2010. Ministeriet udstedte notatet i forbindelse med en ændring af

udlændingeloven i 2010 på baggrund af en nærmere analyse af EMD’s daværende praksis. Praksisnotatet strammede

praksis for at meddele humanitær opholdstilladelse, således at der kun skulle meddeles humanitært ophold, hvis

Danmarks internationale forpligtelser krævede det, jf. nærmere afsnit 3.2.1. nedenfor.

Der er siden praksisændringen i 2010 sket et markant fald i antallet af meddelte humanitære opholdstilladelser. I de

seks år fra 2004 til 2009 før praksisændringen blev der i gennemsnit meddelt 198 humanitære opholdstilladelser pr.

år.

[5]

I de seneste seks år fra 20112016 efter praksisændringen blev der i gennemsnit meddelt 55 humanitære

opholdstilladelser pr. år.

[6]

Særligt i de sidste par år er der givet yderst få humanitære opholdstilladelser, nemlig: 46 i

2014; 25 i 2015; og kun 3 i 2016.

Mens det tidligere havde undtagelsens karakter at få humanitær opholdstilladelse, får man indtryk af, at det nu

nærmest er umuligt. Årsagerne til denne udvikling kan være mange, herunder at de udlændinge, der ansøger om

humanitær opholdstilladelse, ikke har været så syge som tidligere. Men der kan næppe være tvivl om, at UIM’s

praksisændring i 2010 har været en væsentligt medvirkende faktor til faldet i humanitære opholdstilladelser, jf.

nærmere afsnit 3.2 nedenfor.

I afsnit 2 nedenfor redegøres for EMD’s praksis og den nye storkammerdom. I afsnit 3 drøftes de danske regler og

retningslinjer for humanitær opholdstilladelse samt konsekvenserne af den nye EMDdom.

2. EMD’S PRAKSIS OM TILBAGESENDELSE AF ALVORLIGT SYGE UDLÆNDINGE

Ved afgørelsen af, om alvorligt syge udlændinge kan tilbagesendes til deres hjemland, lægger EMD afgørende vægt på

to kriterier: Sygdommens alvor og behandlingsmulighederne i hjemlandet.

2.1. Sygdomskriteriet

https://www.djoefforlag.dk/services/EUonline/

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EMD har igennem årene behandlet en række sager om udsendelse af alvorligt syge udlændinge, men Domstolen har

hidtil kun i én enkelt sag fundet, at en udsendelse ville være en krænkelse af forbuddet mod tortur, umenneskelig og

nedværdigende behandling i art. 3 i Den Europæiske Menneskerettighedskonvention (EMRK).

[7]

Det drejer sig om D mod UK fra 1997, hvor Domstolen for første gang udtalte, at det i »helt exceptionelle

situationer«, hvor der foreligger tvingende humanitære hensyn, kan være i strid med art. 3 at udsende en alvorligt

syg udlænding til et hjemland uden behandlingsmuligheder.

[8]

Sagen vedrørte en mand fra St. Kitts, der led af AIDS i

terminalstadiet, for hvilken sygdom han modtog intensiv behandling i Storbritannien. Den type medicinsk

behandling, som muligvis var tilgængelig i St. Kitts, ville ikke kunne dæmme op for de infektioner, som han måtte

forventes at kunne få i St. Kitts. Derudover havde manden ingen familiemedlemmer eller andet netværk i

hjemlandet. EMD fandt på den baggrund, at der var tale om en »helt exceptionel situation«, hvor det ville være i

strid med art. 3 at udsende den pågældende udlænding til St. Kitts.

Modsat fastslog EMD i N mod UK fra 2008, at en alvorligt AIDSsyg kvinde godt kunne udsendes til Uganda, selvom

det var uvist, om hun dér ville kunne få adgang til den nødvendige behandling.

[9]

EMD lagde vægt på, at kvinden

ikke var kritisk/terminalt syg, og at hendes sygdom var stabiliseret. EMD anførte (pr. 42), at det forhold at en

ansøgers levetid (»life expectancy«) ville blive markant (»significantly«) forkortet ved en udsendelse til hjemlandet,

ikke var tilstrækkeligt til at udgøre en krænkelse af EMRK art. 3.

EMD har siden fastholdt denne restriktive praksis. Det kan være i strid med art. 3 at udsende alvorligt terminalt syge

udlændinge med forventet kort levetid til et hjemland uden de nødvendige behandlingsmuligheder. Andre alvorligt,

men ikke terminalt syge udlændige kan godt udsendes, hvis deres tilstand er stabiliseret, og de er »fit to travel«.

[10]

Domstolen har dog i flere domme gentaget, at der kan være andre »helt exceptionelle situationer« (end terminalt

syge som i D mod UK), hvor en udsendelse vil være i strid med art. 3. Men Domstolen har ikke præciseret, hvornår

det er tilfældet.

[11]

Denne meget restriktive praksis gør EMD eksplicit op med i den nye storkammerdom fra december 2016 i Paposhvili.

Domstolen anfører:

»The Court concludes from this recapitulation of the caselaw that the application of Article 3 of the

Convention only in cases where the person facing expulsion is close to death, which has been its practice

since the judgment in N. v. the United Kingdom, has deprived aliens who are seriously ill, but whose

condition is less critical, of the benefit of that provision. As a corollary to this, the caselaw subsequent to

N. v. the United Kingdom has not provided more detailed guidance regarding the 'very exceptional cases'

referred to in N. v. the United Kingdom, other than the case contemplated in D. v. the United Kingdom.«

Domstolen anfører derefter, at EMRK skal fortolkes og anvendes på en måde, så rettighederne er praktiske og

effektive, og ikke teoretiske og illusoriske, og præciserer, hvad den mener med andre »helt exceptionelle situationer«:

»183. The Court considers that the 'other very exceptional cases' [ud over terminalt syge] within the

meaning of the judgment in N. v. the United Kingdom which may raise an issue under Article 3 should

be understood to refer to situations involving the removal of a seriously ill person in which substantial

grounds have been shown for believing that he or she, although not at imminent risk of dying, would

face a real risk, on account of the absence of appropriate treatment in the receiving country or the lack

of access to such treatment, of being exposed to a serious, rapid and irreversible decline in his or her

state of health resulting in intense suffering or to a significant reduction in life expectancy.« (kursiv

tilføjet).

Sammenfattende vil det således kunne være i strid med art. 3 at udsende en alvorligt syg udlænding til et hjemland

uden adgang til de nødvendige behandlingsmuligheder, såfremt den pågældende:

− Lider af en uhelbredelig sygdom i terminalstadiet med forventet kort levetid (hidtil praksis)

− Risikerer at blive udsat for en alvorlig, hurtig og irreversibel forværring af sit helbred, der fører enten til intens

lidelse eller til en væsentligt kortere levetid (ny praksis).

Den nye storkammerdom er et udtrykkeligt opgør med Domstolens tidligere meget restriktive praksis i forhold til

sygdomskriteriet. Ikke mindst i forhold til udsendelse til en »signifikant reduktion af levetid«, som Domstolen tidligere

i N mod UK fra 2008 eksplicit afviste var i strid med art. 3.

Man kan lidt firkantet sige, at EMD med den nye praksis ikke alene lægger vægt på sygdommens terminale karakter

(bullet nr. 1), men også – og i højere grad – på de konkrete overlevelsesmuligheder i hjemlandet (bullet nr. 2).

https://www.djoefforlag.dk/services/EUonline/

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Ny dom fra Den Europæiske Menneskerettighedsdomstol kræver ændring af humanitær opholdstilladelse (1.2017 side 3)

Denne ændrede materielle vurdering får i sagens natur også en afsmittende virkning for den udsendende stats

undersøgelsespligt. Mens det i vidt omfang kan vurderes i den udsendende stat/Danmark, om en udlænding lider af

en meget alvorlig terminal sygdom med forventet kort levetid (bullet nr. 1), så kan de konkrete

overlevelsesmuligheder i hjemlandet, herunder om der er risiko for en »alvorlig forværring af helbred« eller en

»væsentlig reduktion af levetid« (bullet nr. 2), kun vurderes ud fra de konkrete forhold i hjemlandet. Det skal

nærmere belyses nedenfor.

2.2. Behandlingskriteriet

Ud over sygdomskriteriet lægger EMD også vægt på behandlingsmulighederne i hjemlandet.

EMD fastslog i 2001, at det ikke er i strid med art. 3 at udsende alvorligt syge udlændinge, såfremt de kan modtage

den nødvendige behandling og pleje i hjemlandet. Det skete i Bensaidsagen, hvor Storbritannien godt kunne sende

en alvorligt psykisk syg skizofren udlænding retur til Algeriet under henvisning til, at den nødvendige behandling var

tilgængelig.

[12]

Det forhold, at behandlingen i Storbritannien var mere favorabel, kunne ikke føre til et andet

resultat.

Men EMD gik videre i 2004 i Amegnigansagen og fastslog, at det var tilstrækkeligt, at den nødvendige behandling

generelt (principielt) var tilgængelig i hjemlandet. Det forhold, at en behandling i den pågældende udlændings

hjemland alene var tilgængelig mod en betragtelig egenbetaling, som det var usikkert, om udlændingen havde råd til,

udgjorde således ikke en krænkelse af art. 3:

»Whilst acknowledging the assessment of the applicant's treating specialist doctor that the applicant's

health condition would relapse if treatment would be discontinued, the Court notes that adequate

treatment is in principle available in Togo, albeit at a possibly considerable cost.«

[13]

(kursiv tilføjet).

Det er således ikke nødvendigt at undersøge, om udlændingen også konkret vil have adgang til behandlingen i

hjemlandet. Det fastslog EMD også i N v UK, hvor Domstolen ligeledes ikke tillagde det betydning, at ansøgeren ikke

havde mulighed for at betale for den fornødne behandling i hjemlandet.

[14]

I den nye storkammerdom gør EMD op med denne praksis. Domstolen drøfter for første gang mere indgående

spørgsmålet om, hvilke undersøgelsesskridt den udsendende stat skal gennemføre inden udsendelsen af en alvorligt

syg udlænding.

2.3. Undersøgelsespligten

Den udsendende stat skal for det første – som efter hidtidig praksis – vurdere, om de generelle

behandlingsmuligheder i hjemlandet for den pågældende sygdom er tilstrækkelige og passende:

»As regards the factors to be taken into consideration, the authorities in the returning State must verify

on a casebycase basis whether the care generally available in the receiving State is sufficient and

appropriate in practice for the treatment of the applicant’s illness so as to prevent him or her being

exposed to treatment contrary to Article 3.«

[15]

Dernæst skal staten vurdere, om den pågældende udlænding konkret vil have adgang til den nødvendige behandling

og pleje, herunder i forhold til pris og distance til behandling og familie og socialt netværk:

»The authorities must also consider the extent to which the individual in question will actually have

access to this care and these facilities in the receiving State. The Court observes in that regard that it

has previously questioned the accessibility of care and referred to the need to consider the cost of

medication and treatment, the existence of a social and family network, and the distance to be travelled

in order to have access to the required care.«

[16]

I tilfælde, hvor der eksisterer alvorlig tvivl om, hvilke konsekvenser udsendelsen vil få for den pågældende udlænding,

herunder i forhold til at kunne modtage den nødvendige behandling, skal den udsendende stat indhente en individuel

og tilstrækkelig garanti fra modtagerstaten om, at passende behandling generelt er til rådighed og konkret tilgængelig

for den pågældende udlænding:

»Where, after the relevant information has been examined, serious doubts persist regarding

Supra

note 1,

the impact of removal on the persons concerned – on account of the general situation in the

receiving country and/or their individual situation – the returning State must obtain individual and

sufficient assurances from the receiving State, as a precondition for removal, that appropriate treatment

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will be available and accessible to the persons concerned so that they do not find themselves in a

situation contrary to Article 3.«

[17]

Sammenfattende lægger Paposhvilidommen op til en betydelig udvidelse af undersøgelsespligten både i forhold til

undersøgelsestemaet og i forhold til, hvilke konkrete undersøgelsesskridt der skal foretages af den udsendende stat.

EMD’s ændrede fokus smitter som nævnt i afsnit 2.1 naturligvis af på undersøgelsestemaet. Det er ikke længere

tilstrækkeligt blot at undersøge sygdommens terminale karakter. Udlændingens reelle overlevelsesmuligheder

(signifikant forværring af helbred eller levetid) i hjemlandet må også undersøges.

Ligesom Domstolen nu har fastslået, at den udsendende stat skal gennemføre en række undersøgelsesskridt inden

udsendelse af en alvorligt syg udlænding. Det skal undersøges:

− Om de generelle behandlingsmuligheder i hjemlandet for den pågældende sygdom er tilstrækkelige og passende

(som efter hidtidig praksis)

− Om den pågældende udlænding konkret vil have adgang til behandlingen, herunder i forhold til økonomi, sociale

og familiemæssige netværk og afstand til behandling (ny praksis)

− Hvis ikke – skal der indhentes individuel behandlingsgaranti (ny praksis).

3. ER DANSK PRAKSIS I OVERENSSTEMMELSE MED EMD’S NYE PRAKSIS?

UIM kan som nævnt meddele humanitær opholdstilladelse efter udlændingelovens § 9 b, stk. 1. UIM lægger –

ligesom EMD – navnlig vægt på sygdoms og behandlingskriterierne.

3.1. Sygdomskriteriet

3.1.1. Dansk regulering og praksis

Efter UIM’s gældende praksisnotat af 1. august 2010 kan der gives humanitær opholdstilladelse til udlændinge, der

lider af en »sygdom af meget alvorlig karakter«, såfremt sygdommen aktuelt er behandlingskrævende.

[18]

Der kan både være tale om fysiske og psykiske sygdomme. Som eksempler på meget alvorlige fysiske sygdomme

nævner praksisnotatet AIDS og kræft i terminalstadiet samt visse meget alvorlige hjertesygdomme, nyresygdomme,

tarmsygdomme samt blodsygdomme. For at psykisk sygdom kan begrunde humanitær opholdstilladelse, skal der

være tale om en egentlig sindssygdom. Som eksempler nævnes psykose, skizofreni og visse former for depressive

tilstande. Derimod opfattes posttraumatisk belastningsreaktion (PTSD) og andre sorg og krisereaktioner ikke som en

sindssygdom.

[19]

At der skal være tale om sygdom af »meget alvorlig karakter«, illustreres af de tre humanitære opholdstilladelser,

som UIM meddelte i 2016. Den første sag vedrørte en 77årig ukrainsk statsborger, der led af »flere alvorlige

sygdomme, herunder demens, atrieflimmer, hjerneinfarkt, åndedragsbesvær og højst sandsynligt kræft, enten

lungekræft eller metastaser fra anden kræftsygdom«.

[20]

Den anden tilladelse angik en 75årig afghansk kvinde, som led af »Alzheimer demens, [og var] massivt præget af sin

sygdom og [havde] mistet forståelsen for det basale«.

[21]

Den tredje og sidste tilladelse i 2016 vedrørte en statsborger fra Tanzania, der led af flere alvorlige sygdomme. UIM

lagde vægt på, at han led af »en meget alvorlig lungesygdom med begrænset lungefunktion, at han [var] helt

afhængig af ilttilskud døgnet rundt, at han [sad] i kørestol med iltbombe uden at kunne klare sig selv, at

lungesygdommen [belastede] hans hjerte med risiko for hjertesvigt, at han [havde] nogle blærer i lungerne, der

[kunne] briste ved belastning eller ændrede trykforhold og medføre, at lungerne [klappede] sammen, og at han [led]

af Hepatitis C i et meget fremskredent stadie kompliceret med skrumpelever«.

[22]

3.1.2. Vurdering

Denne beskrevne praksis synes ikke at være fuldt på linje med den nye EMDpraksis efter Paposhvili. For det første

skal der efter EMDpraksis »alene« være tale om en »alvorlig sygdom«, ikke som efter dansk praksis en sygdom af

»meget alvorlig karakter«. Uden nærmere kendskab til praksis er det svært at vurdere, om der er tale om en reel

uoverensstemmelse, men den danske formulering kan indikere en mere snæver dansk praksis.

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For det andet synes der i dansk praksis at være stor fokus på, hvilken sygdom der er tale om og sygdommens

karakter; og mindre fokus på de reelle overlevelsesmuligheder i hjemlandet (behandlingskriteriet). Den nye EMD

praksis lægger som nævnt ovenfor ikke alene vægt på sygdommens karakter, men også på de konkrete

overlevelsesmuligheder i hjemlandet.

3.2. Behandlingskriteriet og undersøgelsespligten

3.2.1. Dansk regulering og praksis

Såfremt sygdomskriteriet er opfyldt, undersøger UIM som udgangspunkt, om behandlingsmulighederne er til stede i

ansøgerens hjemland. Det sker normalt via en dansk repræsentation i det pågældende land eller via andre kilder. Er

det tilfældet, gives der normalt afslag på humanitær opholdstilladelse.

[23]

Før 1. august 2010 – og det nugældende praksisnotat – vurderede de danske udlændingemyndigheder både, om den

pågældende behandling generelt var tilgængelig i hjemlandet, og om den pågældende udlænding konkret ville have

adgang til behandlingen. Det anføres i UIM’s tidligere gældende praksisnotat af 2. september 2008:

»Hvis den nødvendige sundhedsbehandling for ansøgerens meget alvorlige behandlingskrævende

sygdom er tilgængelig i hjemlandet, men alene mod en egenbetaling af en størrelse, som ansøgeren ikke

kan forventes at have en reel økonomisk mulighed for at udrede, kan der efter omstændighederne

ligeledes gives humanitær opholdstilladelse. I sådanne tilfælde af en (uforholdsmæssig) høj egenbetaling

foretages der i hver enkelt sag en vurdering af den pågældendes økonomiske og sociale situation. I

vurderingen indgår den pågældendes erhverv og uddannelse, formueforhold, indtægtsmuligheder og

familiemæssige eller sociale netværk m.v.«

[24]

(kursiv tilføjet).

I forbindelse med en ændring af udlændingeloven i 2010

[25]

gennemførte UIM (det daværende

Integrationsministerium) som nævnt – på baggrund af en nærmere undersøgelse af EMDs praksis på området – en

praksisændring i forhold til, hvilke undersøgelsesskridt ministeriet fremover ville gennemføre i sager om humanitær

opholdstilladelse. Det anføres i bemærkningerne til lovforslaget:

»Regeringen finder, at den danske praksis for vurdering af tilgængeligheden af behandlingsmuligheder i

hjemlandet bør indrettes i overensstemmelse med praksis fra Den Europæiske

Menneskerettighedsdomstol. Integrationsministeriet vil derfor ændre sin nuværende praksis.

Integrationsministeriet vil som hidtil i sager, hvor ansøgeren opfylder sygdomskriteriet og modtager

behandling for sin lidelse, undersøge, om den nødvendige behandling er tilgængelig i offentligt eller privat

regi i ansøgerens hjemland. Viser undersøgelsen, at den nødvendige behandling er tilgængelig i

hjemlandet, vil betingelserne for humanitær opholdstilladelse som udgangspunkt ikke være opfyldt. Det

vil normalt være uden betydning, om et givent præparat er tilgængeligt f.eks. i privat regi mod

egenbetaling, uanset egenbetalingens størrelse. Praksisændringen er dermed i overensstemmelse med

praksis fra Den Europæiske Menneskerettighedsdomstol, som bl.a. udtalte i sagen Amegnigan mod

Holland, at medicinsk behandling i princippet er tilgængelig, uanset om medicinen er meget dyr (…).

Integrationsministeriet vil fortsat i helt ekstraordinære tilfælde – i overensstemmelse med Den

Europæiske Menneskerettighedsdomstols praksis – meddele humanitær opholdstilladelse på trods af

oplysninger om, at der er behandlingsmuligheder i ansøgerens hjemland. Dette vil f.eks. være tilfældet,

når behandlingsmulighederne og/eller forholdene i hjemlandet generelt er så usikre og uforudsigelige, at

en ansøger – som lider af en uhelbredelig sygdom i terminalstadiet – vil komme i en situation, der kan

sidestilles med umenneskelig behandling.«

[26]

(kursiv tilføjet).

Det fremhæves i overensstemmelse hermed i UIM’s gældende praksisnotat af 1. august 2010, at der ikke længere

foretages en beregning af udgifterne til behandlingen i hjemlandet, idet ansøgerens udgifter til den nødvendige

behandling anses for at være uden betydning for ministeriets afgørelse.

[27]

UIM skal heller ikke længere konkret

vurdere udlændingens økonomiske og sociale situation, herunder den pågældendes »erhverv og uddannelse,

formueforhold, indtægtsmuligheder og familiemæssige eller sociale netværk m.v.« i hjemlandet. Den nævnte passus

fra det tidligere praksisnotat af 2. september 2008, jf. citat ovenfor, er slettet fra det gældende praksisnotat af 1.

august 2010.

Nuværende dansk praksis synes således at være, at der meddeles afslag på humanitær opholdstilladelse til alvorligt

syge udlændinge, hvis det vurderes, at der generelt findes den nødvendige behandling i hjemlandet. Det undersøges

ikke, om den pågældende udlænding konkret vil have adgang til behandlingen, herunder den pågældendes

økonomiske, familiemæssige og sociale forhold.

[28]

En gennemgang af praksis i 2008 og 2009 før praksisændringen viser, at der begge år blevet givet flere humanitære

opholdstilladelser under henvisning til, at de pågældende alvorligt syge udlændinge konkret ikke ville have adgang/råd

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til at købe den nødvendige medicin i hjemlandet. I 2008 blev der under henvisning til manglende konkret adgang/råd

til medicinen givet 19 humanitære opholdstilladelser svarende til 12 % af de meddelte tilladelser i 2008,

[29]

og i

2009 blev givet 11 tilladelser svarende til 20 % af de meddelte tilladelser i 2009,

[30]

. En række sager vedrører dyr

antipsykotisk medicin (flere tusind kroner pr. måned) til psykisk syge fra Kosovo og Bosnien. Men der er også

tilladelser vedrørende udlændinge fra Libanon, Serbien og Iran.

3.2.2. Vurdering

Den beskrevne danske undersøgelsespraksis synes at være i overensstemmelse med EMD’s tidligere praksis om

staters undersøgelsespligt, hvorefter det ansås for tilstrækkeligt at vurdere de generelle behandlingsmuligheder i

hjemlandet. Højesteret fandt således i 2011 ikke grundlag for at kritisere, at Integrationsministeriet ved vurderingen

af en ansøgning om humanitær opholdstilladelse ikke havde taget stilling til, om udlændingen konkret ville have

adgang til den nødvendige behandling i Kosovo, herunder undersøgt den pågældende udlændings erhvervs og

indkomstmæssige forhold i hjemlandet Kosovo.

[31]

Det er imidlertid ikke længere tilstrækkeligt blot at undersøge sygdommens terminale karakter. Udlændingens reelle

behandlings muligheder (signifikant forværring af helbred eller levetid) i hjemlandet må også undersøges.

Der må desuden foretages en konkret og individuel vurdering af, om udlændingen vil have adgang til den nødvendige

behandling og pleje i hjemlandet, herunder i forhold til økonomi, sociale og familiemæssige netværk og afstand til

behandling, ligesom der efter omstændighederne må indhentes de krævede garantier.

4. KONKLUSION

EMD har med den nye storkammerdom gjort op med Domstolens tidligere meget restriktive praksis på området.

Sygdomskriteriet er lempet, og undersøgelseskravet skærpet. EMD har ikke længere alene fokus på sygdommens

karakter, men snarere på udlændingens reelle behandlings og overlevelsesmuligheder i hjemlandet. Alvorlige

sygdomme, som ikke er terminale, skal også kunne føre til opholdstilladelse, hvis de reelle overlevelsesmuligheder i

hjemlandet er så begrænsede, at der er risiko for alvorlig forværring af helbred eller levetid som nærmere beskrevet i

dommen.

Den udsendende stats undersøgelsespligt er tilsvarende betydeligt udvidet.

Da integrationsminister Birthe Rønn Hornbech (V) i den daværende VKregering i 2010 skærpede praksis for

humanitære opholdstilladelse, skete det under henvisning til EMD’s daværende restriktive praksis:

»Regeringen finder, at den danske praksis for vurdering af tilgængeligheden af behandlingsmuligheder i

hjemlandet bør indrettes i overensstemmelse med praksis fra Den Europæiske

Menneskerettighedsdomstol.«

[32]

Det er muligvis nogens opfattelse, herunder måske regeringens, at EMD med den nye dom er gået for langt i en

dynamisk fortolkning af EMRK og (endnu engang) på udlændingeområdet blander sig for meget i nationale danske

anliggender og suverænitet.

[33]

Andre vil givet hylde EMD’s nye praksis på området.

[34]

Jeg hælder personligt til at hylde dommen. Der er tale om en meget lille gruppe alvorligt syge, yderst sårbare og

traumatiserede udlændinge, og der er de sidste par år meddelt meget få humanitære opholdstilladelse i Danmark (25

tilladelser i 2015; 3 tilladelser i 2016). Det vil selv med en vis mere lempelig praksis svarende nogenlunde til

forholdene inden praksisændringen i 2010 – fortsat have undtagelsens karakter, at en alvorlig syg udlænding uden

behandlingsmuligheder i hjemlandet meddeles humanitær opholdstilladelse i Danmark.

Uanset personlige, retspolitiske vurderinger har de danske myndigheder, herunder Udlændingeog

Integrationsministeriet, ligesom de danske domstole pligt til at indrette praksis efter EMDpraksis, der så vidt ses i

meget vidt omfang svarer til dansk praksis før praksisændringen i 2010. Det må også gælde i sager, hvor borgerne

under henvisning til EMDpraksis anmoder om genoptagelse af afgjorte sager.

[1]. Tak til stud.jur. Simone Hein Nielsen for forskningsbistand.

[2]. Jf. EMD, Paposhvili v. Belgium 13/12 2016.

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[3]. Jf. lovforslag nr. L. 201 af 19. marts 1985.

[4]. For et overblik over praksisnotater og svar på Folketingsspørgsmål se UIM’s seneste praksisnotat af 1. august 2010. Kan ses

her: https://www.nyidanmark.dk/NR/rdonlyres/15C768D0A3C347EDAA6A

2F319973174D/0/notat om praksis for humanitaer opholdstilladelse 2010.pdf

[5]. Der blev meddelt følgende opholdstilladelser i perioden: 351 (2004); 186 (2005); 216 (2006); 223 (2007); 157 (2008); 55

(2009), Jf. https://www.nyidanmark.dk/NR/rdonlyres/FE564B435F004796B041

59794779B147/0/tal_og_fakta_paa_udlaendingeomraadet_2009.pdf, s. 6.

[6]. Der blev meddelt følgende opholdstilladelser: 121 (2011); 76 (21012); 65 (2013); 46 (2014); 25 (2015); 3 (2016), jf.

https://www.nyidanmark.dk/NR/rdonlyres/EBDF83E7B1514B3BA87CCC291B29CF14/0/tal og fakta 2015.pdf, s.69.

[7]. Om EMD’s tidligere praksis se endvidere Louise Halleskov Storgaard, Artikel3 i Den Europæiske Menneskerettighedskonvention

om udsendelse af udlændinge med helbredsproblemer, EUret og Menneskeret 2008, nr. 4.

[8]. Jf. EMD, D v. UK 2/5 1997.

[9]. Jf. N v. UK 27/5 2008.

[10]. Jf. endvidere for samme resultat YohEkale Mwanje 20/12 2011; S.H.H. 29/1 2013; og A.S. 30/6 2015. Se også følgende

afvisningsafgørelser: E.O. v. Italy (dec.) 10/5 2012; V.S. v. France (dec) 25/11 2014 og Kolcheiva v. Sweden (dec.) 30/3

2013.

[11]. Jf. bl.a. N v. UK, supra note 7, pr. 43.

[12]. Jf. EMD, Bensaid v. UK 6/2 2001, pr. 38.

[13]. Jf. Amegnigan v. Holland (dec.) 25/11 2004.

[14]. Supra note 7, pr. 48. Se tilsvarende resultat i Arcila Henao v. the Netherlands (dec.) 24/6 2003 og Ndangoya v. Sweden

(dec.) 22/6 2004.

[15]. Supra note 1, pr. 189.

[16]. Supra note 1, pr. 190.

[17]. Supra note 1, pr. 191.

[18]. Jf. UIM’s praksisnotatet af 1. august 2010, supra note 3. Generel information om humanitær opholdstilladelse kan ses her:

https://www.nyidanmark.dk/dadk/Ophold/humanitaert ophold/

[19]. Jf. UIM’s praksisnotat af 1. august 2010, ibid., s. 7.

[20]. Jf. UIM, Notat om meddelelse af humanitær opholdstilladelse i medfør af udlændingelovens § 9 b, stk. 1, i 1. kvartal 2016,

20. april 2016.

[21]. Ibid.

[22]. Jf. UIM, Notat om meddelelse af humanitær opholdstilladelse i medfør af udlændingelovens § 9 b, stk. 1, i 2. kvartal 2016,

17. oktober 2016.

[23]. Jf. UIM’s praksisnotat af 1. august 2010.

[24]. Det tidligere gældende praksisnotat af 2. september 2008 kan ses her:

https://www.nyidanmark.dk/NR/rdonlyres/0E3CDADF77AC41B8A7AC

4477E207AB0D/0/praksisnotat hum tilladelse 9b 2008.pdf

[25]. Jf. LF 188, Skærpede udvisningsregler mv., fremsat d. 26. marts 2010.

[26]. Lovforslaget, ibid., s. 68.

[27]. Jf. også UIM’s praksisnotat af 1. august 2010, supra note 1, s. 7

[28]. Bortset fra terminalt syge udlændinge, der som oplyst i UIM’s praksisnotat af 1. august 2010 kan meddeles opholdstilladelse,

når behandlingsmulighederne og/eller forholdene i hjemlandet generelt er usikre og uforudsigelige.

[29]. 1. kvartal: 6 tilladelser; 2. kvartal: 3 tilladelser; 3. kvartal: 1 tilladelse; 4. kvartal: 9 tilladelser pga. manglende konkret

adgang/råd til behandling/medicin. UIM’s notater for alle kvartaler kan findes på Folketingets hjemmeside.

[30]. 1. kvartal: 2 tilladelser; 2. kvartal: 5 tilladelser; 3. kvartal: 3 tilladelser; 4. kvartal: 1 tilladelse pga. manglende konkret

adgang/råd til behandling/medicin. UIM’s notater for alle kvartaler kan findes på Folketingets hjemmeside.

[31]. Jf. U 2011.1762 H. Højesteret tillagde det også vægt, at egenbetalingen for medicinen i hjemlandet alene udgjorde 552 kr. pr.

måned. For en tilsvarende vurdering af at dansk praksis var i overensstemmelse med EMD’s daværende praksis se Institut for

Menneskerettigheders høringssvar af 12. maj 2010, s. 27. Kan ses her:

http://www.ft.dk/samling/20091/lovforslag/l188/bilag/21/847511/index.htm

[32]. Jf. citat fra LF 188, gengivet supra note 24.

[33]. Jf. regeringens initiativ om at se kritisk på EMD’s dynamiske fortolkning af EMRK, og den internationale konference regeringen

vil afholde i 2017 som led i formandskabet for Europarådet. Se regeringsgrundlaget 2016, s. 5556.

[34]. Forskerbloggen Strasbourg Observers, som følger EMD’s praksis, afholder hvert år afstemning om den bedste og værste

EMDdom. Paposhvilidommen rangerer indtil videre som den bedste dom i 2016, jf.

https://strasbourgobservers.com/2017/01/31/pollbestandworstecthrjudgmentof2016/

https://www.djoefforlag.dk/services/EUonline/

7/9

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28/4/2017

Ny dom fra Den Europæiske Menneskerettighedsdomstol kræver ændring af humanitær opholdstilladelse (1.2017 side 3)

https://www.djoefforlag.dk/services/EUonline/

8/9

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28/4/2017

Ny dom fra Den Europæiske Menneskerettighedsdomstol kræver ændring af humanitær opholdstilladelse (1.2017 side 3)

https://www.djoefforlag.dk/services/EUonline/

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== AKT 221627 == Dokument 8 == UUI alm. del - svar på spm. 665 ==

GRAND CHAMBER

CASE OF PAPOSHVILI v. BELGIUM

(Application no. 41738/10)

JUDGMENT

STRASBOURG

13 December 2016

This judgment is final but it may be subject to editorial revision.

UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

PAPOSHVILI v. BELGIUM

–

JUDGMENT

In the case of Paposhvili v. Belgium,

The European Court of Human Rights, sitting as a Grand Chamber

composed of:

Guido Raimondi,

President,

Işıl Karakaş,

Luis López Guerra,

Khanlar Hajiyev,

Nebojša Vučinić,

Kristina Pardalos,

Julia Laffranque,

André Potocki,

Paul Lemmens,

Helena Jäderblom,

Valeriu Griţco,

Faris Vehabović,

Ksenija Turković,

Dmitry Dedov,

Egidijus Kūris,

Robert Spano,

Jon Fridrik Kjølbro,

judges,

and Johan Callewaert,

Deputy Grand Chamber Registrar,

Having deliberated in private on 16 September 2015 and on 20 June,

22 September and 17 November 2016,

Delivers the following judgment, which was adopted on the

last-mentioned date:

PROCEDURE

1. The case originated in an application (no. 41738/10) against the

Kingdom of Belgium lodged with the Court under Article 34 of the

Convention for the Protection of Human Rights and Fundamental Freedoms

(“the Convention”) by a Georgian national, Mr Georgie Paposhvili (“the

applicant”), on 23 July 2010. The applicant died on 7 June 2016. On

20 June

2016

the

applicant’s

family,

namely

his

wife,

Ms Nino Kraveishvili, and their three children, Ms Ziala Kraveishvili,

Ms Sophie Paposhvili and Mr Giorgi Paposhvili, expressed the wish to

pursue the proceedings before the Court.

2. The applicant, who had been granted legal aid, was represented by

Ms J. Kern, a lawyer practising in Antwerp, and Ms C. Verbrouck, a lawyer

practising in Brussels. The

Belgian Government (“the Government”) were

represented by their Agent, Mr M. Tysebaert, Senior Adviser, Federal

Justice Department.

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PAPOSHVILI v. BELGIUM

–

JUDGMENT

3. On 23 July 2010 the applicant applied to the Court requesting interim

measures under Rule 39 of the Rules of Court, with a view to staying

execution of the order to leave the country. Alleging that his removal to

Georgia would expose him to risks to his life and physical well-being and

would infringe his right to respect for his family life, the applicant claimed

to be a victim of a potential violation of Articles 2, 3 and 8 of the

Convention. Although the domestic proceedings had not yet been concluded

at the time the application was lodged, the applicant nevertheless argued

that the remedies in question would not have the effect of staying execution

of his removal. On 28 July 2010, under Rule 39 of the Rules of Court, the

Court requested the Government not to remove the applicant pending the

outcome of the proceedings before the Aliens Appeals Board.

4. The application was assigned to the Fifth Section of the Court

(Rule 52 § 1). A Chamber of that Section composed of Mark Villiger,

President, Angelika Nußberger, Boštjan M. Zupančič, Ann Power-Forde,

Ganna Yudkivska, Paul Lemmens

and Aleš Pejchal, judges, and

Claudia Westerdiek, Section Registrar, delivered a judgment on 17 April

2014. The Chamber unanimously declared the application admissible and

held that the enforcement of the decision to remove the applicant to Georgia

would not entail a violation of Articles 2 and 3 of the Convention. It held by

a majority that there had been no violation of Article 8 of the Convention. A

dissenting opinion by Judge Pejchal was annexed to the judgment. On

14 July 2014, in accordance with Article 43 of the Convention, the applicant

requested the referral of the case to the Grand Chamber. The panel of the

Grand Chamber granted the request on 20 April 2015.

5. The composition of the Grand Chamber was determined in

accordance with Article 26 §§ 4 and 5 of the Convention and Rule 24.

6. From the deliberations of 21 June 2016 onwards, Guido Raimondi,

the newly elected President of the Court, replaced Dean Spielmann. From

the

deliberations of 22 September 2016 onwards, Nebojša Vučinić,

substitute judge, replaced Johannes Silvis, who was prevented from sitting

(Rule 24 § 3).

7. The applicant and the Government each filed further written

observations on the merits (Rule 59 § 1).

8. The Georgian Government exercised their right to intervene

(Article 36 § 1 of the Convention and Rule 44 § 1 (a)). The Human Rights

Centre of Ghent University, a non-governmental organisation, was granted

leave to intervene in the written procedure (Article 36 § 2 of the Convention

and Rule 44 § 3).

9. A hearing took place in public in the Human Rights Building,

Strasbourg, on 16 September 2015 (Rule 59 § 3).

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PAPOSHVILI v. BELGIUM

–

JUDGMENT

There appeared before the Court:

(a)

for the Government

Ms I. N

IEDLISPACHER

Mr F. M

OTULSKY

, Lawyer,

(b)

for the applicant

Ms C. V

ERBROUCK

, Lawyer,

Ms J. K

ERN

, Lawyer,

(c)

for the Georgian Government, third-party intervener

Mr A. B

ARAMIDZE

, First Deputy to the Minister of Justice.

The Court heard addresses by Ms Verbrouck, Ms Kern, Mr Motulsky,

Ms Niedlispacher and Mr Baramidze, and their replies to the questions

asked by one of the judges.

Co-Agent,

Counsel;

THE FACTS

I. THE CIRCUMSTANCES OF THE CASE

10. The applicant was born in 1958. He lived in Brussels and died there

on 7 June 2016.

11. He arrived in Belgium via Italy on 25 November 1998, accompanied

by his wife and a six-year-old child. The applicant claimed to be the father

of the child, an assertion which the Government contested. The couple

subsequently had a child together in August 1999 and another in July 2006.

A. Criminal proceedings

12. On 29 December 1998 the applicant was arrested and taken into

custody on charges of theft. On 14 April 1999 he received a sentence of

seven months’ imprisonment, which was suspended except for the period of

pre-trial detention.

13. In 1999 and 2000 the applicant and his wife were arrested on several

occasions in connection with theft offences.

14. On 28 April 2000 the applicant’s wife was sentenced to four months’

imprisonment for theft.

15. On 18 December 2001 the applicant was convicted of a number of

offences including robbery with violence and threats, and received a

sentence of fourteen months’ imprisonment, which was suspended except

for the period of pre-trial detention.

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PAPOSHVILI v. BELGIUM

–

JUDGMENT

16. On 9 November 2005 the applicant was sentenced by the Ghent

Court of Appeal to three years’ imprisonment for involvement in a criminal

organisation with a view to securing pecuniary advantage using

intimidation, deception or corruption.

17. Having already spent time in pre-trial detention, he was subsequently

detained in Forest Prison and then in Merksplas Prison, where he continued

to serve his sentence.

B. Asylum proceedings

18. On 26 November 1998, the day after their arrival, the applicant and

his wife lodged an asylum application.

19. As the applicant’s wife stated that she had travelled through

Germany, a request to take back the applicant and his family was sent to the

German authorities under the Dublin Convention of 15 June 1990

determining the State responsible for examining applications for asylum

lodged in one of the Member States of the European Communities (“the

Dublin Convention”).

20. After the German authorities had refused the request, it transpired

that the applicant and his family were in possession of a Schengen visa

issued by the Italian authorities. A request to take charge of them was

therefore sent to the Italian authorities and was accepted on 4 June 1999.

21. On 22 September 1999 the applicant lodged a further asylum

application, using a false identity. It was immediately rejected after his

fingerprints had been checked.

22. On 23 October 2000 the Aliens Office informed the applicant’s

lawyer that the proceedings concerning the asylum application of

26 November 1998 had been concluded on 11 June 1999 with the refusal of

the application.

C. Requests for leave to remain on exceptional grounds

1. First request for regularisation on exceptional grounds

23. On 20 March 2000 the applicant lodged a first request for

regularisation for a period of more than three months, on the basis of

section 9(3) (since 1 June 2007, section 9bis) of the Aliens (Entry,

Residence, Settlement and Expulsion) Act of 15 December 1980 (“the

Aliens Act”). In support of his request the applicant stated that he and his

wife had a daughter born in Georgia before their arrival in Belgium and

another daughter born in Belgium in 1999.

24. On 30 March 2004 the Aliens Office declared the request devoid of

purpose as the applicant had left the country and been intercepted in

Germany. It found that the request was in any case unfounded in view of the

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PAPOSHVILI v. BELGIUM

–

JUDGMENT

fact that the applicant’s medical treatment for tuberculosis had ended

(see paragraph 49 below). The Aliens Office also referred to the applicant’s

lack of integration in Belgium and the numerous breaches of public order he

had committed.

2. Second request for regularisation on exceptional grounds

25. On 28 April 2004 the applicant lodged a second request for

regularisation of his residence status on the basis of section 9(3) of the

Aliens Act. He cited as exceptional circumstances the duration of his

residence in Belgium and his integration into Belgian society, the risks that

a return to Georgia would entail for his children’s schooling, the fact that he

had been the victim of persecution and his state of health.

26. The Aliens Office declared the request inadmissible on 5 April 2007

on the ground that the evidence adduced did not amount to exceptional

circumstances for the purposes of section 9(3) of the Act such as to warrant

the lodging of the request in Belgium rather than with the competent

diplomatic mission or consulate, as was the rule. The Aliens Office noted

that the applicant had been allowed to remain in the country for the sole

purpose of the asylum proceedings, which had been concluded by a final

decision. It also cited as reasons the lack of any need for medical

supervision, the applicant’s precarious and unlawful residence status, the

absence of a risk of persecution in Georgia and the possibility for the

children to continue their schooling in that country.

27. In a judgment of 29 February 2008 the Aliens Appeals Board

rejected an application by the applicant to set aside the Aliens Office’s

decision. It noted in particular that, since the decision complained of had not

been accompanied as such by a removal measure, it could not give rise to a

risk of violation of Article 3 of the Convention.

3. Third request for regularisation on exceptional grounds

28. On 10 September 2007, relying on the same grounds as those

invoked under section 9ter of the Aliens Act (see paragraph 54 below) and

on his family situation, the applicant lodged a request for regularisation on

exceptional grounds under section 9bis of the Aliens Act.

29. On 7 July 2010 the Aliens Office refused the request for

regularisation, taking the view that the protection of the State’s best interests

took precedence over the applicant’s social and family interests and that by

committing serious punishable acts the applicant himself had placed his

family’s unity in jeopardy. That decision was served on the applicant on

11 July 2010.

30. On 26 July 2010 the applicant lodged a request with the Aliens

Appeals Board under the ordinary procedure for a stay of execution of the

decision of 7 July 2010 rejecting his request for regularisation of his status,

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PAPOSHVILI v. BELGIUM

–

JUDGMENT

together with an application to have that decision set aside. In so far as

necessary, the application also related to the order to leave the country

issued on the same date (see paragraph 78 below). The applicant alleged a

violation of Articles 2 and 3 of the Convention and argued that his serious

health problems amounted to exceptional humanitarian circumstances as

defined by the Court in

D. v. the United Kingdom

(2 May 1997,

Reports of

Judgments and Decisions

1997-III), that he would not have access to

treatment in Georgia and that the discontinuation of treatment would lead to

his premature death. He further alleged an infringement of Article 8 of the

Convention and of the International Convention on the Rights of the Child,

on the ground that if he were returned to Georgia he would be separated

from his family permanently.

31. The request and application were refused by the Aliens Appeals

Board in a judgment of 16 March 2015 on the ground that the applicant had

not attended the hearing or been represented.

4. Regularisation of the residence status of the applicant’s family

32. On 5 November 2009 the applicant’s wife lodged a request for

regularisation on exceptional grounds under section 9bis of the Aliens Act,

relying on her family situation and the duration of her residence in Belgium.

33. On 29 July 2010 she and her three children were granted indefinite

leave to remain.

D. The applicant’s state of health

1. Chronic lymphocytic leukaemia

34. In 2006, while the applicant was in prison (see paragraph 17 above),

he was diagnosed with chronic lymphocytic leukaemia in Binet stage B,

with a very high level of CD38 expression. No treatment was commenced.

35. As his health had deteriorated, the applicant was admitted to the

Bruges prison hospital complex from 14 August to 23 October 2007 in

order to receive a course of chemotherapy.

36. A report prepared on 11 February 2008 by Antwerp University

Hospital, where the applicant was being treated, stated that his condition

was life-threatening and that, on the basis of the averages observed in 2007,

his life expectancy was between three and five years. The report stated that,

following treatment, his white blood cell count had fallen significantly.

37. From 8 to 14 May 2010 the applicant was confined to hospital in

Turnhout with respiratory problems. The medical report concerning his stay

recommended that the applicant be treated as an outpatient by a lung

specialist and a haematologist. This treatment did not materialise on his

return to Merksplas Prison, where he was being held.

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PAPOSHVILI v. BELGIUM

–

JUDGMENT

38. On 22 July 2010 a doctor from Antwerp University Hospital visited

the applicant in the Merksplas closed facility for illegal aliens (see

paragraph 79 below), to which he had been transferred in the meantime, in

order to carry out a full medical check-up. The doctor’s report noted that the

applicant’s leukaemia, which was progressing rapidly towards Binet

stage C, had not been monitored sufficiently and that a different course of

chemotherapy was required.

39. In August 2011 the applicant’s condition worsened and the doctors

observed that his leukaemia had progressed to Binet stage C, with anaemia

and widespread enlargement of the lymph nodes (life expectancy of

twenty-four months). It was decided to switch to a different course of

chemotherapy.

40. On 12 September 2012 a doctor from the haematology department of

St Pierre University Hospital in Brussels, where the applicant was being

treated following his release (see paragraph 82 below), drew up a certificate

which stated as follows:

“...

D. Possible complications if treatment is discontinued. Failure to treat the liver and

lung disease could result in organ damage and consequent disorders (respiratory

insufficiency, cirrhosis and/or liver cancer). Without treatment, the [chronic

lymphocytic leukaemia] could lead to the patient’s death as a result of the disease

itself or the effects of serious infections.

A return to Georgia would expose the patient to inhuman and degrading treatment.

E. Progression and prognosis. Chronic lymphocytic leukaemia (CLL): good if

treated, but the risk of relapse is real, so that close monitoring is required even during

remission. ...”

41. After a relapse diagnosed in 2013, the doctors in St Pierre University

Hospital observed in March 2014 that the applicant’s leukaemia had

developed into lymphocytic lymphoma, and his chemotherapy was adjusted

accordingly. A positron-emission tomography (PET) scan performed on

22 September 2014 showed a lack of response to the chemotherapy, a

progression of the disease in the lymph nodes and the liver, and a

pulmonary infection.

42. The applicant’s treatment was handed over to the Institut Bordet in

Brussels, a hospital devoted exclusively to the treatment of cancer patients.

43. In December 2014 the applicant began to receive a new course of

treatment as part of a study. He was given Ibrutinib, designed in particular

to improve his overall condition, which had been compromised by

complications arising out of the treatment (fungaemia, pulmonary

infections, septicaemia and cholecystitis, resulting in his being admitted to

hospital on several occasions). The treatment was prescribed in order to

improve the applicant’s overall condition in preparation for a donor stem

cell transplant.

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PAPOSHVILI v. BELGIUM

–

JUDGMENT

44. A medical certificate issued on 25 May 2015 by the specialist

treating the applicant, Dr L., head of the experimental haematology

laboratory at the Institut Bordet, stated that the patient’s viral load was

stable. The doctor stressed that discontinuing treatment would result in the

patient’s death. Because of the patient’s immunosuppression and the

aggressive nature of the leukaemia, treatment in a specialised haematology

unit was necessary, as was a donor stem cell transplant, which offered the

only remaining prospect of a cure provided that it was performed during the

two-year

“window of response” to Ibrutinib.

45. The applicant stated that the stem cell transplant, originally

scheduled to take place in April 2015, had not been performed to date

because he did not have a residence permit in Belgium as required by the

Organ Removal and Transplant Act of 13 June 1986.

46. On 14 July 2015 a new medical report was prepared by Dr L. which

read as follows:

“The patient’s

CLL [chronic lymphocytic leukaemia]

...

The patient has been suffering from CLL for nine years (diagnosed in 2006), and by

2011 had already reached stage C and Rai IV [stage IV according to the Rai criteria].

He had already had three lines of treatment prior to Ibrutinib, which he is currently

taking, and was refractory to the third line of treatment (R-CVP chemotherapy).

It is clear from the medical literature that if Ibrutinib is discontinued in such a

situation, the average life expectancy is three months. ...

The literature also shows that only 7% of patients being treated with Ibrutinib

achieve complete remission. Mr Paposhvili is currently in partial remission and is thus

wholly dependent on the treatment. This is a new targeted therapy to which he would

have no access in his country of origin. With continuous treatment the patient’s

prognosis is more favourable, with an 87% survival rate after three years. ...

CLL and especially treatment with Ibrutinib can give rise to serious complications

which fully justify regular supervision in a specialised setting. This is particularly true

since the patient is in a weak state and has a serious medical history (tuberculosis and

stroke) and significant comorbidities (active chronic hepatitis and COPD [chronic

obstructive pulmonary disease]). ...

In the case of a young person

–

Mr Paposhvili is only 57

–

the current guidelines

advocate using Ibrutinib in order to obtain the best possible response, followed by a

donor peripheral blood stem cell transplant. A HLA [human leukocyte antigen]

matched donor has been identified for the patient.

Although risky, a donor transplant offers the only prospect of a cure for the patient;

he would be unable to have such a transplant in his country of origin.

...

Conclusions

The [Aliens Office’s medical adviser] concludes ... [that] the condition of the

patient’s vital organs is not directly life-threatening. That all depends on what is

meant by

‘directly’.

The patient is suffering from a cancer that is potentially fatal in

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PAPOSHVILI v. BELGIUM

–

JUDGMENT

the short term (median survival time nineteen months) ... and most likely within six

months without appropriate treatment.

Moreover, if the treatment is not tailored to the patient’s overall

immunosuppression, there is a serious risk of death caused by infection, especially in

a Gold stage II COPD patient with a history of

tuberculosis. ...”

47. On 1 August 2015 treatment with Ibrutinib became eligible for

reimbursement in Belgium.

48. Because of the side-effects of this treatment, which might

compromise the donor transplant, the dose of Ibrutinib was reduced from

three doses to one dose per day.

2. Other illnesses

49. In 2000 the applicant was diagnosed with active pulmonary

tuberculosis. He was treated for that condition under the emergency medical

assistance and social welfare assistance schemes.

50. During 2008 the applicant’s tuberculosis was found to have become

active again.

51. As a result of that disease the applicant developed chronic

obstructive pulmonary disease, for which he received treatment.

52. In addition, the applicant suffered from hepatitis C, which was also

diagnosed in 2006 and was probably linked to a history of drug abuse. It

was accompanied by liver fibrosis. According to a medical report dated

24 April 2015 his hepatitis, which had been treated effectively in 2012 and

2013, had become stable.

53. A magnetic resonance imaging scan carried out in March 2015

showed that the applicant had suffered a stroke, resulting in permanent

paralysis of the left arm. The effects of the stroke were managed with an

anti-epilepsy drug.

E. Requests for regularisation on medical grounds

1. First request for regularisation on medical grounds

54. On 10 September 2007, relying on Articles 3 and 8 of the

Convention and alleging, in particular, that he would be unable to obtain

treatment for his leukaemia (see paragraph 34 above) if he were sent back to

Georgia, the applicant lodged a first request for regularisation on medical

grounds on the basis of section 9ter of the Aliens Act.

55. On 26 September 2007 the Aliens Office refused the request on the

ground that, under section 9ter(4) of the Act, the applicant was excluded

from its scope on account of the serious crimes which had given rise in the

meantime to a ministerial deportation order issued on 16 August 2007 (see

paragraph 73 below).

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PAPOSHVILI v. BELGIUM

–

JUDGMENT

56. On 17 December 2007 the applicant lodged a request for a stay of

execution of that decision under the ordinary procedure, together with an

application to set aside. He alleged in particular that the Aliens Office had

relied exclusively on the ministerial deportation order in excluding him

from the scope of section 9ter of the Aliens Act, without investigating his

state of health or the risk he ran of being subjected to treatment contrary to

Article 3 of the Convention, and without weighing up the interests at stake

as required by Article 8 of the Convention.

57. In a judgment of 20 August 2008 the Aliens Appeals Board

dismissed the applicant’s claims in the following terms:

“It is clear from the wording of [section 9ter]

that there is nothing to prevent the

administrative authority, when dealing with a request for leave to remain on the basis

of the above-mentioned section 9ter, from ruling immediately on the exclusion of the

person concerned from the scope of the said section 9ter without first being required

to take a decision on the medical evidence submitted to it, if it considers at the outset

that there are substantial grounds for believing that the person concerned has

committed any of the acts referred to in section 55/4, cited above. Indeed, the

examination of that evidence is superfluous in such a situation since the person

responsible for taking the decision has in any event already decided that the individual

is excluded from the scope [of section 9ter].

...

As regards the alleged violation of Article 3 of the Convention, it should be

observed that the decision complained of in the present application is not

accompanied by any removal measure, with the result that the alleged risk of

discontinuation of treatment in the event of the applicant’s return to Georgia is

hypothetical.”

58. The Aliens Appeals Board also dismissed the complaint under

Article 8 of the Convention in view of the fact that the impugned decision

had not been accompanied by any removal measure.

2. Second request for regularisation on medical grounds

59. In the meantime, on 3 April 2008, the applicant had lodged a second

request for regularisation on medical grounds on the basis of section 9ter of

the Aliens Act. In addition to his various health problems he referred to the

fact that he had been continuously resident in Belgium for eleven years and

had lasting social ties in that country, and to his family situation. He also

argued that if he was sent back he would be left to fend for himself while ill

in a country in which he no longer had any family ties and where the

medical facilities were unsuitable and expensive.

60. The request was refused by the Aliens Office on 4 June 2008 for the

same reason it had cited previously (see paragraph 55 above).

61. On 16 July 2008 the applicant lodged an application with the Aliens

Appeals Board to have that decision set aside.

62. In a judgment of 21 May 2015 the Aliens Appeals Board rejected the

application to set aside. It held that, where the above-mentioned exclusion

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PAPOSHVILI v. BELGIUM

–

JUDGMENT

clause was applied, the Aliens Office was not required to rule on the

medical and other evidence contained in the request for regularisation.

According to the Aliens Appeals Board, such examination was superfluous

by virtue of the exclusion clause alone. The Board pointed out that its task

was to review the lawfulness of the measure. This review did not permit it

to substitute its own assessment of the facts that were deemed to have been

established and were not apparent from the administrative file; rather, its

task was confined to ensuring that the formal requirement to provide

reasons had been complied with and that the reasoning was not based on a

manifest error of assessment. As to the complaints alleging a violation of

Articles 2 and 3 of the Convention, the Aliens Appeals Board stated that the

assessment of the medical situation of an alien facing removal whose

request for regularisation had been rejected should be carried out, as

applicable, at the time of enforcement of the removal measure.

63. On 22 June 2015 the applicant lodged an appeal on points of law

against that judgment with the

Conseil d’État.

One of the grounds of appeal

was based on Articles 2 and 3 of the Convention. The applicant submitted

that the Aliens Appeals Board could not have been unaware that several

orders to leave the country had already been issued against him prior to the

decision not to examine his request for leave to remain, and that his

expulsion had been suspended only as a result of the interim measure

applied by the Court (see paragraph 87 below). The applicant further argued

that the Aliens Appeals Board had breached the provisions of the

Convention by postponing until the date of enforcement of the removal

measure the examination of the medical situation of an alien suffering from

a serious illness who had requested leave to remain on medical grounds,

without studying the specific risks.

64. In an order of 9 July 2015 the appeal on points of law was declared

inadmissible. The

Conseil d’État

held that, contrary to the applicant’s

assertion, the grounds for setting aside advanced before the Aliens Appeals

Board had simply stressed, in a theoretical and general manner, that

section 9ter of the Act encompassed the application in domestic law of the

obligation under Articles 2 and 3 of the Convention prohibiting the removal

of a seriously ill person if such a measure was liable to result in death or

inhuman and degrading treatment; no specific explanation had been given,

however, as to how the applicant himself risked facing that situation. The

Conseil d’État

also observed that the applicant had not argued before the

Aliens Appeals Board that orders to leave the country had been issued

against him, or that a removal measure could be revived; he was therefore

unable to rely on those arguments in his appeal on points of law. In any

event, the

Conseil d’État

held that the Aliens Appeals Board had in no way

erred in finding that the examination of the medical situation of an alien

facing removal whose request for leave to remain had been rejected should

be carried out, as applicable, at the time of enforcement of the measure.

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JUDGMENT

3. Review of the applicant’s situation in connection with the

proceedings before the Court

65. The applicant was requested to report to the Aliens Office’s medical

service on 24 September 2012 for a medical check-up and to enable the

Belgian authorities to reply to the Court’s questions.

66. The report prepared by the medical adviser on that occasion listed

the consultations held and the treatment that had been administered to the

applicant. It stated that his leukaemia had stabilised after several cycles of

chemotherapy and was being monitored closely, and that the applicant was

under medical supervision for his lung disease.

67. Referring to the Court’s judgment in the case of

N. v. the United

Kingdom

([GC], no. 26565/05, ECHR 2008), the report concluded as

follows:

“On the basis of this medical file it cannot ... be concluded that the threshold of

severity required by Article 3 of the Convention, as interpreted by the Court, has been

reached ...

It appears from the medical file that the diseases to which the medical certificates

refer ... do not disclose a direct threat to the patient’s life. The conditions from which

the applicant suffers are serious and potentially fatal but are currently under control.

None of the patient’s vital organs is in a condition that is directly life-threatening.

His hepatitis C is not currently causing any cirrhosis. The pulmonary disease is being

controlled by treatment consisting solely of an inhaled corticosteroid. The patient’s

haematological disorder is currently stable. The lymph nodes are no longer swollen

and the patient’s haemolytic anaemia is resolved. Chemotherapy has been

discontinued for the time being.

... Neither monitoring of the patient’s vital parameters nor ongoing medical

supervision is necessary in order to ensure the patient’s survival.

The disease cannot be considered at present to be in the terminal stages. ... The

patient is close to Binet stage A at present. His chronic obstructive pulmonary disease

is also currently under control.”

68. A medical report drawn up on 23 June 2015 by the medical adviser to

the Aliens Office provided a detailed review of the applicant’s clinical

history and current state of health and the treatment being administered. It

concluded as follows:

“On the basis of [the] medical file it cannot therefore be concluded that the threshold

of severity set by Article 3 of the Convention, which requires a risk to life on account

of the applicant’s critical condition or the very advanced stage of his or her illness, has

been reached (N.

v. the United Kingdom

[GC], no. 26565/05, ECHR 2008, and

D. v. the United Kingdom,

2 May 1997,

Reports of Judgments and Decisions

1997-III).

The diseases referred to in the most recent update to the medical file ([Dr L.],

25 May 2015) ... do not disclose:

–

a direct threat to the life of the patient. The illnesses from which the applicant

suffers are serious and potentially fatal but are currently under control. ...

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–

that the condition of the patient’s vital organs is directly life-threatening. ...

–

a critical state of health. Neither monitoring of the patient’s vital parameters nor

ongoing medical supervision is necessary in order to ensure the patient’s survival. The

disease cannot be said to be in the terminal stages at present ...”

F. Removal proceedings and the Court’s intervention

1. Order to leave the country under the Dublin Convention

69. On 10 June 1999, on the grounds that the Belgian authorities did not

have responsibility under the Dublin Convention for examining the asylum

application, the Aliens Office issued an order for the applicant and his wife

to leave the country with a view to their transfer to Italy. However, their

departure was postponed because the applicant’s wife was pregnant.

70. After the birth, the family was granted leave to remain until

14 October 1999 because the new-born baby was in hospital. Their leave to

remain was subsequently extended until 15 March 2000 on the ground that

the child needed regular supervision by a paediatric gastroenterologist.

71. The time-limit for enforcement of the order for the family to leave

the country was extended several times during the first half of 2000 because

of the need to treat the applicant’s tuberculosis (see paragraph 49 above)

and the six-month course of anti-tubercular treatment required by the whole

family.

72. On 23 October 2000 the Aliens Office informed the applicant’s

lawyer that the time-limit had been extended until such time as the applicant

and his child were fully recovered.

2. Ministerial deportation order

73. On 16 August 2007, while the applicant was serving a prison

sentence (see paragraph 17 above), the Minister of the Interior, in a

deportation order issued under section 20 of the Aliens Act, directed the

applicant to leave the country and barred him from re-entering Belgium for

ten years. The order referred to the applicant’s extensive criminal record,

allied to the fact that “the pecuniary nature of the offences demonstrate[d]

the serious and ongoing risk of further breaches of public order”.

74. The order became enforceable on the date of the applicant’s release

but was not in fact enforced because the applicant was undergoing medical

treatment at the time.

75. The applicant, who was in hospital, did not contact his lawyer in

order to lodge an application to have the ministerial order set aside.

However, on 15 November 2007 the lawyer lodged an application on his

own initiative. In a judgment of 27 February 2008 the Aliens Appeals Board

rejected the application as being out of time.

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JUDGMENT

76. In the meantime, as the applicant was about to finish serving the

prison sentence imposed in 2005, he was transferred on 14 August 2007 to

Bruges Prison with a view to implementation of the ministerial deportation

order. He remained there until 27 March 2010, when he was transferred to

Merksplas Prison.

77. During his time in Bruges Prison the applicant was visited on an

almost daily basis by his wife and/or his children. The authorities of

Merksplas Prison, to which he was subsequently transferred and where he

remained until 11 July 2010, informed the applicant that they did not have a

record of the number of visits he had received.

3. Orders to leave the country following refusal of the regularisation

request

78. In parallel with its decision of 7 July 2010 refusing the applicant’s

request for regularisation on exceptional grounds (see paragraph 29 above),

the Aliens Office on 7 July 2010 issued an order for him to leave the

country, together with an order for his detention. These orders, made on the

basis of section 7(1)(1) of the Aliens Act, were served on the applicant on

11 July 2010.

79. Also on 7 July 2010 it was decided that the applicant should be

transferred on 13 July to the Merksplas closed facility for illegal aliens with

a view to his removal to Georgia.

80. On 16 July 2010 the Georgian embassy in Brussels issued a travel

document valid until 16 August 2010.

81. On the same day the applicant lodged a request for a stay of

execution under the ordinary procedure, together with an application to set

aside, directed specifically against the above-mentioned order to leave the

country of 7 July 2010.

82. On 30 July 2010, two days after the indication by the Court of an

interim measure (see paragraph 87 below), an order was made for the

applicant’s release and he was given until 30 August 2010 to leave the

country voluntarily.

83. In a letter dated 30 August 2010 counsel for the applicant applied for

an extension of the time-limit for enforcement of the order to leave the

country. The time-limit was initially extended until 13 November 2010 and

was subsequently extended several times until 19 February 2011.

84. On 18 February 2012 the Aliens Office issued an order to leave the

country “with immediate effect” pursuant to the ministerial deportation

order of 16 August 2007.

85. The above-mentioned request and application were rejected by the

Aliens Appeals Board in a judgment of 29 May 2015 on the ground that the

applicant had not attended the hearing or been represented.

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JUDGMENT

4. Indication of an interim measure under Rule 39 of the Rules of

Court

86. In the meantime, on 23 July 2010, the applicant applied to the Court

for interim measures under Rule 39 of the Rules of Court. Relying on

Articles 2, 3 and 8 of the Convention, he alleged that if he were removed to

Georgia he would no longer have access to the health care he required and

that, in view of his very short life expectancy, he would die even sooner, far

away from his family.

87. On 28 July 2010 the Court indicated to the Belgian Government that

it was desirable, in the interests of the parties and the proper conduct of the

proceedings before the Court, to suspend enforcement of the order for the

applicant to leave the country issued on 7 July 2010 “pending the outcome

the proceedings before the Aliens Appeals Board”.

G. Other events

88. The applicant was arrested on several occasions between 2012 and

2015 for shoplifting.

89. In addition, in July 2013 the Aliens Office was contacted by the

Luxembourg police and customs cooperation centre, which reported that the

applicant was in detention in the Grand Duchy of Luxembourg.

90. In May 2014 a warrant was issued for the applicant’s arrest for theft.

The applicant was detained in Bruges Prison and released a few days later.

91. Two notarised deeds of sale dated 24 March and 5 August 2015

record the transfer by the applicant, represented by E.B., to a certain

Aleksandre Paposhvili, of a plot of building land for a sum of 30,000 euros

(EUR) and a plot of farmland for a sum of EUR 5,000. Both plots are

located in the village of Kalauri in the Gurjaani region of Georgia.

II. RELEVANT DOMESTIC LAW AND PRACTICE

A. Regularisation procedures

1. Regularisation on exceptional grounds

92. In order to be allowed to remain in Belgium for more than three

months, aliens must normally obtain permission before arriving in the

country. Section 9(2) of the Aliens Act provides:

“... Except where an international treaty, statute or royal decree otherwise provides,

such permission [to remain in the Kingdom beyond the period laid down in section 6,

namely for more than three months] shall be requested by the aliens concerned at the

Belgian diplomatic mission or consulate responsible for their place of permanent

residence or their temporary residence abroad.”

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JUDGMENT

93. Aliens whose residence status in Belgium is unlawful or precarious,

and who wish to obtain long-term leave to remain without having to return

to their country of origin, may apply directly in Belgium if they can claim

exceptional circumstances. According to established case-law and practice,

regularisation of residence status may be granted on a case-by-case basis

under section 9bis (former section 9(3)) of the Aliens Act. Section 9bis(1)

reads as follows:

“In exceptional circumstances, and provided that the alien concerned is in

possession of identity papers, leave to remain may be requested from the mayor of the

municipality in which he or she is resident, who forwards the request to the Minister

or his or her representative. Where the Minister or his or her representative grants

leave to remain, the residence permit shall be issued in Belgium.

...”

94. The Act does not specify either the exceptional circumstances on the

basis of which the request may be made from within Belgium or the

substantive grounds on which leave to remain may be granted. It is for the

Aliens Office to assess the circumstances alleged by the alien concerned in

each individual case. It begins by examining the exceptional circumstances

invoked, in order to determine whether the request is admissible. If this is

the case, it rules subsequently on the substantive grounds relied on by the

alien concerned in support of the request for leave to remain.

2. Regularisation on medical grounds

(a) Section 9ter of the Aliens Act

95. Section 9ter of the Aliens Act provides for the possibility of granting

leave to remain on medical grounds. The first paragraph, as inserted by the

Act of 15 September 2006, amended by the Act of 7 June 2009 and replaced

by the Act of 29 December 2010, provided as follows at the material time:

“1.

Aliens resident in Belgium who provide proof of identity in accordance with

paragraph 2 and who are suffering from an illness entailing a real risk to their life or

physical well-being or a real risk of inhuman or degrading treatment if no

appropriate treatment exists in their country of origin or previous country of

residence may apply to the Minister or his or her representative for leave to remain

in the Kingdom.

The request must be made by registered letter to the Minister or his or her

representative and must include the actual address of the alien concerned in

Belgium.

The alien concerned must submit the request together with all the relevant

information concerning his or her illness and the availability and accessibility of

appropriate treatment in the country of origin or the previous country of residence.

He or she shall submit a standard medical certificate as provided for by royal

decree approved by the Cabinet. The medical certificate shall indicate the illness, its

degree of seriousness and the treatment considered necessary.

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JUDGMENT

The assessment of the risk referred to in the first sub-paragraph, the possibilities

for treatment, the accessibility of such treatment in the country of origin or of

previous residence, together with the assessment of the illness, its seriousness and

the treatment considered necessary, as indicated in the medical certificate, shall be

carried out by a medical officer or a doctor appointed by the Minister or his or her

representative, who shall issue an opinion in this regard. The doctor in question

may, if he or she deems necessary, examine the individual concerned and seek

additional expert opinions.”

96. The procedure for examining requests for regularisation takes place

in two stages. The first stage involves an examination by an official of the

Aliens Office of the admissibility of the request, with particular regard to

the information that must be included on the medical certificate (indication

of the illness, its seriousness and the treatment considered necessary). In

that connection the Aliens Appeals Board has stated that “[the legislature’s]

aim of clarifying the procedure would be thwarted if [the Aliens Office]

were required to carry out an in-depth examination of each medical

certificate produced and the accompanying documents in order to ascertain

the nature of the illness, its seriousness and the treatment considered

necessary, given that the [official responsible] is neither a medical officer

nor another doctor appointed for the purpose”

(see, in particular, Aliens

Appeals Board, judgment no. 69.508 of 28 October 2011). The second

stage, which concerns only those requests deemed to be admissible, consists

of a comprehensive review by the Aliens Office of the individual’s state of

health and a substantive assessment of the factors enumerated in the

legislation, on the basis of the opinion of a medical officer or another doctor

appointed for the purpose.

97. It is clear from the drafting history of section 9ter that the question

whether appropriate and sufficiently accessible treatment exists in the

receiving country is examined on a case-by-case basis, taking into account

the requesting party’s individual situation, assessed within the confines of

the Court’s case-law (explanatory report,

Doc. Parl.,

2005-06,

no. 51 2478/1, p. 35).

98. If the request is held to be well-founded a one-year residence permit

is issued to the person concerned. The residence permit must be renewed

each year. Five years after the lodging of the request, the person concerned

acquires permanent residence status and is issued with a residence permit of

unlimited duration.

99. Under paragraph 4 of section 9ter of the Aliens Act, aliens are

excluded from the scope of that section where there are substantial grounds

for believing that they have committed any of the acts referred to in section

55/4 of the Act, which provides:

“An alien shall be excluded from the scope of subsidiary protection where there are

substantial reasons for believing:

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JUDGMENT

(a) that he or she has committed a crime against peace, a war crime or a crime

against humanity as defined in the international instruments on the punishment of

such crimes;

(b) that he or she has committed acts contrary to the purposes and principles of the

United Nations as set forth in the Preamble and in Articles 1 and 2 of the Charter of

the United Nations;

The first sub-paragraph shall apply to persons who instigate the aforementioned

crimes or acts or participate in them in any other manner.”

100. It emerges from the drafting history of section 9ter that a seriously

ill alien who is excluded from the scope of that section on one of the

grounds referred to in section 55/4 will not be removed if his or her state of

health is so serious that removal would constitute a breach of Article 3 of

the Convention (explanatory report, cited above, p. 36).

(b) Recent developments in Belgian case-law

101. The case-law concerning the removal of seriously ill aliens has

evolved recently. This case-law concerns the application of section 9ter,

paragraph 1, to aliens who have not been excluded

a priori

from the scope

of that provision. The change in the case-law occurred in response to a

change in the practice of the Aliens Office following the introduction by an

Act of 8 January 2012 of an admissibility filtering mechanism for “section

9ter

requests”, consisting in confining the application

of section 9ter to

situations falling within the ambit of Article 3 of the Convention as

interpreted by the Court in its judgment in

N. v. the United Kingdom

(cited

above).

102. The Aliens Appeals Board responded by observing that section 9ter

of the Act was not limited to systematically requiring the existence of a risk

“to the life” of the applicant, since it made provision, in addition to that risk,

for two other situations, namely those entailing a real risk to physical

well-being and those entailing a real risk of inhuman or degrading treatment

(Aliens Appeals Board, judgments nos. 92.258, 92.308 and 92.309 of

27 November 2012). It further held that an immediate threat to life was

likewise not an absolute precondition in the Court’s case-law for a violation

of Article 3, given that other “exceptional” humanitarian circumstances

within the meaning of the Court’s judgment in

D. v. the United Kingdom

(cited above) could act as a bar to removal (Aliens Appeals Board,

judgments no. 92.393 of 29 November 2012 and no. 93.227 of 10 December

2012). Accordingly, all the circumstances of the case had to be taken into

consideration.

103. On 19 June 2013 a Dutch-speaking Division of the

Conseil d’État

echoed this interpretation of section 9ter, paragraph 1. It held that,

irrespective of the scope of application of Article 3 of the Convention,

section 9ter was clear and applied to situations going beyond a direct threat

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JUDGMENT

to the life of the applicant or the existence of a critical condition (Conseil

d’État,

judgment no. 223.961 of 19 June 2013). In judgments dated

28 November 2013 the same Division expressly found that the Aliens

Appeals Board had erred in finding that Article 3 of the Convention could

apply to situations other than those involving a serious, critical or terminal

condition. However, that error did not mean that the Board’s interpretation

of section 9ter, paragraph 1, had been incorrect, as the provision in question

went further than Article 3 of the Convention and covered a real risk of

inhuman or degrading treatment on account of the absence of appropriate

treatment in the country of origin (Conseil

d’État,

judgments nos. 225.632

and 225.633 of 28 November 2013). On 29 January 2014 the same Division

specified that in so far as section 9ter, paragraph 1, referred to a real risk to

life or physical well-being, it corresponded to Article 3 of the Convention

(Conseil

d’État,

judgment no. 226.251 of 29 January 2014).

104. In the meantime, on 19 November 2013, a French-speaking

Division of the

Conseil d’État

had adopted a completely different approach.

According to that Division, the legislature had clearly sought to confine the

benefit of section 9ter to aliens who were

so “seriously ill” that their

removal would amount to a violation of Article 3 of the Convention, and to

ensure that the assessment in question was carried out in accordance with

the Court’s case-law as established in the case of

N. v. the United Kingdom,

cited above. The fact that section 9ter covered three specific situations did

not mean that its scope of application differed from that of Article 3. The

three categories of illness concerned, where they attained a minimum level

of severity

–

which had to be high

–

were apt to satisfy the requirements of

Article 3. The

Conseil d’État

went on to quash the Aliens Appeals Board’s

judgments of 27 November 2012 (see paragraph 102 above) on the grounds

that they had unduly extended the scope of section 9ter (Conseil

d’État,

judgments nos. 225.522 and 225.523 of 19 November 2013).

105. The divergence in the case-law of the

Conseil d’État

was resolved

on 16 October 2014 when the French-speaking Division adopted the same

interpretation as the Dutch-speaking Division. Referring to the Opinion of

Advocate General Bot of the Court of Justice of the European Union (“the

CJEU”) in the case of

M’Bodj

(C-542/13, see paragraph 121 below), which

was pending at the time, to the effect that section 9ter of the Aliens Act

afforded protection going beyond the subsidiary protection provided for by

Council Directive 2004/83/EC of 29 April 2004 on minimum standards for

the qualification and status of third country nationals or stateless persons as

refugees or as persons who otherwise need international protection and the

content of the protection granted (“the Qualification Directive”), the

Division proposed

an “autonomous” interpretation of section 9ter,

paragraph 1, in so far as that provision concerned situations of inhuman or

degrading treatment on account of the lack of appropriate treatment in the

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receiving country (Conseil

d’État,

judgment no. 228.778 of 16 October

2014).

106. Following the clarification of the case-law of the

Conseil d’État,

the Aliens Appeals Board harmonised its own case-law in five judgments

given by the full Board on 12 December 2014 (Aliens Appeals Board,

judgments nos. 135.035, 135.037, 135.038, 135.039 and 135.041 of

12 December 2014).

107.

This “autonomous” interpretation of section 9ter

represents the

current state of Belgian positive law. The above-mentioned judgments of

the Aliens Appeals Board (see paragraph 106 above) contemplate two

scenarios in which the issuing of a residence permit may be justified

because of illness. The first scenario concerns aliens who are currently

suffering from a life-threatening illness or a condition posing a current

threat to their physical integrity; the alleged risk to life or physical integrity

must be imminent and the alien concerned must be unfit to travel as a result.

The second concerns aliens who risk being subjected to inhuman and

degrading treatment if no appropriate treatment for their illness or condition

exists in the receiving country. In this case, although it does not pose an

imminent threat to life, the illness or condition in question must

nevertheless attain a certain degree of seriousness.

B. Removal measures and re-entry bans for breaches of public order

108. The removal of aliens from Belgium is governed primarily by the

provisions of section 7 of the Aliens Act, which at the material time read as

follows:

“Without prejudice to more favourable provisions contained in an international

treaty, the Minister or his or her representative may order an alien who is not

authorised or has not been given permission to remain for more than three months or

to settle in the Kingdom to leave the country by a set date:

(1) if the person concerned is resident in the Kingdom without being in possession

of the documents required under section 2;

(2) if he or she has remained in the Kingdom beyond the time-limit laid down in

accordance with section 6, or is unable to provide evidence that this time-limit has not

been exceeded;

(3) if his or her conduct is deemed to pose a potential threat to public order or

national security; ...

In such cases the Minister or his or her representative may remove the person

concerned immediately if they deem it necessary.

The alien concerned may be detained for this purpose for the time strictly necessary

to enforce the measure. The length of such detention may not exceed two months.

Nevertheless, the Minister or his or her representative may extend the period of

detention by two months where the steps necessary to remove the alien have been

taken within seven working days of his or her placement in detention and have been

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JUDGMENT

prosecuted with all due diligence, and where the alien’s physical removal within a

reasonable period remains possible.

After one extension has been granted, the decision referred to in the preceding

paragraph may be taken only by the Minister.

After five months in detention the alien concerned must be released.

Where the protection of public order or national security so requires, the period of

detention may be extended by successive one-month periods after the time-limit

referred to in the preceding paragraph has expired; however, the total period of

detention may not on this account exceed eight months.”

109. According to the case-law of the

Conseil d’État,

the examination of

the medical situation of an alien facing removal whose request for leave to

remain has been rejected should be carried out, as applicable, at the time of

enforcement of the removal measure rather than at the time of its issuance

(Conseil

d’État,

judgment no. 11.427 of 9 July 2015).

110. The provisions of the Aliens Act relating to the removal of aliens

on account of their personal conduct, and to re-entry bans, read as follows:

Section 20

“Without prejudice to more favourable provisions laid down in an international

treaty or to section 21, the Minister may deport aliens who are not settled in the

Kingdom if they have breached public order or national security or have failed to

comply with the statutory conditions of their residence. Where, under the terms of an

international treaty, no such measure may be taken until the alien concerned has been

questioned, the opinion of the Aliens Advisory Board must be sought before a

deportation order is issued. The other cases in which a deportation order may be

issued only after consultation of the Aliens Advisory Board shall be determined by

royal decree approved by the Cabinet.

Without prejudice to section 21, paragraphs 1 and 2, aliens who are settled in the

Kingdom or have long-term residence status and who have committed a serious

breach of public order or national security may be expelled by the Crown, after

consultation of the Aliens Advisory Board. The expulsion order must be discussed by

the Cabinet if the measure is based on the individual’s political activities.

Deportation and expulsion orders must be based exclusively on the personal conduct

of the alien concerned. The fact that he or she has made lawful use of the freedom to

manifest opinions or the freedom of peaceful assembly or of association cannot serve

as grounds for such an

order.”

Section 74/11

“1.

The duration of the re-entry ban shall be determined in the light of all the

particular circumstances of each case.

The removal order shall be accompanied by a re-entry ban of no more than three

years’ duration, in the following cases:

(1) where no time has been allowed for voluntary departure; or

(2) where a previous removal order has not been enforced.

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JUDGMENT

The maximum three-year period referred to in the second sub-paragraph shall be

increased to a maximum of five years where the third-country national has used fraud

or other unlawful means in order to obtain or preserve his or her right of residence.

The removal order may be accompanied by a re-entry ban of more than five years

where the third-country national presents a serious threat to public order or national

security.

2. The Minister or his or her representative shall refrain from imposing a re-entry

ban where the residence of a third-country national is terminated in accordance with

section 61/3, third paragraph, or 61/4, second paragraph, without prejudice to the

second sub-paragraph of paragraph 1(2), provided that the person concerned does not

pose a threat to public order or national security.

The Minister or his or her representative may decide not to impose a re-entry ban in

individual cases on humanitarian grounds.

3. The re-entry ban shall enter into force on the date of notification. It must not

infringe the right to international protection as defined in sections 9ter, 48/3 and

48/4.”

C. Appeals against the decisions of the administrative authorities

111. The Aliens Appeals Board is an administrative court established by

the Act of 15 September 2006 reforming the

Conseil d’État

and setting up

an Aliens Appeals Board. The duties, jurisdiction, composition and

functioning of the Aliens Appeals Board are governed by the provisions of

Part I

bis

of the Aliens Act as inserted by the aforementioned Act of

15 September 2006. The procedure before the Aliens Appeals Board is laid

down by a royal decree of 21 December 2006.

112. The jurisdiction of the Aliens Appeals Board is twofold. Firstly, in

proceedings concerning decisions of the Commissioner General for

Refugees and Stateless Persons relating to the granting of refugee status and

the various categories of subsidiary protection, the Board has full

jurisdiction and the appeal has automatic suspensive effect. The Aliens

Appeals Board may admit new evidence and all the issues of fact and law

are transferred to it. In such cases it may uphold, set aside or amend the

decision. Secondly, the decisions of the Aliens Office concerning residence

and removal may be appealed against by way of an application to set aside

for failure to comply with essential procedural requirements or with

statutory formalities required on pain of nullity, or on the grounds that the

Aliens Office exceeded or abused its powers.

113. The application to set aside does not automatically suspend

enforcement of the measure complained of. However, the Aliens Act

provides that it may be accompanied by a request for a stay of execution of

the measure, either under the extremely urgent procedure, which itself

automatically suspends enforcement of the measure, or

under the “ordinary”

procedure.

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JUDGMENT

114. At the time of the events in the present case, requests for a stay of

execution were governed by the provisions of section 39/82 of the Aliens

Act, which provided as follows:

“1.

Where a decision by an administrative authority is subject to an application to

set aside under section 39/2, the Board shall have sole jurisdiction to order a stay of

execution.

A stay of execution shall be ordered, once evidence has been heard from the parties

or they have been duly convened, by means of a reasoned decision of the President of

the division hearing the application or the aliens appeals judge whom he or she

designates for the purpose.

In cases of extreme urgency a stay of execution may be ordered on an interim basis

without evidence having been heard from some or any of the parties.

Applicants who request a stay of execution must opt for either the extremely urgent

procedure or the ordinary procedure. They may not, simultaneously or consecutively,

either seek a second time to have the third sub-paragraph applied or re-apply for a stay

of execution in the application referred to in paragraph 3, on pain of inadmissibility.

By way of derogation from the fourth sub-paragraph and without prejudice to

paragraph 3, the rejection of a request for a stay of execution under the extremely

urgent procedure shall not prevent the applicant from subsequently requesting a stay

of execution under the ordinary procedure, where the application under the extremely

urgent procedure was rejected on the grounds that the extreme urgency of the situation

was not sufficiently established.

2. A stay of execution may be ordered only if the grounds relied on are sufficiently

serious to warrant setting aside the impugned decision, and if immediate enforcement

of the decision is liable to cause serious, virtually irreparable damage.

Judgments ordering a stay of execution may be recorded or amended at the request

of the parties.

3. Except in cases of extreme urgency the request for a stay of execution and the

application to set aside must be submitted in a single document.

The title of the application should specify whether an application to set aside is

being lodged or a request for a stay of execution together with an application to set

aside. Failure to comply with this formality will result in the application being treated

solely as an application to set aside.

Once the application to set aside has been lodged any subsequent request for a stay

of execution shall be inadmissible, without prejudice to the possibility for the

applicant to lodge, in the manner referred to above, a fresh application to set aside

accompanied by a request for a stay of execution, if the time-limit for appeals has not

expired.

The application shall include a statement of the grounds and facts which, in the

applicant’s view, justify a stay of execution or an order for interim measures, as

applicable.

Any order for a stay of execution or other interim measures issued prior to the

lodging of the application to set aside the decision shall be immediately lifted by the

Division President who issued it or by the aliens appeals judge designated by him or

her, if the judge observes that no application to set aside setting out the grounds for

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such measures has been lodged within the time-limit specified by the procedural

regulations.

4. The Division President or the aliens appeals judge designated by him or her shall

rule on the request for a stay of execution within thirty days. If a stay of execution is

ordered a ruling shall be given on the application to set aside within four months of

delivery of the judicial decision.

If the alien in question is the subject of a removal order or an order refusing

admission which is to be enforced imminently, and has not yet lodged a request for a

stay of execution, he or she may request a stay of execution of the decision under the

extremely urgent procedure. If he or she lodged a request under the extremely urgent

procedure in accordance with the present provision no later than five days, but no

earlier than three working days, following notification of the decision, the request

shall be examined within forty-eight hours of its receipt by the Board. If the Division

President or the aliens appeals judge hearing the case does not give a decision within

that time, the First President or the President shall be informed and shall take the

necessary action to ensure that a decision is given within seventy-two hours of the

request being received. He or she may also examine the case and take the decision. If

no stay of execution is granted the measure shall again become enforceable.

...”

115.

If the person concerned opted for the “ordinary” procedure in

requesting a stay of execution, he or she could apply for interim measures

during the proceedings, as a matter of extreme urgency if necessary, in

accordance with section 39/84 of the Act.

116. For a request for a stay of execution or for interim measures to be

granted as a matter of extreme urgency, the enforcement of the removal

measure had to be imminent (section 39/82, paragraph 4, second

sub-paragraph, and section 39/85, first sub-paragraph, of the Aliens Act).

The Aliens Appeals Board took the view that, for the danger to be

imminent, the alien in question had to be subject to a coercive measure

aimed at securing his or her departure from the country, that is to say, to an

order for his or her detention in a closed facility with a view to removal

(see, among many other authorities, judgment no. 456 of 27 June 2007 and

judgment no. 7512 of 20 February 2008).

117. The Aliens Act was amended by the Act of 10 April 2014 laying

down miscellaneous provisions concerning the procedure before the Aliens

Appeals Board and the

Conseil d’État.

In particular, this Act reforms the

procedure governing requests for a stay of execution under the extremely

urgent procedure in order to take account of the Court’s judgment in

M.S.S.

v. Belgium and Greece

([GC], no. 30696/09, ECHR 2011) and the

subsequent rulings of the Aliens Appeals Board (see, in particular, the seven

judgments of the full Board of 17 February 2011 (nos. 56.201 to 56.205,

56.207 and 56.208) and of the Constitutional Court (judgment no. 1/2014 of

16 January 2014 setting aside part of the Act of 15 March 2012 amending

the Aliens Act, which introduced a fast-track procedure for asylum seekers

from “safe” third countries).

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118. Under the new provisions of sections 39/82 and 39/85, a request for

a stay of execution under the extremely urgent procedure must be submitted

within ten days, or five days if the impugned removal order is not the first

issued against the person concerned. The criteria for determining extreme

urgency remain unchanged. Removal must be imminent, a situation which

applies first and foremost to persons in detention. However, the Act does

not rule out the possibility that other situations may justify recourse to the

extremely urgent procedure. Under the reformed provisions a risk of serious

and irreparable harm is presumed where the alleged violation concerns

rights from which no derogation is possible, such as those provided for by

Articles 2, 3 and 4 of the Convention.

119. An administrative appeal on points of law may be lodged with the

Conseil d’État

against a judgment of the Aliens Appeals Board dismissing

an application to set aside. The appeal does not have suspensive effect.

III. EUROPEAN UNION LAW

120. The issue of the threshold of severity which an illness must attain in

order to justify the granting of a residence permit on medical grounds was

recently raised before the CJEU. In the context of two cases

–

Mohamed

M’Bodj v Belgian State

(18 December 2014, Case C‑542/13) and

Centre

public d’action sociale d’Ottignies-Louvain-La-Neuve v Moussa Abdida

(18 December 2014, Case C-562/13)

–

the CJEU was called upon to address

the relationship between section 9ter of the Aliens Act and European Union

(“EU”) law.

121. In

M’Bodj

(paragraphs 39-47), the CJEU held that the granting of

leave to reside on medical grounds to persons who did not satisfy the

essential requirements making them eligible for subsidiary protection under

the Qualification Directive could not be regarded as a more favourable

standard for the purposes of Article 3 of the Directive in the context of such

subsidiary protection, and thus fell outside the scope of application of the

Directive. Even taking into account the case-law established in

N. v. the

United Kingdom,

according to which, in very exceptional cases concerning

the expulsion of a seriously ill alien, humanitarian grounds could be

invoked in order to trigger the protection of Article 3 of the Convention, the

risk of deterioration in the health of a third-country national suffering from a

serious illness as a result of the absence of appropriate treatment in the

receiving country was not sufficient, according to the CJEU, to warrant that

person being granted subsidiary protection unless the harm took the form of

conduct on the part of a State or non-State third party.

122. In the case of

Abdida

(paragraphs 33 and 38-63), the CJEU held

that while leave to reside on medical grounds did not come within the scope

of the Qualification Directive, decisions refusing such leave were covered

by Directive 2008/115/EC of the European Parliament and of the Council of

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16 December 2008 on common standards and procedures in Member States

for returning illegally staying third-country

nationals (the “Return

Directive”). As a return decision, a decision refusing leave to reside on

medical grounds was subject to observance of the safeguards provided for

by the Return Directive and by the Charter of Fundamental Rights of the

EU. Article 19 § 2 of the Charter stated that no one could be removed to a

State where there was a serious risk that he or she would be subjected to

torture or other inhuman or degrading treatment or punishment. Bearing in

mind that under Article 52 § 3 of the Charter, the rights enshrined therein

had, as a minimum, the same meaning and scope as the equivalent rights

guaranteed by the Convention, the CJEU inferred from the case-law

established in

N. v. the United Kingdom

that the decision to remove an alien

suffering from a serious physical or mental illness to a country where the

facilities for the treatment of the illness were inferior to those available in

the returning State might raise an issue under Article 3 of the Convention in

very exceptional cases, where the humanitarian grounds against removal

were compelling. Those very exceptional cases were characterised, in the

CJEU’s view, by the seriousness and the irreparable nature of the harm that

might be caused by the removal of a third-country national to a country in

which there was a serious risk that he or she would be subjected to inhuman

or degrading treatment. The CJEU further held that remedies in respect of a

decision refusing leave to reside on medical grounds must have suspensive

effect, in accordance with the Strasbourg Court’s case-law. This implied

that provision had to be made for the applicant’s basic needs to be met

pending a ruling on his or her appeal in accordance with the Return

Directive.

IV. OTHER RELEVANT MATERIALS

123. Basing its findings,

inter alia,

on the information referred to in the

Chamber judgment (paragraphs 90-92), the European Committee of Social

Rights assessed the conformity of the Georgian health-care system with

Article 11 § 1 of the European Social Charter (Right to protection of health,

Removal of the causes of ill-health) and adopted the following conclusions

(Conclusions 2015, Georgia, Article 11 § 1):

“...

The Committee takes note of the information submitted by Georgia in response to

the conclusion that it had not been established that there was a public health system

providing universal coverage (Conclusions 2013, Georgia).

The Committee recalls that the health care system must be accessible to everyone.

The right of access to care requires

inter alia

that the cost of health care should be

borne, at least in part, by the community as a whole (Conclusions I (1969), Statement

of Interpretation on Article 11) and the cost of health care must not represent an

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JUDGMENT

excessively heavy burden for the individual. Out-of-pocket payments should not be

the main source of funding of the health system (Conclusions 2013, Georgia).

The report states that on 28 February 2013 a Universal Health Care Programme was

launched for persons without medical insurance. The first phase of the programme

ensured citizens with a basic medical package, including primary health care and

emergency hospitalisation. Since 1 July 2013 the programme has been expanded to

include more services of primary health care and emergency hospitalisation,

emergency outpatient care, planned surgeries, treatment of oncological diseases and

child delivery. According to recent data (April 2014), all citizens of Georgia are now

provided with basic healthcare, approximately 3.4 million people in the framework of

the Universal Health Care Programme, 560,000 people are beneficiaries of the State

Health Insurance Programme and about 546,000 people have a private or corporate

insurance.

The Committee notes that the Government has declared health care as a priority

field, resulting in funding for state health care programmes almost doubling: from

365

million GEL in 2012 (€ 139 million) to 634 million GEL in 2013 (€ 241 million).

State spending as a share of GDP has increased from 1.7% to 2.7% and as a share of

the state budget from 5% to 9%.

However, the Government acknowledges that despite improvements the cost of

medication remains high amounting to 35% of state expenditure on health care. The

report does not provide information on out-of-pocket payments as a share of total

spending on health care, but according to WHO data it was still between 60% and

70% in 2011 (compared to about 16% on average for EU-27). Very limited coverage

of medication costs is now provided under the Universal Health Care Programme, for

example for emergency care, chemotherapy and radiotherapy, but the general lack of

coverage of medication costs is a major point of dissatisfaction among beneficiaries of

the programme according to a recent evaluation (Universal Healthcare (UHC)

Program Evaluation by the USAID Health System Strengthening Project, April 2014).

The Committee notes the examples provided by the Government of coverage of

certain medication costs under the State Health Insurance Programme.

The report states that as a result of deregulation measures the pharmaceutical market

has become free and competitive, however no evidence is provided to show that the

price of medication has become generally more accessible, especially for vulnerable

groups and those with chronic conditions.

While the Committee considers that the Universal Health Care Programme is a

positive step forward and that the role of out-of-pocket payments as a source of

funding of the health system may have been reduced somewhat, it still considers that

the high proportion of out-of-pocket payments for health care, and in particular the

high medication costs, represent too high a burden for the individual effectively being

an obstacle to universal access to health care. The situation is therefore not in

conformity with the Charter.

Conclusion

The Committee concludes that the situation in Georgia is not in conformity with

Article 11§1 of the Charter on the ground that out-of-pocket payments in general and

medication costs in particular represent too high a burden for the individual

effectively being an obstacle to universal access to health care.”

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JUDGMENT

THE LAW

I. PRELIMINARY ISSUES

124. Following the applicant’s death, his relatives expressed the wish to

pursue the proceedings (see paragraph 1 above).

125. The respondent Government did not submit any observations on

this issue.

126. The Court normally permits the next-of-kin to pursue an

application, provided he or she has a legitimate interest, where the original

applicant has died after lodging the application with the Court (see

Malhous

v. the Czech Republic

(dec.) [GC], no. 33071/96, ECHR 2000‑XII, and

Murray v. the Netherlands

[GC], no. 10511/10, § 79, ECHR 2016). In the

present case, the Court takes note of the wish expressed by the applicant’s

family (see paragraph 1, above) to pursue the proceedings. Having regard to

its conclusion in paragraph 133 below, however, it considers that it is

unnecessary to determine whether the family have a legitimate interest in

that regard.

127. The Court must nevertheless ascertain whether, in view of the

applicant’s death and the nature of the alleged violations, the application

should be struck out of the list of cases or whether, on the contrary, there are

special circumstances requiring its continued examination pursuant to

Article 37 § 1

in fine.

128. In that connection, Article 37 § 1 of the Convention provides:

“The Court may at any

stage of the proceedings decide to strike an application out

of its list of cases where the circumstances lead to the conclusion that

(a) the applicant does not intend to pursue his application; or

(b) the matter has been resolved; or

the examination of the application.

However, the Court shall continue the examination of the application if respect for

human rights as defined in the Convention and the Protocols thereto

so requires.”

129. The Court reiterates that the human rights cases before it generally

also have a moral dimension, which must be taken into account when

considering whether the examination of an application after the applicant’s

death should be continued (see

Karner v. Austria,

no. 40016/98, § 25,

ECHR 2003-IX, and

Malhous

(dec.), cited above).

130. The Court has repeatedly stated that its judgments serve not only to

decide those cases brought before it but, more generally, to elucidate,

safeguard and develop the rules instituted by the Convention, thereby

contributing to the States’ observance of the engagements undertaken by

them. Although the primary purpose of the Convention system is to provide

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individual relief, its mission is also to determine issues on public-policy

grounds in the common interest, thereby raising the general standards of

protection of human rights and extending human rights jurisprudence

throughout the community of Convention States (see

Karner,

cited above,

§ 26).

131. The Court notes that the present case was referred to the Grand

Chamber on 20 April 2015 in accordance with Article 43 of the Convention,

which provides that cases can be referred if they raise

“a serious question

affecting the interpretation or application of the Convention or the Protocols

thereto, or a serious issue of general importance”.

132. The Court observes that there are important issues at stake in the

present case, notably concerning the expulsion of aliens who are seriously

ill. Thus, the impact of this case goes beyond the particular situation of the

applicant, unlike most of the similar cases on expulsion decided by a

Chamber (compare

F.G. v. Sweden

[GC], no. 43611/11, § 82, ECHR 2016).

133. Having regard to the foregoing, the Court finds that special

circumstances relating to respect for human rights as defined in the

Convention and the Protocols thereto require it to continue the examination

of the application in accordance with Article 37 § 1

in fine

of the

Convention.

II. ALLEGED VIOLATION OF ARTICLES 2 AND 3 OF THE

CONVENTION

134. The applicant alleged that substantial grounds had been shown for

believing that if he had been expelled to Georgia he would have faced a real

risk there of inhuman and degrading treatment contrary to Article 3 of the

Convention and of a premature death in breach of Article 2. Those Articles

provide:

Article 2

“1.

Everyone’s right to life shall be protected by law. No one shall be deprived of

his life intentionally save in the execution of a sentence of a court following his

conviction of a crime for which this penalty is provided by law.

...”

Article 3

“No one shall be subjected to torture or to inhuman or degrading treatment or

punishment.”

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JUDGMENT

A. The Chamber judgment

135. The Chamber began by examining whether the applicant’s removal

to Georgia would breach Article 3 of the Convention (see

paragraphs 117-26 of the Chamber judgment).

136. It observed that, according to the case-law established in

N. v. the

United Kingdom

([GC], no. 26565/05, ECHR 2008), Article 3 protected

aliens suffering from an illness against removal only in very exceptional

cases, where the humanitarian grounds against the removal were

compelling. The fact that the individual’s circumstances, including his life

expectancy, would be significantly reduced if he were to be removed did not

constitute such grounds. In the instant case, the illnesses from which the

applicant suffered were all stable and under control as a result of the

treatment received in Belgium; he was fit to travel and his life was not in

imminent danger.

137. The Chamber noted that medication to treat the applicant’s illnesses

existed in Georgia. It acknowledged that its accessibility was not guaranteed

and that, owing to a shortage of resources, not all the persons concerned

received all the medicines and treatment they required. Nevertheless, in

view of the fact that the applicant would not be left wholly without

resources if he were to return, the fact that the Belgian authorities had been

providing him with medical assistance while the case was pending before

the Court and the fact that Georgia was a Contracting Party to the

Convention, the Court held that, as matters stood, there were no exceptional

circumstances precluding the applicant’s removal.

138. The Chamber considered that the examination of the applicant’s

complaints from the standpoint of Article 2 did not lead to a different

conclusion (see paragraph 127 of the Chamber judgment).

B. The parties’ observations before the Grand Chamber

1. The applicant

139. The applicant submitted that, in keeping with the Court’s case-law as

established in the judgments in

M.S.S. v. Belgium and Greece

([GC],

no. 30696/09, ECHR 2011) and

Tarakhel v. Switzerland

([GC],

no. 29217/12, ECHR 2014 (extracts)), the alleged violation of Article 3 of

the Convention had to be examined

in concreto

and in the light of all the

facts of the case, taking into consideration the accessibility of treatment in

the country of destination and the particular vulnerability of the person

concerned.

140. The applicant’s particular vulnerability resulted primarily from his

state of health. His leukaemia had reached the most serious stage, Binet

stage C. He had already undergone numerous courses of chemotherapy and

the illness put him at risk of severe complications which called for regular

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JUDGMENT

monitoring in a specialised setting. He was being treated with a drug

–

Ibrutinib

–

which was very expensive, costing around EUR 6,000 per

month, and the dosage of which had to be continually adjusted to his

treatment for hepatitis C. The latter had recently become active again

following a relapse in 2012 and 2013 and also required very expensive

treatment costing EUR 700 per day. As soon as his overall condition

permitted, it was planned to treat him by means of a donor transplant, at an

estimated cost of EUR 150,000. This was his only hope of a cure, and the

search was under way for a compatible unrelated donor. The applicant’s

condition was further weakened by the repeated secondary infections caused

by his chronic obstructive pulmonary disease, which had become severe and

was not being monitored. In addition, the applicant had had three fingers

amputated and his left arm was paralysed.

141. Besides the fact that, according to his doctor, neither Ibrutinib nor a

donor transplant would have been available in Georgia, the applicant had

had no guarantee that he would have had access in practice to life-saving

treatment, given the proven shortcomings of the Georgian health-care

system. In 2008 the Law on compulsory health insurance had been replaced

by a two-tier system. People who could afford it were encouraged to take

out private insurance and to avail themselves of the care provided by the

hospitals that had gradually been privatised. Meanwhile, the least well-off

(estimated at 20% of the population) were eligible in principle for free basic

health care under a special universal insurance scheme. However, in

practice, owing to an ineffective system for determining eligibility, the

health-care costs of around half of the least well-off were still not covered.

In addition, the provision of care and infrastructure to the least well-off was

very limited.

142. Moreover, in the applicant’s submission, the burden of proving the

existence of real and practical access to health care in Georgia lay with the

Belgian authorities, who had greater investigative resources.

143. More specifically, it was for the Belgian authorities, in the context

of the request for regularisation based on section 9ter of the Aliens Act, to

assess the risk of a breach of Article 3 of the Convention in the light of the

information available to them on the applicant’s personal, family and

medical situation and the shortcomings of the Georgian health-care system,

and not to deprive the applicant as a matter of principle of the only

possibility open to him of asserting a fundamental right.

144.

A fortiori,

even assuming that the Belgian State had examined the

request for leave to remain on the merits, it could not simply have presumed

that the applicant would be treated in accordance with the requirements of

the Convention. As made clear by the judgment in

M.S.S. v. Belgium and

Greece,

the fact that Georgia was a Contracting Party to the Convention did

not mean that it could be presumed

ipso facto

that Georgia could not be held

responsible for breaches of the Convention. Acceptance of the treaties

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guaranteeing respect for fundamental rights was not sufficient to afford

adequate protection against the risk of ill-treatment where, as in the present

case, reliable sources reported practices on the part of the authorities, or

tolerated by them, that were manifestly in breach of the Convention.

145. On the contrary, it was for the Belgian authorities to make enquiries

and to satisfy themselves in advance that the Georgian authorities could

actually guarantee in practical terms that the applicant would receive the

health care he needed in order to survive and that his illness would be

treated in a manner compatible with human dignity. Access to medical care

must not be theoretical but must be real and guaranteed.

146. Since the Belgian State had failed to contribute, at the time of the

refusal of the applicant’s request for leave to remain, to verifying the

accessibility in Georgia, in real and practical terms, of the treatment which

the applicant needed, and in the absence of guarantees in that regard, its

responsibility under Article 3 of the Convention would have been engaged

if it had proceeded with the applicant’s removal to Georgia. If removed he

would have been exposed to a risk of inhuman or degrading treatment and

an earlier death owing to the withdrawal of the intensive and specialised

treatment he had been receiving in Belgium, and to the end of any hope of

receiving a donor transplant. In addition, there was the impact which his

removal would have had on his family. All of these circumstances could be

regarded by the Court as “exceptional” within

the meaning of

D. v. the

United Kingdom

(2 May 1997,

Reports of Judgments and Decisions

1997-III) and

N. v. the United Kingdom

(cited above).

147. The applicant further submitted that the fact that his irregular

residence status had continued for over seven years after he had requested

leave to remain on medical grounds, without his request having been

examined on the merits, had played a major part in placing him in a

precarious and vulnerable situation.

148. In sum, the applicant had been in greater need of protection owing

to his particular vulnerability linked to his state of health, the stakes in terms

of his life and physical well-being, his emotional and financial dependency

and the existence of his family ties in Belgium. The Belgian State’s

responsibility under Article 3 of the Convention stemmed from the fact that

it was proceeding with the applicant’s removal without taking these factors

into account, thereby demonstrating a lack of respect for his dignity and

placing him at serious risk, in the event of his return to Georgia, of a severe

and rapid deterioration in his state of health leading to his swift and certain

death.

149. The applicant requested the Court to go beyond its findings in

N. v. the United Kingdom

and to define, in the light of these considerations,

a realistic threshold of severity that was no longer confined to securing a

“right to die with dignity”. He relied in that connection on the recent

developments in the case-law of the Belgian courts, which had distanced

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themselves from the findings in

N. v. the United Kingdom

and now afforded

more extensive protection than that provided for under Article 3 of the

Convention (see paragraphs 101 et seq. above).

2. The Belgian Government

150. The Government submitted that, although it was acknowledged in

the Court’s case-law that the responsibility of a Contracting Party could be

engaged under Article 3 on account of the expulsion of an alien and his

exposure to a risk of a breach of his economic and social rights, it

nevertheless had to be taken into consideration that, where the person

concerned suffered from an illness, neither the returning State nor the

receiving State could be held directly responsible for the shortcomings of

the health-care system and the repercussions on the health of the individual

concerned. The case-law demonstrated that in order for the threshold of

severity required by Article 3 to be attained in such cases the extreme nature

of the applicant’s living conditions or his or her extreme vulnerability had to

be established. The circumstances contrary to human dignity had to be

exceptional to such a degree that the person concerned, owing to his or her

critical condition prior to removal, would inevitably be placed in a situation

of intense suffering solely on account of the removal procedure and the

complete absence of care and treatment in the receiving country. Human

rights were not synonymous with compelling humanitarian considerations

and a general obligation to provide social welfare assistance could not be

inferred from Article 3 even in the name of human dignity.

151. In view of this case-law it could not be concluded that the criteria

for engaging the responsibility of the Belgian State had been met in the

present case.

152. With reference, firstly, to developments in the applicant’s state of

health, the Government argued that while his overall condition had

deteriorated since the time of the Chamber judgment, mainly as a result of

collateral diseases, and his condition was still life-threatening, the illnesses

from which the applicant suffered had been kept under control for a long

time by the medicines being administered to him in Belgium. According to

the report of the Aliens Office’s medical officer of 23 June 2015, the

applicant’s condition could not be regarded as critical, he was fit to travel,

his illnesses were not directly life-threatening and none of his vital organs

was in a condition that placed his life in immediate danger.

153. Furthermore, since the applicant had failed to provide more detailed

information concerning the content of the study in the context of which his

leukaemia was being treated, it was difficult to establish any objective basis

for his general practitioner’s assertion that the only option at this stage had

been the administration of Ibrutinib followed by a donor transplant and that

in the absence of that treatment the applicant’s life expectancy would have

been three months. Other factors entered into the equation, such as the

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increase in life expectancy as a result of the medication, the feasibility of the

operation, which itself depended on how the applicant’s general condition

evolved, and the low success rate of the operation. In sum, this was a private

initiative on the part of the applicant’s general practitioner and appeared to

be a hypothetical, strategic choice linked to research considerations. It was

questionable whether there was a need to ensure its continuation. As to the

applicant’s other illnesses, it had not been possible to assess their state of

advancement on the basis of the medical information provided.

154. The Government submitted that, in view of this lack of clarity and

of the complex and risky nature of the transplant procedure, consideration

might have been given, on the basis of the information in the medical file, to

abandoning the idea of a donor transplant and instead continuing to treat the

applicant with Ibrutinib in Georgia under the supervision of a haematology

department.

155. The next issue was whether there had been reason to believe that,

following his removal, the applicant would have faced a serious risk of

inhuman and degrading treatment. The Government argued that the burden

of proof in that regard depended on whether the threshold of severity

defined in

D. v. the United Kingdom

and

N. v. the United Kingdom

(both

cited above) was changed. If the current case-law was maintained, the

disparity in the level of care between the returning State and the receiving

State was relevant only if the person’s condition was critical at the time of

his or her expulsion. If, on the other hand, it was now a question of

providing evidence, not of the conditions in which the person concerned

would die but of the conditions in which he or she should be kept alive, the

burden of proof shifted to the living conditions in the receiving State. This

shift raised a number of issues.

156. One of the factors to be taken into consideration was the exact

personal situation of the individual concerned and in particular the ties he or

she had maintained with his or her country of origin and the resources

available to him or her in order to continue treatment. The applicant had not

provided any detailed information on that subject. Another factor was the

situation of the social welfare system in the receiving State. The assessment

of that situation was, by definition, complex and general and would not

allow a specific treatment to be identified. Furthermore, if the sole criterion

was the prospect of survival, it had to be ascertained at what stage in the

applicant’s treatment his expulsion should be deemed contrary to Article 3.

Bearing in mind the evolving and multi-faceted nature of medical

techniques, this decision was largely arbitrary. If, as the applicant had

suggested, he should have been considered vulnerable and thus recognised

as having victim status on account of the deterioration of his state of health,

the question then arose as to what differentiated him from other Georgian

nationals suffering from illness who were reliant on the Georgian

health-care system. It would be difficult to argue that the difference lay in

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his unlawful residence and his medical treatment in Belgium. Instead of

producing clear answers, these questions gave rise to general assumptions

based on speculation which were insufficient to establish the State’s

international responsibility beyond any reasonable doubt.

157. In the Government’s view, even if this speculative aspect could

have been overcome by obtaining assurances from the receiving State, as

mentioned by the Court in

Tatar v. Switzerland

(no. 65692/12, 14 April

2015), such assurances should be deemed to have existed in the present case

and to have been sufficient. The applicant had been medically fit to travel

and the local authorities would have been informed of the specific nature of

his condition or would have received a list of the medication needed. No

more specific guarantees had been required in the absence of any indication

that the Georgian authorities would have treated the applicant less

favourably than the rest of the Georgian population or that he would have

been unable to obtain medical treatment that took account of the specific

features of his illness. In that connection, it might have been possible to

continue to treat the applicant with Ibrutinib by having his medication sent

through the post under the supervision of his doctor and with the assistance

of doctors in Georgia. The Government added that if a donor transplant had

proved possible they would not have taken any steps to prevent it or to

secure the applicant’s removal while he was in hospital.

158. Lastly, account had to be taken of the fact that the applicant would

have been removed to Georgia, a Contracting Party to the Convention, and

that if he had been shown to be particularly vulnerable, Belgium’s

responsibility could have been engaged only if it had been established that

the Georgian State would manifestly fail to comply with its Convention

obligations, for instance if it had been shown that the applicant would be

entirely dependent on public assistance and would be in a state of

deprivation contrary to human dignity. In the absence of any indication to

that effect it should have been presumed that the Georgian authorities would

comply with the requirements of the Convention. Should that have proved

not to be the case, it would have been up to the applicant to apply to the

Court under Article 34 of the Convention.

C. Observations of the third-party interveners

1. The Georgian Government

159. The Georgian Government submitted that, since 2012, they had

implemented an extensive programme of universal medical cover which had

resulted to date in 90% of the population being covered in terms of primary

health care. If the applicant had returned to Georgia he would have had

access to that universal cover in the same way as the local residents.

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160. Furthermore, the Georgian health-care system could have provided

appropriate treatment for the illnesses from which the applicant had

suffered, in terms of both medical infrastructure and health-care personnel.

The health care provided conformed to international standards and was

approved by the domestic rules.

161. With regard to the treatment of tuberculosis, a State tuberculosis

management programme had been approved by Decree no. 650 of

2 December 2014, which provided for free TB examinations and medication

for Georgian citizens, stateless persons resident in Georgia, prisoners and

any person in the country identified as a TB carrier. New experimental

treatments for tuberculosis had been introduced in Georgia over the past

several years and were available on the market in sufficient quantities. The

applicant would be able to take advantage of them.

162. With regard to leukaemia, the Georgian Government submitted that

the programme of universal medical cover covered diagnosis, treatment

(including chemotherapy and radiotherapy), medical examinations and

medication for persons living below the poverty threshold who were

suffering from oncological diseases. Between 2013 and 2015, 859 patients

with chronic lymphocytic leukaemia had received specialised

chemotherapy. This was administered in five clinics in Georgia which were

equipped with all modern medical facilities.

163. The main improvements made since the information provided at the

Chamber stage concerned hepatitis C. Whereas, previously, hospital

treatment for patients presenting with a significant viral load and/or

cirrhosis had only been covered at 50% of an amount fixed by the

Government, and medicines had not been reimbursed at all, since 20 April

2015 socially vulnerable families were entitled to 70% of the diagnostic

costs and other patients to 30% of the costs. Under a special programme for

residents of the city of Tbilisi, 100% cover was provided. Furthermore,

access to medicines was free of charge “for all patients involved in the

treatment protocol on the basis of a decision by a special commission”.

Finally, a pharmaceutical company had supplied Georgia with doses of a

new antiretroviral treatment involving the drugs Solvadi and Harvoni,

which could have been administered to the applicant if he had returned.

164. Lastly, with regard to chronic obstructive pulmonary disease, the

Georgian Government stated that all modern forms of basic treatment were

available in Georgia. There were also several hospitals in Tbilisi which

treated this illness. Any surgery that might be needed would be covered by

the programme of universal medical cover.

2. The Human Rights Centre of Ghent University

165. According to the Human Rights Centre, the present case afforded a

unique opportunity to depart from the excessively restrictive approach

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adopted by the Court in

N. v. the United Kingdom

with regard to the

expulsion of persons suffering from serious illness.

166. The intervener began by arguing that this approach contrasted with

the general case-law concerning potential violations of Article 3 of the

Convention.

167. Hence, in the judgment in

Pretty v. the United Kingdom

(no. 2346/02, § 52, ECHR 2002-III), the Court had indicated on what

grounds and to what extent the responsibility of the Contracting State could

be engaged. The Court had observed the connection between a naturally

occurring illness and its exacerbation by the measure for which the

authorities could be held responsible. However, in

N. v. the United

Kingdom,

while the Court had still referred to naturally occurring illness, it

had not linked it to the measure taken by the authorities that would

exacerbate the illness, but to the lack of sufficient resources to deal with it

in the receiving country, from which it had inferred that the alleged future

harm did not engage the direct responsibility of the Contracting State.

168. However, in cases concerning the expulsion of persons suffering

from serious illness, the event that triggered the inhuman and degrading

treatment was the intentional removal of the persons concerned from a place

where they could obtain life-saving treatment to a place where they could

not, thereby exposing them to a near-certain but avoidable risk of suffering

and death that engaged the State’s responsibility. The Court had consistently

acknowledged that in cases where there were serious reasons for believing

that the person concerned, if removed, faced a risk of being subjected to

treatment contrary to Article 3, the absolute nature of that provision

prohibited the Contracting Parties from proceeding with the person’s

removal.

169. In

N. v. the United Kingdom

the Court had also based its reasoning

on the “search for a fair balance between the demands of the general interest

of the community and the requirements of the protection of the individual’s

fundamental rights” and on the observation that a finding of a violation

“would place too great a burden on the Contracting States”. Such an

approach was in glaring contradiction with the case-law arising out of the

judgment in

Saadi v. Italy

([GC], no. 37201/06, ECHR 2008), in which the

Court had clearly rejected the idea of conducting a balancing exercise or

applying a test of proportionality in order to assess whether an applicant’s

removal was compatible with Article 3.

170. The intervener therefore suggested opting for an alternative to the

criteria established in

N. v. the United Kingdom,

one that would be

compatible with the absolute nature of the prohibition contained in

Article 3. This would entail examining carefully all the foreseeable

consequences of removal in order to determine whether the reduction in the

life expectancy of the persons concerned and the deterioration in their

quality of life would be such that the threshold of severity required by

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Article 3 was attained. The parameters to be taken into consideration would

be, in addition to the state of health of the persons concerned, the

appropriateness or otherwise, in terms of quality and promptness, of the

medical treatment available in the receiving State and whether it was

actually accessible to the individuals concerned. This last criterion could be

assessed taking into account the actual cost of treatment, the level of family

support available to the persons concerned, the distance they would have to

travel in order to have access to the treatment and specific factors linked to

their state of health that would heighten their vulnerability.

171. Lastly, the intervener proposed that Article 3 of the Convention be

found to impose a procedural obligation on the domestic authorities in the

expelling State requiring them to seek or obtain assurances from the

receiving State that the persons concerned would actually have access to the

treatment they needed and thus be protected against treatment contrary to

Article 3.

D. The Court’s assessment

1. General principles

172. The Court reiterates that Contracting States have the right as a

matter of well-established international law and subject to their treaty

obligations, including the Convention, to control the entry, residence and

expulsion of aliens (see

N. v. the United Kingdom,

cited above, § 30). In the

context of Article 3, this line of authority began with the case of

Vilvarajah

and Others v. the United Kingdom

(30 October 1991, § 102, Series A

no. 215).

173. Nevertheless, the expulsion of an alien by a Contracting State may

give rise to an issue under Article 3 of the Convention where substantial

grounds have been shown for believing that the person concerned faces a

real risk of being subjected to torture or inhuman or degrading treatment or

punishment in the receiving country. In such circumstances, Article 3

implies an obligation not to expel the individual to that country (see

Saadi,

cited above, § 125;

M.S.S. v. Belgium and Greece,

cited above, § 365;

Tarakhel,

cited above, § 93; and

F.G. v. Sweden,

cited above, § 111).

174. The prohibition under Article 3 of the Convention does not relate to

all instances of ill-treatment. Such treatment has to attain a minimum level

of severity if it is to fall within the scope of that Article. The assessment of

this minimum is relative; it depends on all the circumstances of the case,

such as the duration of the treatment, its physical and mental effects and, in

some cases, the sex, age and state of health of the victim (see

N. v. the

United Kingdom,

cited above, § 29; see also

M.S.S. v. Belgium and Greece,

cited above, § 219;

Tarakhel,

cited above, § 94; and

Bouyid v. Belgium

[GC], no. 23380/09, § 86, ECHR 2015).

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175. The Court further observes that it has held that the suffering which

flows from naturally occurring illness may be covered by Article 3, where it

is, or risks being, exacerbated by treatment, whether flowing from

conditions of detention, expulsion or other measures, for which the

authorities can be held responsible (see

Pretty,

cited above, § 52). However,

it is not prevented from scrutinising an applicant’s claim under Article 3

where the source of the risk of proscribed treatment in the receiving country

stems from factors which cannot engage either directly or indirectly the

responsibility of the public authorities of that country (see

D. v. the United

Kingdom,

cited above, § 49).

176. In two cases concerning the expulsion by the United Kingdom of

aliens who were seriously ill, the Court based its findings on the general

principles outlined above (see paragraphs 172-74 above). In both cases the

Court proceeded on the premise that aliens who were subject to expulsion

could not in principle claim any entitlement to remain in the territory of a

Contracting State in order to continue to benefit from medical, social or

other forms of assistance and services provided by the returning State (see

D. v. the United Kingdom,

cited above, § 54, and

N. v. the United Kingdom,

cited above, § 42).

177. In

D. v. the United Kingdom

(cited above), which concerned the

decision taken by the United Kingdom authorities to expel to St Kitts an

alien who was suffering from Aids, the Court considered that the applicant’s

removal would expose him to a real risk of dying under most distressing

circumstances and would amount to inhuman treatment (see

D. v. the United

Kingdom,

cited above, § 53). It found that the case was characterised by

“very exceptional circumstances”,

owing to the fact that the applicant

suffered from an incurable illness and was in the terminal stages, that there

was no guarantee that he would be able to obtain any nursing or medical

care in St Kitts or that he had family there willing or able to care for him, or

that he had any other form of moral or social support (ibid., §§ 52-53).

Taking the view that, in those circumstances, his suffering would attain the

minimum level of severity required by Article 3, the Court held that

compelling humanitarian considerations weighed against the applicant’s

expulsion (ibid., § 54).

178. In the case of

N. v. the United Kingdom,

which concerned the

removal of a Ugandan national who was suffering from Aids to her country

of origin, the Court, in examining whether the circumstances of the case

attained the level of severity required by Article 3 of the Convention,

observed that neither the decision to remove an alien who was suffering

from a serious illness to a country where the facilities for the treatment of

that illness were inferior to those available in the Contracting State, nor the

fact that the individual’s circumstances, including his or her life expectancy,

would be significantly reduced, constituted

in themselves “exceptional”

circumstances sufficient to give rise to a breach of Article 3 (see

N. v. the

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United Kingdom,

cited above, § 42). In the Court’s view, it was important to

avoid upsetting the fair balance inherent in the whole of the Convention

between the demands of the general interest of the community and the

requirements of the protection of the individual’s fundamental rights. A

finding to the contrary would place too great a burden on States by obliging

them to alleviate the disparities between their health-care system and the

level of treatment available in the third country concerned through the

provision of free and unlimited health care to all aliens without a right to

stay within their jurisdiction (ibid., § 44). Rather, regard should be had to

the fact that the applicant’s condition was not critical and was stable as a

result of the antiretroviral treatment she had received in the United

Kingdom, that she was fit to travel and that her condition was not expected

to deteriorate as long as she continued to take the treatment she needed

(ibid., § 47). The Court also deemed it necessary to take account of the fact

that the rapidity of the deterioration which the applicant would suffer in the

receiving country, and the extent to which she would be able to obtain

access to medical treatment, support and care there, including help from

relatives, necessarily involved a certain degree of speculation, particularly

in view of the constantly evolving situation with regard to the treatment of

Aids worldwide (ibid., § 50). The Court concluded that the implementation

of the decision to remove the applicant would not give rise to a violation of

Article 3 of the Convention (ibid., § 51). Nevertheless, it specified that, in

addition to situations of the kind addressed in

D. v. the United Kingdom

which death was imminent, there might be other very exceptional cases

where the humanitarian considerations weighing against removal were

equally compelling (see

D. v. the United Kingdom,

cited above, § 43). An

examination of the case-law subsequent to

N. v. the United Kingdom

has not

revealed any such examples.

179. The Court has applied the case-law established in

N. v. the United

Kingdom

in declaring inadmissible, as being manifestly ill-founded,

numerous applications raising similar issues, concerning aliens who were

HIV positive (see, among other authorities,

E.O. v. Italy

(dec.),

no. 34724/10, 10 May 2012) or who suffered from other serious physical

illnesses (see, among other authorities,

V.S. and Others v. France

(dec.),

no. 35226/11, 25 November 2014) or mental illnesses (see, among other

authorities,

Kochieva and Others v. Sweden

(dec.), no. 75203/12, 30 April

2013, and

Khachatryan v. Belgium

(dec.), no. 72597/10, 7 April 2015).

Several judgments have applied this case-law to the removal of seriously ill

persons whose condition was under control as the result of medication

administered in the Contracting State concerned, and who were fit to travel

(see

Yoh-Ekale Mwanje v. Belgium,

no. 10486/10, 20 December 2011;

S.H.H. v. the United Kingdom,

no. 60367/10, 29 January 2013;

Tatar,

cited

above; and

A.S. v. Switzerland,

no. 39350/13, 30 June 2015).

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180. However, in its judgment in

Aswat v. the United Kingdom

(no. 17299/12, § 49, 16 April 2013), the Court reached a different

conclusion, finding that the applicant’s extradition to the United States,

where he was being prosecuted for terrorist activities, would entail

ill-treatment, in particular because the conditions of detention in the

maximum security prison where he would be placed were liable to

aggravate his paranoid schizophrenia. The Court held that the risk of

significant deterioration in the applicant’s mental and physical health was

sufficient to give rise to a breach of Article 3 of the Convention (ibid., § 57).

181. The Court concludes from this recapitulation of the case-law that

the application of Article 3 of the Convention only in cases where the

person facing expulsion is close to death, which has been its practice since

the judgment in

N. v. the United Kingdom,

has deprived aliens who are

seriously ill, but whose condition is less critical, of the benefit of that

provision. As a corollary to this, the case-law subsequent to

N. v. the United

Kingdom

has not provided more detailed guidance regarding the “very

exceptional

cases” referred to in

N. v. the United Kingdom,

other than the

case contemplated in

D. v. the United Kingdom.

182. In the light of the foregoing, and reiterating that it is essential that

the Convention is interpreted and applied in a manner which renders its

rights practical and effective and not theoretical and illusory (see

Airey

v. Ireland,

9 October 1979, § 26, Series A no. 32;

Mamatkulov and Askarov

v. Turkey

[GC], nos. 46827/99 and 46951/99, § 121, ECHR 2005-I; and

Hirsi Jamaa and Others v. Italy

[GC], no. 27765/09, § 175, ECHR 2012),

the Court is of the view that the approach adopted hitherto should be

clarified.

183.

The Court considers that the “other very exceptional cases” within

the meaning of the judgment in

N. v. the United Kingdom

(§ 43) which may

raise an issue under Article 3 should be understood to refer to situations

involving the removal of a seriously ill person in which substantial grounds

have been shown for believing that he or she, although not at imminent risk

of dying, would face a real risk, on account of the absence of appropriate

treatment in the receiving country or the lack of access to such treatment, of

being exposed to a serious, rapid and irreversible decline in his or her state

of health resulting in intense suffering or to a significant reduction in life

expectancy. The Court points out that these situations correspond to a high

threshold for the application of Article 3 of the Convention in cases

concerning the removal of aliens suffering from serious illness.

184. As to whether the above conditions are satisfied in a given

situation, the Court observes that in cases involving the expulsion of aliens,

the Court does not itself examine the applications for international

protection or verify how States control the entry, residence and expulsion of

aliens. By virtue of Article 1 of the Convention the primary responsibility

for implementing and enforcing the guaranteed rights and freedoms is laid

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on the national authorities, who are thus required to examine the applicants’

fears and to assess the risks they would face if removed to the receiving

country, from the standpoint of Article 3. The machinery of complaint to the

Court is subsidiary to national systems safeguarding human rights. This

subsidiary character is articulated in Article 13 and Article 35 § 1 of the

Convention (see

M.S.S. v. Belgium and Greece,

cited above, §§ 286-87, and

F.G. v. Sweden,

cited above, §§ 117-18).

185. Accordingly, in cases of this kind, the authorities’ obligation under

Article 3 to protect the integrity of the persons concerned is fulfilled

primarily through appropriate procedures allowing such examination to be

carried out (see,

mutatis mutandis, El-Masri v. the former Yugoslav

Republic of Macedonia

[GC], no. 39630/09, § 182, ECHR 2012;

Tarakhel,

cited above, § 104; and

F.G. v. Sweden,

cited above, § 117).

186. In the context of these procedures, it is for the applicants to adduce

evidence capable of demonstrating that there are substantial grounds for

believing that, if the measure complained of were to be implemented, they

would be exposed to a real risk of being subjected to treatment contrary to

Article 3 (see

Saadi,

cited above, § 129, and

F.G. v. Sweden,

cited above,

§ 120). In this connection it should be observed that a certain degree of

speculation is inherent in the preventive purpose of Article 3 and that it is

not a matter of requiring the persons concerned to provide clear proof of

their claim that they would be exposed to proscribed treatment (see, in

particular,

Trabelsi v. Belgium,

no. 140/10, § 130, ECHR 2014 (extracts)).

187. Where such evidence is adduced, it is for the authorities of the

returning State, in the context of domestic procedures, to dispel any doubts

raised by it (see

Saadi,

cited above, § 129, and

F.G. v. Sweden,

cited above,

§ 120). The risk alleged must be subjected to close scrutiny (see

Saadi,

cited

above, § 128;

Sufi and Elmi v. the United Kingdom,

nos. 8319/07 and

11449/07, § 214, 28 June 2011;

Hirsi Jamaa and Others,

cited above,

§ 116; and

Tarakhel,

cited above, § 104) in the course of which the

authorities in the returning State must consider the foreseeable

consequences of removal for the individual concerned in the receiving State,

in the light of the general situation there and the individual’s personal

circumstances (see

Vilvarajah and Others,

cited above, § 108;

El-Masri,

cited above, § 213; and

Tarakhel,

cited above, § 105). The assessment of the

risk as defined above (see paragraphs 183-84) must therefore take into

consideration general sources such as reports of the World Health

Organisation or of reputable non-governmental organisations and the

medical certificates concerning the person in question.

188. As the Court has observed above (see paragraph 173), what is in

issue here is the negative obligation not to expose persons to a risk of

ill-treatment proscribed by Article 3. It follows that the impact of removal

on the person concerned must be assessed by comparing his or her state of

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JUDGMENT

health prior to removal and how it would evolve after transfer to the

receiving State.

189. As regards the factors to be taken into consideration, the authorities

in the returning State must verify on a case-by-case basis whether the care

generally available in the receiving State is sufficient and appropriate in

practice for the treatment of the applicant’s illness so as to prevent him or

her being exposed to treatment contrary to Article 3 (see paragraph 183

above). The benchmark is not the level of care existing in the returning

State; it is not a question of ascertaining whether the care in the receiving

State would be equivalent or inferior to that provided by the health-care

system in the returning State. Nor is it possible to derive from Article 3 a

right to receive specific treatment in the receiving State which is not

available to the rest of the population.

190. The authorities must also consider the extent to which the

individual in question will actually have access to this care and these

facilities in the receiving State. The Court observes in that regard that it has

previously questioned the accessibility of care (see

Aswat,

cited above, § 55,

and

Tatar,

cited above, §§ 47-49) and referred to the need to consider the

cost of medication and treatment, the existence of a social and family

network, and the distance to be travelled in order to have access to the

required care (see

Karagoz v. France

(dec.), no. 47531/99, 15 November

2001;

N. v. the United Kingdom,

cited above, §§ 34-41, and the references

cited therein; and

E.O. v. Italy

(dec.), cited above).

191. Where, after the relevant information has been examined, serious

doubts persist regarding the impact of removal on the persons concerned

–

on account of the general situation in the receiving country and/or their

individual situation

–

the returning State must obtain individual and

sufficient assurances from the receiving State, as a precondition for

removal, that appropriate treatment will be available and accessible to the

persons concerned so that they do not find themselves in a situation contrary

to Article 3 (on the subject of individual assurances, see

Tarakhel,

cited

above, § 120).

192. The Court emphasises that, in cases concerning the removal of

seriously ill persons, the event which triggers the inhuman and degrading

treatment, and which engages the responsibility of the returning State under

Article 3, is not the lack of medical infrastructure in the receiving State.

Likewise, the issue is not one of any obligation for the returning State to

alleviate the disparities between its health-care system and the level of

treatment existing in the receiving State through the provision of free and

unlimited health care to all aliens without a right to stay within its

jurisdiction. The responsibility that is engaged under the Convention in

cases of this type is that of the returning State, on account of an act

–

in this

instance, expulsion

–

which would result in an individual being exposed to a

risk of treatment prohibited by Article 3.

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193. Lastly, the fact that the third country concerned is a Contracting

Party to the Convention is not decisive. While the Court agrees with the

Government that the possibility for the applicant to initiate proceedings on

his return to Georgia was, in principle, the most natural remedy under the

Convention system, it observes that the authorities in the returning State are

not exempted on that account from their duty of prevention under Article 3

of the Convention (see, among other authorities,

M.S.S. v. Belgium and

Greece,

cited above, §§ 357-59, and

Tarakhel

cited above, §§ 104-05).

2. Application of the general principles to the present case

194. It is not disputed that the applicant was suffering from a very

serious illness, chronic lymphocytic leukaemia, and that his condition was

life-threatening.

195. The applicant provided detailed medical information obtained from

Dr L., a doctor specialising in the treatment of leukaemia and head of the

haematology department in a hospital devoted entirely to the treatment of

cancer. According to this information, the applicant’s condition had become

stable as a result of the treatment he was receiving in Belgium. This was a

highly targeted treatment aimed at enabling him to undergo a donor

transplant, which offered the last remaining prospect of a cure provided it

was carried out within a fairly short timeframe. If the treatment being

administered to the applicant had had to be discontinued, his life

expectancy, based on the average, would have been less than six months

(see paragraph 46 above).

196. In a report of 23 June 2015 the medical adviser of the Aliens Office

stressed that the medical information concerning the applicant did not

disclose a direct threat to his life or indicate that his state of health was

critical (see paragraph 68 above).

197. The applicant submitted that, according to the information available

to Dr L., neither the treatment he was receiving in Belgium nor the donor

transplant was available in Georgia. As to the other forms of leukaemia

treatment available in that country, he argued that there was no guarantee

that he would have access to them, on account of the shortcomings in the

Georgian social insurance system (see paragraph 141 above). In the Court’s

view, these assertions are not without some credibility.

198. The Court notes that on 10 September 2007 and 2 April 2008 the

applicant made two requests for regularisation of his residence status in

Belgium on medical grounds, on the basis of section 9ter of the Aliens Act

(see paragraphs 54 and 59 above). His requests were based primarily on the

need to obtain appropriate treatment for his leukaemia and on the premise

that he would have been unable to receive suitable care for his condition in

Georgia.

199. On 26 September 2007 and 4 June 2008 the applicant’s requests for

regularisation were refused by the Aliens Office on the grounds that he was

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JUDGMENT

excluded from the scope of section 9ter of the Act because of the serious

crimes he had committed (see paragraphs 55 and 60 above). The Aliens

Appeals Board, called upon to examine the applicant’s requests for a stay of

execution of these decisions and his applications to set them aside, held in

judgments dated 28 August 2008 and 21 May 2015 that, where the

administrative authority advanced grounds for exclusion, it was not

necessary for it to examine the medical evidence submitted to it. With

regard to the complaints based on Article 3 of the Convention, the Aliens

Appeals Board further noted that the decision refusing leave to remain had

not been accompanied by a removal measure, with the result that the risk of

the applicant’s medical treatment being discontinued in the event of his

return to Georgia was purely hypothetical (see paragraphs 57 and 62 above).

The

Conseil d’État,

to which the applicant appealed on points of law,

upheld the reasoning of the Aliens Appeals Board and specified that the

medical situation of an alien who faced removal from the country and

whose request for leave to remain had been refused should be assessed at

the time of enforcement of the removal measure rather than at the time of its

adoption (see paragraph 64 above).

200. The Court concludes from the above that, although the Aliens

Office’s medical adviser had issued several opinions regarding the

applicant’s state of health based on the medical certificates provided by the

applicant (see paragraphs 67-68 above), these were not examined either by

the Aliens Office or by the Aliens Appeals Board from the perspective of

Article 3 of the Convention in the course of the proceedings concerning

regularisation on medical grounds.

201. Nor was the applicant’s medical situation examined in the context

of the proceedings concerning his removal (see paragraphs 73, 78 and 84

above).

202. The fact that an assessment of this kind could have been carried out

immediately before the removal measure was to be enforced (see

paragraph 199

in fine

above) does not address these concerns in itself, in the

absence of any indication of the extent of such an assessment and its effect

on the binding nature of the order to leave the country.

203. It is true that at the hearing on 15 September 2015 the Belgian

Government gave assurances that, should it ultimately be decided to

perform a donor transplant in Belgium, the Belgian authorities would not

take any steps to prevent it or to secure the applicant’s removal while he

was in hospital. The Court takes note of that statement.

204. The Government further submitted that it might have been possible

to continue the applicant’s treatment by having his medication sent through

the post under the supervision of his doctor and with the assistance of

doctors in Georgia. However, the Government did not provide any specific

information regarding the practical feasibility of such a solution.

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205. In conclusion, the Court considers that in the absence of any

assessment by the domestic authorities of the risk facing the applicant in the

light of the information concerning his state of health and the existence of

appropriate treatment in Georgia, the information available to those

authorities was insufficient for them to conclude that the applicant, if

returned to Georgia, would not have run a real and concrete risk of

treatment contrary to Article 3 of the Convention (see paragraph 183

above).

206. It follows that, if the applicant had been returned to Georgia

without these factors being assessed, there would have been a violation of

Article 3.

207. In view of this finding the Court considers that it is not necessary to

examine the complaint under Article 2 of the Convention.

III. ALLEGED VIOLATION OF ARTICLE 8 OF THE CONVENTION

208. The applicant complained that his removal to Georgia, ordered

together with a ten-year ban on re-entering Belgium, would have resulted in

his separation from his family, who had been granted leave to remain in

Belgium and constituted his sole source of moral support. He alleged a

violation of Article 8 of the Convention, which provides:

“1.

Everyone has the right to respect for his private and family life, his home and

his correspondence.

2. There shall be no interference by a public authority with the exercise of this right

except such as is in accordance with the law and is necessary in a democratic society

in the interests of national security, public safety or the economic well-being of the

country, for the prevention of disorder or crime, for the protection of health or morals,

or for the protection of the rights and freedoms of others.”

A. The Chamber judgment

209. Under Article 8 of the Convention viewed from the standpoint of

the State’s positive obligations (see the Chamber judgment, § 138), the

Chamber considered that the applicant’s convictions weighed heavily with

regard to both the number and seriousness of the offences and the nature of

the last penalty imposed (ibid., §§ 145-47).

210. It also noted that at no point during his fifteen-year stay in Belgium

had the applicant been in possession of a valid residence permit and that,

despite the applicant’s repeated convictions, the Belgian authorities had

displayed remarkable tolerance (ibid., §§ 149-50). It further took account of

the fact that the members of the family were Georgian nationals and that, as

they had Belgian residence permits, his wife and children could leave and

re-enter the country lawfully (ibid., §§ 151-53).

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211. Lastly, taking into consideration the medical aspect of the case and

the fact that the family could decide to leave Belgium temporarily for

Georgia, the Chamber stressed that it did not discern any exceptional

circumstances that would require the Belgian authorities to refrain from

removing the applicant or to grant him leave to remain (ibid., § 154).

212. Accordingly, it held that there had been no violation of Article 8 of

the Convention (ibid., § 156).

B. The parties’ observations before the Grand Chamber

1. The applicant

213. The applicant maintained that the Belgian authorities’ refusal to

regularise his residence status on humanitarian grounds or to examine his

request for regularisation on medical grounds amounted to interference with

his private and family life in breach of Article 8.

214. He argued that the Belgian authorities had been under a duty to

carry out a balanced and reasonable assessment of all the interests at stake.

They should have applied the rules taking into consideration the children’s

best interests and the requirement to afford them special protection on

account of their vulnerability. Although the applicant’s children had

Georgian nationality, from a “sociological” perspective they were Belgian,

and they spoke only French. They had been given leave to remain in

Belgium in 2010 and two of them had been born in Belgium. They had no

ties in Georgia, did not speak Georgian or Russian and would be eligible to

become fully fledged Belgian citizens in the medium term.

215. In addition, the couple’s eldest daughter, with whom his wife had

arrived in Belgium in 1998, was now an adult and lived in Belgium with her

two children.

216. The refusal to regularise the applicant’s status had left the family in

a state of economic and social vulnerability which had had a major

psychological impact and had hindered the development of their daily life.

The practical implications of this situation for the applicant

–

the fact that he

was barred from working and could not contribute to the household

expenses, the constant fear of arrest, the negative effect on his self-esteem,

and so forth

–

had affected the relationship between the children and their

father. The applicant’s criminal behaviour, which had been motivated

largely by the need to survive financially, belonged to the past. The

applicant was in a very weak state and stayed mostly at home, venturing out

only to collect his children from school.

217. The worsening of the applicant’s condition, coupled with the

impossibility of maintaining his state of health in Georgia and with the

length of his residence and that of his family in Belgium, should have

prompted the Court to reconsider the approach taken in the Chamber

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JUDGMENT

judgment, to assess the situation in its entirety and to find that the

applicant’s family had specific needs linked to their integration in Belgium.

The solution advocated by the Chamber, which would have entailed the

family moving to Georgia for long enough to take care of the applicant until

his death, would not have been feasible as it would have meant taking the

children out of school in Belgium and taking them to a country they did not

know and where they did not speak the language. Their mother would have

been unable to ensure the family’s upkeep in Georgia in view of the

applicant’s condition, and the applicant would have died in particularly

distressing circumstances. Furthermore, if they had had to remain in

Georgia for more than one year, the applicant’s wife and children would

have forfeited the right to return to Belgium. Such a solution would have

been, to say the least, disproportionate when weighed against the interests of

the Belgian State.

2. The Government

218. The Government stressed the significance that should be attached

to the applicant’s criminal record and the fact that he had persisted in his

criminal conduct despite his illness.

219. As to the children’s best interests, the Government considered that

these were difficult to determine because the children were not applicants

and especially because there was nothing to indicate that they would have

been unable to follow their father to Georgia for a time and attend school

there. Furthermore, as the applicant had not provided detailed information

regarding the extent of his family in Georgia and the persons with whom he

was in contact, it was difficult to make an overall assessment of the

situation.

220. The Government further submitted that residence permits had been

issued by a decision of 29 July 2010 to the applicant’s wife and their

children, granting them indefinite leave to remain under sections 9 and 13 of

the Aliens Act. The permit in question was a “type B”, in other words, a

certificate of entry in the aliens’ register which was valid for five years and

could be renewed for the same period

–

in advance, if necessary

–

by the

municipal authorities in the place of residence. This residence permit

entitled the members of the applicant’s family to leave Belgium for one year

or more and return to the country, provided that they had complied with the

requisite formalities in the municipality of residence and had ensured that

they had a valid permit. The formalities varied according to the length of the

stay outside the country: in the case of stays of three months to a year, the

aliens concerned had to report to the municipal authorities before leaving

and within fifteen days of returning or risk automatic removal from the

municipality’s register. In the case of stays of over one year, they forfeited

their right to remain unless they could demonstrate before their departure

that their centre of interests still lay in Belgium and they informed the

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JUDGMENT

municipal authorities in their habitual place of residence of their intention to

leave the country and return. The persons concerned also had to be in

possession of a valid residence permit on their return and to report to the

municipal authorities within fifteen days of returning.

C. The Court’s assessment

221. As regards the applicability of Article 8 and the standpoint from

which the complaints should be examined, the Grand Chamber will proceed

on the same premises as the Chamber (see the Chamber judgment,

§§ 136-38). Firstly, it is not disputed that family life existed between the

applicant, his wife and the children born in Belgium. This renders irrelevant

the disagreement as to whether the applicant was the father of the child born

before their arrival in Belgium, who is now an adult (ibid., § 136).

Furthermore, assuming that the removal measure could have been examined

from the standpoint of the applicant’s

private life, the “family life” aspect

should take precedence in view of the specific issues raised by the present

case and the parties’ submissions. Secondly, while the case concerns both

the domestic authorities’ refusal to grant the applicant leave to remain in

Belgium and the threat of his removal to Georgia, in view of the specific

features of the case and recent developments the Chamber found that the

key question was whether the Belgian authorities were under a duty to allow

the applicant to reside in Belgium so that he could remain with his family

(ibid., § 138). The Grand Chamber considers that examining the complaint

alleging a violation of Article 8 in this way from the standpoint of the

Belgian authorities’ positive obligations is made all the more necessary by

the developments in the case, in particular the deterioration of the

applicant’s health and his eventual death. Lastly, the Grand Chamber

reiterates that in the context of both its positive and its negative obligations,

the State must strike a fair balance between the competing interests of the

individual and of society as a whole, and that the extent of the State’s

obligations will vary according to the particular circumstances of the

persons involved and the general interest (ibid., § 140, and the references

cited therein).

222. However, unlike the Chamber, having observed that the Belgian

authorities did not examine the applicant’s medical data and the impact of

his removal on his state of health in any of the proceedings brought before

them, the Grand Chamber has concluded that there would have been a

violation of Article 3 of the Convention if the applicant had been removed

to Georgia without such an assessment being carried out (see paragraph 206

above).

223.

A fortiori,

the Court observes that the Belgian authorities likewise

did not examine, under Article 8, the degree to which the applicant was

dependent on his family as a result of the deterioration of his state of health.

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In the context of the proceedings for regularisation on medical grounds the

Aliens Appeals Board, indeed, dismissed the applicant’s complaint under

Article 8 on the ground that the decision refusing him leave to remain had

not been accompanied by a removal measure (see paragraph 58 above).

224. Nevertheless, just as in the case of Article 3, it is not for the Court

to conduct an assessment, from the perspective of Article 8 of the

Convention, of the impact of removal on the applicant’s family life in the

light of his state of health. In that connection the Court considers that this

task not only falls to the domestic authorities, which are competent in the

matter, but also constitutes a procedural obligation with which they must

comply in order to ensure the effectiveness of the right to respect for family

life. As the Court has observed above (see paragraph 184), the machinery of

complaint to the Court is subsidiary to national systems safeguarding human

rights.

225. Accordingly, if the Belgian authorities had ultimately concluded

that Article 3 of the Convention as interpreted above did not act as a bar to

the applicant’s removal to Georgia, they would have been required, in order

to comply with Article 8, to examine in addition whether, in the light of the

applicant’s specific situation at the time of removal (see,

mutatis mutandis,

Maslov v. Austria

[GC], no. 1638/03, § 93, ECHR 2008), the family could

reasonably have been expected to follow him to Georgia or, if not, whether

observance of the applicant’s right to respect for his family life required that

he be granted leave to remain in Belgium for the time he had left to live.

226. It follows that, if the applicant had been removed to Georgia

without these factors having been assessed, there would also have been a

violation of Article 8 of the Convention.

IV. APPLICATION OF ARTICLE 41 OF THE CONVENTION

227. Article 41 of the Convention provides:

“If the Court finds that there has been a violation of the Convention or the Protocols

thereto, and if the internal law of the High Contracting Party concerned allows only

partial reparation to be made, the Court shall, if necessary, afford just satisfaction to

the injured party.”

A. Damage

228. The applicant claimed EUR 10,434 in respect of pecuniary damage.

This amount corresponded to his out-of-pocket expenses for treatment in

Belgium which had not been covered owing to his irregular residence status

in the country.

229. The Court does not discern any causal link between the violation

found and the pecuniary damage alleged, and dismisses this claim.

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230. The applicant also claimed EUR 5,000 in respect of non-pecuniary

damage resulting from his precarious socio-economic situation.

231. The Court considers that, having regard to the circumstances of the

case, the conclusion it has reached under Articles 3 and 8 of the Convention

(see paragraphs 206 and 226 above) constitutes sufficient just satisfaction in

respect of any non-pecuniary damage that may have been sustained by the

applicant. It therefore makes no award under this head.

B. Costs and expenses

232. The applicant further claimed EUR 9,411 in respect of the fees

payable to his lawyers for the preparation of the written observations they

had submitted to the Court prior to the request for referral to the Grand

Chamber. He submitted copies of the relevant invoices in support of his

claim, and stated that he had already paid approximately half of the fees,

that is, EUR 4,668, and was unable to pay the remainder.

233. In their observations before the Chamber the Government argued

that the applicant, as an alien, was presumed under domestic law to be in

financial need and thus eligible for legal aid, including for the expenses

linked to the proceedings before the Court.

234. Making its assessment on an equitable basis, the Court decides that

the sum of EUR 5,000 is to be paid to the applicant’s family in respect of

costs and expenses, plus any tax that may be chargeable to them (see,

mutatis mutandis, Karner,

cited above, § 50).

C. Default interest

235. The Court considers it appropriate that the default interest rate

should be based on the marginal lending rate of the European Central Bank,

to which should be added three percentage points.

FOR THESE REASONS, THE COURT, UNANIMOUSLY,

Holds

that there would have been a violation of Article 3 of the

Convention if the applicant had been removed to Georgia without the

Belgian authorities having assessed, in accordance with that provision,

the risk faced by him in the light of the information concerning his state

of health and the existence of appropriate treatment in Georgia;

Holds

that it is not necessary to examine the complaint under Article 2 of

the Convention;

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Holds

that there would have been a violation of Article 8 of the

Convention if the applicant had been removed to Georgia without the

Belgian authorities having assessed, in accordance with that provision,

the impact of removal on the applicant’s right to respect for his family

life in view of his state of health;

Holds

that the Court’s findings at points 1 and 3 above constitute in

themselves sufficient just satisfaction in respect of any non-pecuniary

damage that may have been sustained by the applicant;

Holds,

(a) that the respondent State is to pay the applicant’s family, within

three months, EUR 5,000 (five thousand euros), plus any tax that may be

chargeable to them, in respect of costs and expenses;

(b) that from the expiry of the above-mentioned three months until

settlement simple interest shall be payable on the above amount at a rate

equal to the marginal lending rate of the European Central Bank during

the default period plus three percentage points;

Dismisses

the remainder of the applicant’s claim for just satisfaction.

Done in English and in French, and delivered at a public hearing in the

Human Rights Building, Strasbourg, on 13 December 2016.

Johan Callewaert

Deputy to the Registrar

Guido Raimondi

President

In accordance with Article 45 § 2 of the Convention and Rule 74 § 2 of

the Rules of Court, the separate opinion of Judge Lemmens is annexed to

this judgment.

G.R.

J.C.

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PAPOSHVILI v. BELGIUM JUDGMENT

–

SEPARATE OPINION

CONCURRING OPINION OF JUDGE LEMMENS

(Translation)

1. I voted like my colleagues in the Grand Chamber in favour of the

(retroactive) finding of a procedural and conditional violation of both

Article 3 and Article 8 of the Convention. As I was a member of the

Chamber and voted then for finding no violation of those two Articles, I

would like to explain briefly why I changed my mind.

2. During the Chamber’s examination of the case I took the view that we

should follow the strict interpretation of Article 3 of the Convention applied

by the Court since the Grand Chamber judgment in

N. v. the United

Kingdom

([GC], no. 26565/05, ECHR 2008). On the basis of the strict

interpretation of the threshold of severity, I concluded with the majority of

the Chamber that the applicant’s removal would not entail a violation of

Article 3 (see paragraph 126 of the Chamber judgment of 17 April 2014).

Likewise, with regard to the refusal of the applicant’s request for

regularisation of his residence status, I agreed with the majority of the

Chamber that the State had not failed to comply with its positive obligations

under Article 8 of the Convention (see paragraph 155 of the Chamber

judgment).

3. With the referral of the present case to the Grand Chamber the

question arose whether strict application of the criterion established in

v. the United Kingdom,

without taking into consideration circumstances

other than the fact that the person concerned

was “close to death” (see

paragraph 181 of the present judgment), did not create a gap in the

protection against inhuman treatment. I have no difficulty finding, like my

colleagues in the Grand Chamber, that such a gap exists, and in clarifying

our case-law in order to fill that gap while at the same time maintaining a

high threshold for the application of Article 3 of the Convention (see, in

particular, paragraph 183 of the present judgment).

I also subscribe fully to the different manner in which the Grand

Chamber approaches the applicant’s complaint. Whereas the Chamber

examined whether the applicant’s removal would be compatible with the

prohibition of inhuman and degrading treatment, the Grand Chamber

stresses the primary responsibility of the national authorities when it comes

to examining the arguments advanced by aliens under Article 3 of the

Convention (see, in particular, paragraph 184 of the present judgment,

which highlights the fact that the machinery of application to the Court is

subsidiary to national systems safeguarding human rights).

From this fresh perspective I agree with my colleagues that the domestic

authorities did not have sufficient information in the present case for them

to conclude that, if the applicant were returned to Georgia, he would not

face a real and concrete risk of treatment contrary to Article 3, regard being

UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

PAPOSHVILI v. BELGIUM JUDGMENT

–

SEPARATE OPINION

had to the criterion established in

N. v. the United Kingdom

as clarified in

the present judgment.

4. As to the complaint under Article 8 of the Convention, the Grand

Chamber also takes a different approach from the Chamber. Whereas the

Chamber examined the refusal to regularise the applicant’s residence status

from the standpoint of proportionality, the Grand Chamber, here too,

focuses on the procedural obligations of the respondent State (see, in

particular, paragraph 224 of the present judgment, which again emphasises

that the machinery of application to the Court is subsidiary to national

systems safeguarding human rights).

On the basis of this new approach I cannot but agree with my Grand

Chamber colleagues that the domestic authorities’ assessment as to whether

the refusal of a residence permit was compatible with Article 8 of the

Convention was not based on all the relevant information in the present

case.

5. I would like to take this opportunity to draw attention to the fact that

the present judgment is not unrelated to developments occurring within

Belgium.

At the time of the Chamber judgment some formations of the Aliens

Appeals Board had already shown reluctance to apply strictly the criterion

established in

N. v. the United Kingdom

(see paragraph 102 of the present

judgment). Since then, the

Conseil d’État

has endorsed their approach (see

paragraphs 103-05 of the present judgment) and the Aliens Appeals Board

has consolidated this line of case-law in a number of judgments given by the

full Board. Admittedly, this case-law relates to the interpretation of a rule of

domestic law (section 9ter of the Aliens Act, concerning the possibility of

granting a residence permit on medical grounds), but it is also relevant to

the interpretation of Article 3 of the Convention. It emerges from the

judgments of the full Aliens Appeals Board that an obstacle to the removal

of an alien who is ill may arise not only where there is an imminent threat to

his or her life or physical integrity (a situation in which removal would be

contrary to Article 3 of the Convention according to the Court’s case-law

since

N. v. the United Kingdom),

but also where there is a risk of inhuman

or degrading treatment if no appropriate treatment exists in the receiving

country (see paragraphs 106-07 of the present judgment).

To my mind, by emphasising that, in addition to the risk to life (a real

and present danger to life or physical integrity), there is also a risk of

inhuman or degrading treatment, the Aliens Appeals Board was able to draw

the Court’s attention to the issue raised by its case-law. The present

judgment may be seen as the Court’s response to the concerns expressed by

the Aliens Appeals Board.

UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

6 marts 2018

Udlændinge og Integrationsministeriet

S otsho msgade 10

1216 København K

e 61 98 40 00

Ma u m@u m dk

Web www u m dk

CVR nr 36 97 71 91

Aktdetaljer

Akttitel: (20161) UUI alm. del - foreløbigt svar på spm. 665

Aktnummer: 3

UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

== AKT 305750 == Dokument 1 == (20161) UUI alm. del - foreløbigt svar på spm. 665 ==

[email protected] ( [email protected]), Johanne.Schm dt-N e [email protected] (Johanne.Schm dt-N e [email protected])

Lou se N e sen ( n @u m.dk), Ann ka Fa kvard (anfa@u m.dk), Morten V umsen (Morten.V [email protected]), [email protected]

([email protected])

Sof e Odgaard (sod@u m.dk)

Fra:

Titel:

(20161) UUI a m. de - fore øb gt svar på spm. 665

Sendt:

19-10-2017 11:44:40

Bilag:

UUI a m. de - fore øb gt svar på spm. 665.docx;

Til:

Cc:

UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

6 marts 2018

Udlændinge og Integrationsministeriet

S otsho msgade 10

1216 København K

e 61 98 40 00

Ma u m@u m dk

Web www u m dk

CVR nr 36 97 71 91

Aktdetaljer

Akttitel: Udkast til besvarelse af spørgsmål nr. 665

Aktnummer: 11

UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

Domstolen slår i

præmis 178

fast, at der også kan være andre ekstraordinære

tilfælde ”other ver e eptio al ases” . Do stole har dog ikke tidligere for-

holdt sig til, hvori disse andre ekstraordinære tilfælde består.

Domstolen bemærker herefter i

præmis 181,

at den ved sin fortolkning af, at det

kun er i situationer, hvor en person er i terminalstadiet, at en udvisning vil stride

mod artikel 3, har frataget udlændinge, som er alvorligt syge, men hvis tilstand er

mindre kritisk end udlændinge i terminalstadiet, muligheden for beskyttelsen i

artikel 3.

præmis 182

markerer domstolen, at retstilstanden nu ændres. Domstolen vil

således afklare praksis og redegøre nærmere for,

hvor år der ka foreligge ”andre

meget ekstraordinære sager”.

Præmis 183

er herefter den centrale præmis i dommen. Domstolen udtaler såle-

des, at der ved

”meget

ekstraordinære tilfælde” forstås situationer, hvor der er

vægtige grunde til at antage, at den pågældende, selvom døden ikke er nært fore-

stående, vil blive udsat for en virkelig risiko, som følge af mangel på passende

behandling i modtagerstaten eller manglende adgang til sådan behandling, for at

blive udsat for en alvorlig, hurtig og uoprettelig forværri

g ”serious, rapid a d

irreversi le de li e” i vedko

e des hel redstilsta d, der vil resultere i i te s

lidelse eller i en væsentlig reduktion i forventet restlevetid. Domstolen understre-

ger at dette er i overensstemmelse med den høje tærskel for anvendelse af artikel

3 i sager om udsendelse af alvorligt syge udlændinge.

Herefter indfører domstolen i

præmis 185

en sagsbehandlingspligt for de nationa-

le myndigheder.

Det er i første omgang op til udlændingen at føre bevis for den påståede risiko.

Udlændingen skal således fremlægge beviser, der godtgør, at der er vægtige

grunde til at tro, at der kan være tale om en artikel 3-situation (præmis

186).

Hvis

udlændingen kan føre bevis for den påståede risiko, er det op til staten at afkræf-

te tvivlen. Det forudsætter en indgående prøvelse af de forudsigelige konsekven-

ser af en udsendelse, hvor der lægges vægt på de generelle oplysninger om mod-

tagerstaten og oplysningerne om den individuelle udlænding, hvilket omfatter en

sammenligning af udlændingens helbredstilstand henholdsvis før og efter udsen-

delse (præmis

187).

Domstolen bemærker, at der ved vurderingen lægges vægt på, om den behand-

ling, der er generelt tilstrækkelig i modtagerstaten, er tilstrækkelig og passende til

at sikre, at udlændingen ikke udsættes for en behandling i strid med artikel 3, og

det afgørende er således ikke behandlingsniveauet i den udvisende stat, eller om

behandlingen i modtagerstaten er på et sammenligneligt niveau, ligesom artikel 3

ikke sikrer ret til en behandling i modtagerstaten, der ikke er generelt tilgængelig

(præmis

188-189).

Myndighederne skal undersøge, om behandlingen generelt er tilgængelig i hjem-

landet.

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UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

Det følger herefter af

præmis 190,

at myndighederne også skal overveje, om ud-

lændingen rent faktisk har adgang til at modtage behandlingen i hjemlandet, hvil-

ket omfatter spørgsmål om tilgængelig både med hensyn til afstand og omkost-

ninger. Domstolen henviser i den forbindelse til sin hidtidige praksis på området.

Hvis der herefter foreligger alvorlig tvivl med hensyn til konsekvenserne for den

syge udlænding i tilfælde af udsendelse, kan den udvisende stat have pligt til at

opnå en individuel og tilstrækkelig garanti fra modtagerstaten om, at behandlin-

gen eksisterer og vil være tilgængelig for udlændingen, inden en udsendelse gen-

nemføres (præmis

191).

Det forhold, at modtagerstaten er en medlemsstat, der også er bundet af konven-

tionen, er ikke i sig selv afgørende for, om udsendelse vil være i strid med konven-

tionen (præmis

192).

I forhold til den konkrete sag, som dommen vedrører, var der tale om en geor-

gisk statsborger (Georgie Paposhvili), som kom til Belgien i 1998 med sin kone og

et barn. Han fik sidenhen to børn mere. Han fik afslag på asyl og på opholdstilla-

delse på andet grundlag. Fra 1999 og frem til 2005 blev Paposhvili dømt for adskil-

lige lovovertrædelser, og han blev derfor udvist på grund af den begåede krimina-

litet.

Under afsoning af en fængselsstraf i 2006 fik han konstateret bl.a. leukæmi. Han

modtog forskellig behandling, og hans forventede levetid blev i 2008 vurderet til

at være 3-5 år. Sygdommen forværredes, og i 2012 vurderede en læge, at ophør

af behandlingen ville føre til Paposhvilis død. I 2015 vurderede en læge, at ophør

af behandling ville medføre en forventet levetid på tre måneder, samt at

Paposhvili ikke havde adgang til behandlingen i Georgien.

Paposhvili søgte flere gange om opholdstilladelse af humanitære årsager under

henvisning til, at det ikke var muligt at få behandling for hans leukæmi i Georgien.

Han fik imidlertid afslag med henvisning til, at han var udelukket fra at få opholds-

tilladelse efter belgisk lovgivning på grund af den begåede kriminalitet. De belgi-

ske myndigheder foretog derfor ikke yderligere undersøgelser i sagen i forhold til

Belgiens internationale forpligtelser.

Paposhvili indbragte herefter sagen for Den Europæiske Menneskerettigheds-

domstol med påstand om, at hans udvisning til Georgien ville sætte ham i fare for

umenneskelig behandling og en tidligere død på grund af, at behandlingen, som

han havde modtaget i Belgien, ikke var tilgængelig i Georgien. I 2016 døde

Paposhvili i Belgien, men menneskerettighedsdomstolen valgte at behandle sagen

alligevel.

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UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

Menneskerettighedsdomstolen fastslog i sin dom, at Belgien ville have krænket

den Europæiske Menneskeretskonvention (EMRK) artikel 3 (om forbud mod tor-

tur og umenneskelig eller nedværdigende behandling eller straf) og artikel 8 (om

ret til privat- og familieliv), hvis Paposhvili var blevet udsendt af Belgien til Georgi-

en, idet Belgien i den konkrete sag ikke havde overholdt sin undersøgelsespligt.

I den artikel, der henvises til i spørgsmålet, anfører forfatteren, at han mener,

at Den Europæiske Menneskerettighedsdomstols dom i

Paposhvili mod Belgien

bør føre til, at Udlændinge- og Integrationsministeriet ændrer sin praksis for

meddelelse af humanitær opholdstilladelse.

Forfatteren anfører, at Domstolen i Paposhvili har lempet sygdomskriteriet og

skærpet undersøgelseskravet. Forfatteren anfører således, at det ikke længere er

tilstrækkeligt blot at undersøge, om en udlænding lider af en terminal sygdom.

Der bør herudover foretages en konkret og individuel vurdering af, om udlændin-

gen vil have adgang til den nødvendige behandling og pleje i hjemlandet, herun-

der i forhold til økonomi, sociale og familiemæssige netværk og afstand til be-

handling.

Forfatteren anfører endvidere, at den danske praksis for meddelelse af humani-

tær opholdstilladelse synes at være i overensstemmelse med Den Europæiske

Menneskerettighedsdomstols tidligere praksis om staters undersøgelsespligt,

hvorefter det ansås for tilstrækkeligt at vurdere de generelle behandlingsmulig-

heder i hjemlandet.

Forfatteren finder imidlertid, at Udlændinge- og Integrationsministeriet på bag-

grund af dommen bør ændre praksis, så udlændingens reelle behandlingsmulig-

heder i hjemlandet undersøges, og der foretages en konkret og individuel vurde-

ring af, om udlændingen vil have adgang til den nødvendige behandling og pleje i

hjemlandet, herunder i forhold til økonomi, sociale- og familiemæssigt netværk og

afstand til behandling.

Forfatteren finder på den baggrund, at ministeriet er forpligtet til at indrette sin

praksis efter EMD-praksis, der efter forfatterens opfattelse i meget vidt omfang

svarer til dansk praksis før praksisændringen i 2010.

Hidtil har Domstolen i sin praksis antaget, at personer, der lider af en alvorlig syg-

dom i terminalstadiet, er omfattet af beskyttelsen i artikel 3. Men Domstolen har

også a ført, at der ku e være a dre ”meget

ekstraordinære tilfælde”,

hvor e

alvorligt syg person er omfattet af denne beskyttelse.

I dommen finder Domstolen så for første gang anledning til at præcisere, hvad der

ær ere ligger i disse a dre ” eget ekstraordi ære tilfælde”,

hvor udsendelse af

en alvorligt syg udlænding vil rejse spørgsmål i forhold til Den Europæiske Menne-

skerettighedskonventions artikel 3, selvom døden ikke er nært forestående.

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Der er også efter Den Europæiske Menneskerettighedsdomstols dom i

Paposhvili

mod Belgien

en meget høj tærskel, før et forhold er omfattet af EMRK artikel 3.

Bestemmelsen vil således fortsat kun blive krænket, hvis der foreligger meget

ekstraordinære omstændigheder. Det drejer sig om de grupper af alvorligt syge

udlændinge, for hvem det må antages, at udlændingen uden behandling i hjem-

landet er i reel risiko for at blive udsat for en alvorlig, hurtig og uoprettelig forvær-

ring i vedkommendes helbredstilstand, der vil resultere i intens lidelse eller i en

væsentlig reduktion i forventet restlevetid (præmis

183).

Der kan efter udlændingelovens § 9 b, stk. 1, meddeles humanitær opholdstilla-

delse, hvis ”væse tlige he s af hu a itær

karakter afgørende taler for at imø-

deko

e a søg i ge ”.

Afgørelsen af, om der foreligger sådanne særlige huma-

nitære hensyn, som kan begrunde opholdstilladelse efter den nævnte bestem-

melse, beror på et skøn.

I praksis er udlændingens helbredsforhold et kerneområde for bestemmelsens

anvendelse. Helbredsbetinget humanitær opholdstilladelse forudsætter, at ud-

lændingen lider af en meget alvorlig behandlingskrævende sygdom (sygdomskri-

teriet). Derudover stilles der som altovervejende udgangspunkt krav om, at be-

handling ikke er tilgængelig i ansøgerens hjemland (kriteriet om fravær af behand-

lingsmuligheder i hjemlandet).

Efter Udlændinge- og Integrationsministeriets praksis anses sygdomskriteriet for

opfyldt, hvis der er tale om en meget alvorlig fysisk eller psykisk sygdom. Det kan

f.eks. være tilfældet, hvis en ansøger lider af meget alvorlige hjertesygdomme,

nyresygdomme, tarmsygdomme, blodsygdomme, insulinkrævende diabetes samt

egentlige sindssygdomme, hvor den pågældende lider af en psykose f.eks. parano-

id psykose og skizofreni. Opremsningen er ikke udtømmende.

Sygdomskriteriet vil efter Udlændinge- og Integrationsministeriets praksis kunne

være opfyldt i sager, hvor en udlænding lider af en sygdom, hvor en manglende

behandling ikke vil medføre en alvorlig, hurtig og uoprettelig forværring i ved-

kommendes helbredstilstand med intens lidelse eller væsentlig reduktion i den

forventede restlevetid til følge.

For det andet medfører dommen en udvidet undersøgelsespligt i de særlige sager,

som er omfattet af dommen.

Det fremgår af dommen, at myndighederne fra sag til sag skal overveje, om den

behandling, der generelt er tilgængelig i modtagerstaten, er tilstrækkelig og pas-

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UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

sende til den pågældendes sygdom, således at vedkommende ikke udsættes for

behandling i strid med artikel 3 (præmis

189).

Det er i første omgang op til udlændingen at føre bevis for den påståede risiko.

Hvis udlændingen fremlægge beviser, så der er vægtige grunde til at antage, at

det vil kunne stride mod artikel 3 at udsende den pågældende, vil det være op til

staten at afkræfte tvivlen.

Det er en betingelse for at meddele helbredsbetinget humanitær opholdstilladel-

se til en ansøger, der lider af en meget alvorlig fysisk eller psykisk sygdom, at an-

søgeren ikke har adgang til den nødvendige behandling i sit hjemland (kriteriet om

fravær af behandlingsmuligheder i hjemlandet).

Efter gældende praksis er det op til udlændingen at fremlægge oplysninger om, at

vedkommende lider af en alvorlig sygdom og modtager behandling herfor.

Udlændinge- og Integrationsministeriet foretager herefter efter praksis allerede

en vurdering af, hvorvidt den pågældende har adgang til medicin i de sager, hvor

ministeriet har fundet, at den pågældende lider af en meget alvorlig sygdom.

Domstolen anfører herudover, at myndighederne skal overveje, i hvilken ud-

strækning den pågældende

faktisk

vil have adgang til behandling i modtagersta-

ten (præmis

190).

Domstolen bemærker i den forbindelse (i overensstemmelse

med dens tidligere afsagte domme), at staterne bl.a. skal overveje omkostninger

ved medicinering og behandling, om der er et tilgængeligt socialt og familiemæs-

sigt netværk, og den distance, der skal rejses for at få adgang til den nødvendige

pleje.

Domstolen har ikke i dommen udtalt sig om, hvornår undersøgelsespligten ind-

træder, udover at der skal foreligge vægtige grunde. Det følger dog heraf, at der

skal noget til.

Efter Udlændinge- og Integrationsministeriets gældende praksis vil det normalt

være uden betydning for meddelelse af en helbredsbetinget opholdstilladelse, om

en given behandling alene er tilgængelig i f.eks. privat regi mod egenbetaling,

ligesom egenbetalingens størrelse som udgangspunkt er uden betydning. Det er

endvidere ikke en betingelse, at den behandling, som er tilgængelig i hjemlandet,

er af samme karakter som den behandling, der tilbydes i det danske sundhedsvæ-

sen, så længe der foreligger oplysninger fra hjemlandets sundhedsmyndigheder

eller andre relevante aktører om, at den pågældende sygdom rent faktisk kan

behandles i hjemlandet.

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Det er desuden normalt uden betydning, at den nødvendige behandling er tilgæn-

gelig på apoteker med videre i hele hjemlandet. Såfremt det pågældende land

asylretligt anses for ét land, vil en ansøger således kunne henvises til at modtage

den foreskrevne behandling i en anden del af landet også, selvom den pågælden-

de var bosiddende et andet sted i hjemlandet inden sin udrejse.

Udlændinge- og Integrationsministeriet har hidtil alene undersøgt spørgsmål om

f.eks. omkostninger ved medicin og afstand til behandling i de sager, hvor det på

baggrund af sagens oplysninger umiddelbart blev skønnet, at ansøgeren opfylder

den høje tærskel for meddelelse af humanitær opholdstilladelse.

Ministeriet har således kun lagt vægt på prisen af behandlingen, hvis der er kon-

krete holdepunkter for, at der er tale om en meget dyr behandling. Justitsministe-

riet har således f.eks. behandlet en sag, hvor der var oplysninger om, at en ansø-

ger led af en meget alvorlig fysisk sygdom, hvor den livsnødvendige medicin her i

landet kostede mere end 80.000 kr. om måneden. På den baggrund blev det be-

sluttet at undersøge, hvad behandlingen i hjemlandet ville koste. Ministeriets

undersøgelse af prisen på medicinen i hjemlandet blev imidlertid ikke tilende-

bragt, da den nødvendige behandling efterfølgende viste sig ikke at være tilgæn-

gelig.

Der har endvidere som efter hidtidig praksis i ekstraordinære tilfælde kunne

meddele humanitær opholdstilladelse, hvis det vil være farefuldt for en ansøger at

nå frem til behandlingsstedet, og den pågældende f.eks. på grund af sin sygdom

ikke vil være i stand til at bosætte sig i den del af landet, hvor behandlingen er

tilgængelig.

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For det tredje åbner Domstolen også op for, at man i sager, hvor der efter den

udvidede undersøgelse er alvorlig tvivl om konsekvenserne af en udsendelse, alli-

gevel har mulighed for at udsende den pågældende ved brug af en individuel og

tilstrækkelig garanti fra modtagerstaten.

Udlændinge- og Integrationsministeriet har ikke hidtil overvejet at anvende garan-

tier i sager om humanitær opholdstilladelse.

I den konkrete sag

Paposhvili mod Belgien

var Paposhvili udelukket fra at blive

meddelt opholdstilladelse som følge af, at han havde begået kriminalitet i Belgien.

De belgiske myndigheder undersøgte på den baggrund ikke, om den behandling,

som Paposhvili havde brug for, var tilgængelig i hjemlandet.

Der er ligeledes efter dansk ret mulighed for at udelukke en udlænding fra op-

holdstilladelse, hvis pågældende har begået kriminalitet.

Det følger således af udlændingelovens § 10, stk. 4, at en udlænding, der har ind-

rejseforbud, ikke kan gives opholdstilladelse efter udlændingelovens §§ 9-9 f, §§ 9

i-9 n eller 9 p, medmindre ganske særlige grunde taler derfor, dog tidligst to år

efter udrejsen, jf. udlændingelovens § 10, stk. 4. Kravet om, at der skal være for-

løbet to år fra udrejsen, gælder dog ikke for en udlænding, som ikke er EU-borger,

og som er udvist efter udlændingelovens § 25 b (om ulovligt ophold), jf. § 10, stk.

4, 2. pkt.

Efter praksis vil en udlænding, som er udvist af Danmark ved dom med et indrej-

seforbud, således være udelukket fra at blive meddelt humanitær opholdstilladel-

se, hvis vedkommende ikke har været udrejst i to år.

Det følger af udlændingelovens § 50, stk. 1, at en udlænding, der er udvist ved

dom, som ikke har været udrejst af Danmark, og som påberåber sig, at der er ind-

trådt væsentlige ændringer i udlændingens forhold, jf. udlændingelovens § 26,

kan begære spørgsmålet om udvisningens ophævelse indbragt for retten. Hvis

retten ophæver udvisningen, vil udlændingen kunne meddeles humanitær op-

holdstilladelse efter § 9 b, stk. 1, hvis den pågældende i øvrigt opfylder betingel-

serne herfor.

Efter praksis har Udlændinge- og Integrationsministeriet hidtil som udgangspunkt

ikke nærmere undersøgt sygdommens karakter samt tilgængeligheden af medicin

i hjemlandet i de sager, hvor udlændingen er udelukket efter udlændingelovens §

10, stk. 4.

Selvom Paposhvili var udelukket fra opholdstilladelse, på grund af at han havde

begået kriminalitet, fandt domstolen i

Paposhvili mod Belgien,

at det ville have

udgjort en krænkelse af EMRK artikel 3, hvis Paposhvili var blevet udsendt af Bel-

gien, da de belgiske myndigheder ikke havde undersøgt, om der var medicin til-

gængeligt i hjemlandet.

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Såfremt udlændingen ikke ønsker at indbringe spørgsmålet om ophævelse af ud-

visningen for retten, eller retten ikke har fundet anledning til at ophæve udvisnin-

gen, jf. udlændingelovens § 50, men ministeriet vurderer, at den pågældende vil

være i en situation, som vil stride mod artikel 3, vil ministeriet således fremadret-

tet henvise den pågældende til tålt ophold, indtil vedkommende kan udsendes af

landet. Det skyldes, at udlændingelovens § 10 udtømmende regulerer adgangen

til at meddele opholdstilladelse til udlændinge med indrejseforbud. En udlænding

med et indrejseforbud, der har fået afslag på asyl, vil derfor ikke kunne meddeles

humanitær opholdstilladelse efter udlændingelovens § 9 b, stk. 1, selv om den

pågældende ikke for tiden kan udsendes.

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UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

I henhold til Den Europæiske Menneskerettighedskonventions artikel 3 må ingen

underkastes tortur og ej heller umenneskelig eller nedværdigende behandling

eller straf.

Den Europæiske Menneskerettighedsdomstol har i

Paposhvili mod Belgien

rede-

gjort for, hvad der skal forstås ved andre meget ekstraordinære tilfælde.

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UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

6 marts 2018

Udlændinge og Integrationsministeriet

S otsho msgade 10

1216 København K

e 61 98 40 00

Ma u m@u m dk

Web www u m dk

CVR nr 36 97 71 91

Aktdetaljer

Akttitel: (20161) UUI alm. del - svar på spm. 665

Aktnummer: 13

UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

== AKT 365919 == Dokument 1 == (20161) UUI alm. del - svar på spm. 665 ==

Til:

Cc:

[email protected] ( [email protected]), johanne.schm dt-n e [email protected] (johanne.schm dt-n e [email protected])

Amanda Husted S monsen (mnhs@u m.dk), Stephan e P ontek (stp@u m.dk), morten.v [email protected] (morten.v [email protected]),

[email protected] ([email protected])

Ann ka Fa kvard (anfa@u m.dk)

Fra:

Titel:

(20161) UUI a m. de - svar på spm. 665

Sendt:

02-02-2018 13:19:13

Bilag:

UUI a m. de - svar på spm. 665.docx;

UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

situationen, som forelå i sagen

D mod Storbritannien.

Domstolen anførte imidler-

tid ikke, hvori disse andre ekstraordinære tilfælde består.

I Paposhvili-dommens

præmis 182

markerer Domstolen, at retstilstanden præci-

seres. Domstolen vil således afklare praksis og redegøre nærmere for, hvornår der

ka foreligge ”andre

meget ekstraordinære tilfælde”.

Præmis 183

er herefter den centrale præmis i dommen. Domstolen udtaler såle-

des, at der ved ” eget ekstraordi ære tilfælde” forstås situatio er, hvor der er

vægtige grunde til at antage, at den pågældende, selvom døden ikke er nært fore-

stående, vil blive udsat for en virkelig risiko, som følge af mangel på passende

behandling i modtagerstaten eller manglende adgang til sådan behandling, for at

blive udsat for en alvorlig, hurtig

og uoprettelig forværri g ”serious, rapid a d

irreversi le de li e” i vedko

e des hel redstilsta d, der vil resultere i i te s

lidelse eller i en væsentlig reduktion i forventet restlevetid. Domstolen understre-

ger, at dette er i overensstemmelse med den høje tærskel for anvendelse af arti-

kel 3 i sager om udsendelse af alvorligt syge udlændinge.

Herefter indfører Domstolen i

præmis 185

en sagsbehandlingspligt for de nationa-

le myndigheder.

Det er i første o ga g op til udlæ di ge at føre evis ”addu e evide e” for

den påståede risiko. Udlændingen skal således fremlægge beviser, der godtgør, at

der er vægtige grunde til at tro, at der kan være tale om en artikel 3-situation

(præmis

186).

Hvis udlændingen kan føre bevis for den påståede risiko, er det op

til staten at afkræfte tvivlen. Det forudsætter en indgående prøvelse af de forud-

sigelige konsekvenser af en udsendelse, hvor der lægges vægt på de generelle

oplysninger om modtagerstaten og oplysningerne om den individuelle udlænding,

hvilket omfatter en sammenligning af udlændingens helbredstilstand henholdsvis

før og efter udsendelse (præmis

187).

Domstolen bemærker, at der ved vurderingen lægges vægt på, om den behand-

ling, der er generelt tilgængelig i modtagerstaten, er tilstrækkelig og passende til

at sikre, at udlændingen ikke udsættes for en behandling i strid med artikel 3, og

det afgørende er således ikke behandlingsniveauet i den udvisende stat, eller om

behandlingen i modtagerstaten er på et sammenligneligt niveau, ligesom artikel 3

ikke sikrer ret til en behandling i modtagerstaten, der ikke er tilgængelig for resten

af befolkningen (præmis

188-189).

Myndighederne skal undersøge, om behandlingen generelt er tilgængelig i hjem-

landet.

Det følger herefter af

præmis 190,

at myndighederne også skal overveje, om ud-

lændingen rent faktisk har adgang til at modtage behandlingen i hjemlandet, hvil-

ket omfatter spørgsmål om tilgængelighed både med hensyn til afstand og om-

kostninger. Domstolen henviser i den forbindelse til sin hidtidige praksis på områ-

det.

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UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

Hvis der herefter foreligger alvorlig tvivl med hensyn til konsekvenserne for den

syge udlænding i tilfælde af udsendelse, kan den udvisende stat have pligt til at

opnå en individuel og tilstrækkelig garanti fra modtagerstaten om, at behandlin-

gen eksisterer og vil være tilgængelig for udlændingen, inden en udsendelse gen-

nemføres (præmis

191).

Det forhold, at modtagerstaten er en medlemsstat, der også er bundet af konven-

tionen, er ikke i sig selv afgørende for, om udsendelse vil være i strid med konven-

tionen (præmis

193).

I forhold til den konkrete sag, som dommen vedrører, var der tale om en geor-

gisk statsborger (Georgie Paposhvili), som kom til Belgien i 1998 med sin kone og

et barn. Han fik sidenhen to børn mere. Han fik afslag på asyl og på opholdstilla-

delse på andet grundlag. Fra 1999 og frem til 2005 blev Paposhvili dømt for adskil-

lige lovovertrædelser, og han blev derfor udvist på grund af den begåede krimina-

litet.

Under afsoning af en fængselsstraf i 2006 fik han konstateret bl.a. leukæmi. Han

modtog forskellig behandling, og hans forventede levetid blev i 2008 vurderet til

at være 3-5 år. Sygdommen forværredes, og i 2012 vurderede en læge, at ophør

af behandlingen kunne føre til Paposhvilis død. I 2015 vurderede en læge, at op-

hør af behandling ville medføre en forventet levetid på tre måneder, samt at

Paposhvili ikke havde adgang til behandlingen i Georgien.

Paposhvili søgte flere gange om opholdstilladelse af humanitære årsager under

henvisning til, at det ikke var muligt at få behandling for hans leukæmi i Georgien.

Han fik imidlertid afslag med henvisning til, at han var udelukket fra at få opholds-

tilladelse efter belgisk lovgivning på grund af den begåede kriminalitet. De belgi-

ske myndigheder foretog derfor ikke yderligere undersøgelser i sagen i forhold til

Belgiens internationale forpligtelser.

Paposhvili indbragte herefter sagen for Den Europæiske Menneskerettigheds-

domstol med påstand om, at hans udvisning til Georgien ville sætte ham i fare for

umenneskelig behandling og en tidligere død på grund af, at behandlingen, som

han havde modtaget i Belgien, ikke var tilgængelig i Georgien. I 2016 døde

Paposhvili i Belgien, men da de efterladte ønskede at fortsætte sagen, fortsatte

Menneskerettighedsdomstolen behandlingen.

Menneskerettighedsdomstolen fastslog i sin dom, at Belgien ville have krænket

Den Europæiske Menneskeretskonventions (EMRK) artikel 3 (om forbud mod

tortur og umenneskelig eller nedværdigende behandling eller straf) og artikel 8

(om ret til privat- og familieliv), hvis Paposhvili var blevet udsendt af Belgien til

Georgien, idet Belgien i den konkrete sag ikke havde overholdt sin undersøgelses-

pligt.

I den artikel, der henvises til i spørgsmålet, anfører forfatteren, at han mener,

at Den Europæiske Menneskerettighedsdomstols dom i Paposhvili-sagen bør føre

til, at Udlændinge- og Integrationsministeriet ændrer sin praksis for meddelelse af

humanitær opholdstilladelse.

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Forfatteren anfører, at Domstolen med Paposhvili-dommen har lempet sygdoms-

kriteriet og skærpet undersøgelseskravet. Forfatteren anfører således, at det ikke

længere er tilstrækkeligt blot at undersøge, om en udlænding lider af en terminal

sygdom. Der bør herudover foretages en konkret og individuel vurdering af, om

udlændingen vil have adgang til den nødvendige behandling og pleje i hjemlandet,

herunder i forhold til økonomi, sociale og familiemæssige netværk og afstand til

behandling.

Forfatteren anfører endvidere, at den danske praksis for meddelelse af humani-

tær opholdstilladelse synes at være i overensstemmelse med Den Europæiske

Menneskerettighedsdomstols tidligere praksis om staters undersøgelsespligt,

hvorefter det ansås for tilstrækkeligt at vurdere de generelle behandlingsmulig-

heder i hjemlandet.

Forfatteren finder imidlertid, at Udlændinge- og Integrationsministeriet på bag-

grund af dommen bør ændre praksis, så udlændingens reelle behandlingsmulig-

heder i hjemlandet undersøges, og der foretages en konkret og individuel vurde-

ring af, om udlændingen vil have adgang til den nødvendige behandling og pleje i

hjemlandet, herunder i forhold til økonomi, sociale og familiemæssige netværk og

afstand til behandling.

Forfatteren finder på den baggrund, at ministeriet er forpligtet til at indrette sin

praksis efter EMD-praksis, der efter forfatterens opfattelse i meget vidt omfang

svarer til dansk praksis før praksisændringen i 2010.

Det er Udlændinge- og Integrationsministeriet opfattelse, at Paposhvili-

dommen grundlæggende handler om tre ting.

Hidtil har Domstolen i sin praksis antaget, at personer, der lider af en alvorlig syg-

dom i terminalstadiet, er omfattet af beskyttelsen i artikel 3. Men Domstolen har

æv t i

a ført, at der ku e være a dre ” eget ekstraordi ære tilfæl-

de”, hvor e alvorligt s g perso er o fattet af de e

beskyttelse.

I Paposhvili-dommen finder Domstolen så for første gang anledning til at præcise-

re, hvad der ær ere ligger i disse a dre ” eget ekstraordi ære tilfælde”, hvor

udsendelse af en alvorligt syg udlænding vil rejse spørgsmål i forhold til EMRK

artikel 3, selvom døden ikke er nært forestående.

Der er også efter Paposhvili-dommen en meget høj tærskel, før et forhold er om-

fattet af EMRK artikel 3. Bestemmelsen vil således fortsat kun blive krænket, hvis

der foreligger meget ekstraordinære tilfælde. Det drejer sig om de grupper af

alvorligt syge udlændinge, for hvem det må antages, at udlændingen uden be-

handling i hjemlandet er i reel risiko for at blive udsat for en alvorlig, hurtig og

uoprettelig forværring i vedkommendes helbredstilstand, der vil resultere i intens

lidelse eller i en væsentlig reduktion i forventet restlevetid (præmis

183).

Der kan efter udlændingelovens § 9 b, stk. 1, meddeles humanitær opholdstilla-

delse, hvis ”væse tlige he s af hu a itær karakter afgøre de taler for at i

ø-

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deko

e a søg i ge ”.

Afgørelsen af, om der foreligger sådanne særlige huma-

nitære hensyn, som kan begrunde opholdstilladelse efter den nævnte bestem-

melse, beror på et skøn.

I praksis er udlændingens helbredsforhold et kerneområde for bestemmelsens

anvendelse. Helbredsbetinget humanitær opholdstilladelse forudsætter, at ud-

lændingen lider af en meget alvorlig behandlingskrævende sygdom (sygdomskri-

teriet). Derudover stilles der som altovervejende udgangspunkt krav om, at be-

handling ikke er tilgængelig i ansøgerens hjemland (kriteriet om fravær af behand-

lingsmuligheder i hjemlandet).

Efter Udlændinge- og Integrationsministeriets praksis anses sygdomskriteriet for

opfyldt, hvis der er tale om en meget alvorlig fysisk eller psykisk sygdom. Det kan

f.eks. være tilfældet, hvis en ansøger lider af meget alvorlige hjertesygdomme,

nyresygdomme, tarmsygdomme, blodsygdomme, insulinkrævende diabetes samt

egentlige sindssygdomme, hvor den pågældende lider af en psykose f.eks. parano-

id psykose og skizofreni. Opremsningen er ikke udtømmende.

Sygdomskriteriet vil efter Udlændinge- og Integrationsministeriets praksis kunne

være opfyldt selv i sager, hvor en udlænding lider af en sygdom, hvor en mang-

lende behandling ikke vil medføre en alvorlig, hurtig og uoprettelig forværring i

vedkommendes helbredstilstand med intens lidelse eller væsentlig reduktion i den

forventede restlevetid til følge.

På den baggrund finder Udlændinge- og Integrationsministeriet ikke på baggrund

af dommen anledning til at ændre praksis for fortolkning af sygdomskriteriet, som

allerede efter dansk praksis omfatter såvel uhelbredelige sygdomme i terminal-

stadiet som andre meget alvorlige sygdomme. Ministeriet har således ikke fundet

holdepunkter i dommen for, at den danske fortolkning af sygdomskriteriet er for

snæver.

For det andet medfører dommen en udvidet undersøgelsespligt i de særlige sager,

som er omfattet af dommen.

Det fremgår af dommen, at myndighederne fra sag til sag skal overveje, om den

behandling, der generelt er tilgængelig i modtagerstaten, er tilstrækkelig og pas-

sende til den pågældendes sygdom, således at vedkommende ikke udsættes for

behandling i strid med artikel 3 (præmis

189).

Det er i første omgang op til udlændingen at føre bevis for den påståede risiko.

Hvis udlændingen fremlægger beviser, så der er vægtige grunde til at antage, at

det vil kunne stride mod artikel 3 at udsende den pågældende, vil det være op til

staten at afkræfte tvivlen.

Det er en betingelse for at meddele helbredsbetinget humanitær opholdstilladel-

se til en ansøger, der lider af en meget alvorlig fysisk eller psykisk sygdom, at an-

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UUI, Alm.del - 2018-19 (1. samling) - Bilag 41: Fremsendelse af aktindsigtsafgørelser som angivet ved besvarelsen af UUI 238, fra udlændinge- og integrationsministeriet

søgeren ikke har adgang til den nødvendige behandling i sit hjemland (kriteriet om

fravær af behandlingsmuligheder i hjemlandet).

Efter gældende praksis er det op til udlændingen at fremlægge oplysninger om, at

vedkommende lider af en alvorlig sygdom og modtager behandling herfor.

Udlændinge- og Integrationsministeriet foretager herefter efter praksis allerede

en vurdering af, hvorvidt den pågældende har adgang til medicin i de sager, hvor

ministeriet har fundet, at den pågældende lider af en meget alvorlig sygdom.

Udlændinge- og Integrationsministeriet vurderer på den baggrund ikke, at der er

behov for at justere ministeriet fortolkning af, hvornår medicin og behandling

generelt er tilgængeligt.

Domstolen anfører herudover, at myndighederne skal overveje, i hvilken ud-

strækning den pågældende

faktisk

vil have adgang til behandling i modtagersta-

ten (præmis

190).

Domstolen bemærker i den forbindelse (i overensstemmelse

med dens tidligere afsagte domme), at staterne bl.a. skal overveje omkostninger

ved medicinering og behandling, om der er et tilgængeligt socialt og familiemæs-

sigt netværk, og den distance, der skal rejses for at få adgang til den nødvendige

pleje.

Domstolen har ikke i dommen udtalt sig om, hvornår undersøgelsespligten ind-

træder, udover at der skal foreligge vægtige grunde. Det følger dog heraf, at der

skal noget til.

Efter Udlændinge- og Integrationsministeriets gældende praksis vil det normalt

være uden betydning for meddelelse af en helbredsbetinget opholdstilladelse, at