# EUR-Lex - 52014DC0225 - EN

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# 52014DC0225

**REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL AND THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE on the application of Council Regulation (EC) No 2201/2003 concerning jurisdiction and the recognition and enforcement of judgements in matrimonial matters and the matters of parental responsibility, repealing Regulation (EC) No 1347/2000 /* COM/2014/0225 final */**

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Introduction

The
growing mobility of citizens within the Union[1]
has led to an increasing number of families with an international dimension,
notably families whose members are of different nationalities, live in
different Member States or live in a Member State of which one or more of them
are not nationals. According to Article 81 of the Treaty on the Functioning of
the European Union, the Union adopts measures in the field of judicial
cooperation in civil matters having cross-border implications. Where families
break up, such cooperation is particularly necessary to give children a secure
legal environment to maintain relations with persons who have parental
responsibility over them and may live in another Member State.

Regulation
No 1347/2000 laying down rules on jurisdiction, recognition and enforcement of
judgments on divorce, separation and marriage annulment as well as judgments on
parental responsibility for the children of both spouses was the first Union
instrument adopted in the area of judicial cooperation in family law matters[2]. This
Regulation was repealed by Regulation No 2201/2003[3]
(commonly known as the Brussels IIa Regulation, hereafter "the
Regulation"). The Regulation is the cornerstone of Union judicial
cooperation in matrimonial matters and matters of parental responsibility. It
applies since 1 March 2005 to all Member States except Denmark[4].

The
Regulation provides for uniform rules to settle conflicts of jurisdiction
between Member States and facilitates the free circulation of judgments,
authentic instruments and agreements in the Union by laying down provisions on
their recognition and enforcement in another Member State. It complements the Hague
Convention of 25 October 1980 on the civil aspects of international child
abduction[5]
(hereafter "the 1980 Hague Convention") and lays down specific rules
with regard to its relation with several provisions provided for in the Hague
Convention of 19 October 1996 on Jurisdiction, Applicable Law, Recognition,
Enforcement and Co-operation in Respect of Parental Responsibility and Measures
for the Protection of Children[6]
(hereafter "the 1996 Hague Convention")[7].

The
Regulation does not contain rules to determine which law applies to
cross-border disputes in the fields covered by it. In connection with
applicable law, already in November 2004 the European Council called upon the
Commission to present a Green Paper on conflict-of-law rules in matters
relating to divorce[8].
In 2006, the Commission proposed amendments to the Regulation as regards
jurisdiction and introducing rules concerning applicable law in matrimonial
matters (hereafter "the 2006 Commission proposal to amend the
Regulation")[9].
No unanimity could be reached within the Council with regard to the rules on
applicable law and the Commission therefore withdrew the 2006 proposal to amend
the Regulation[10].
On the basis of new Commission proposals[11],
14 Member States agreed to establish enhanced cooperation among themselves[12] and
adopted Regulation (EU) No 1259/2010 laying down rules determining the law
applicable to divorce and legal separation[13]
(hereafter "the Rome III Regulation"). This was the first time that
enhanced cooperation was used in the Union. By its nature, an enhanced
cooperation is open to the participation of all Member States with the ultimate
goal that the Rome III Regulation is taken up by all Member States. Since the
adoption of the Rome III Regulation two more Member States have decided to
participate in the enhanced cooperation[14].

This
report has been prepared pursuant to Article 65 of the Regulation[15]. It
follows the structure of the Regulation by reviewing in separate sections the
provisions on jurisdiction, recognition and enforceability of judgments and
cooperation between Member States' Central Authorities. The report also focusses
more specifically on a number of cross-cutting issues, namely the return of the
child in cases of parental abduction, the enforcement of judgments and the
placement of a child in another Member State.

The
report is a first assessment of the application of the Regulation to date and
does not purport to be exhaustive. It is based on input received from the
members of the European Judicial Network in civil and commercial matters
(hereafter "the EJN")[16]
as well as on available studies[17],
the Commission's Green Paper on applicable law and jurisdiction in divorce
matters[18],
the 2006 Commission proposal to amend the Regulation and the work done within
the framework of the Hague Conference on Private International Law on the
follow-up of the 1980 and 1996 Hague Conventions. Finally, it takes into
account citizen letters, complaints, petitions and case law of the Court of
Justice of the European Union (hereafter "the CJEU") concerning the
Regulation.

1.           Jurisdiction

1.1.      Matrimonial
matters

In view of the increasing amount of international
couples and the high divorce rate in the Union, jurisdiction in matrimonial
matters concerns a significant number of citizens each year[19]. The
jurisdiction rules of the Regulation have helped to simplify the legal
framework in an already challenging situation for the individuals concerned.
However, some difficulties have been raised with regard to these rules[20].

First, the alternative (rather than hierarchical)
grounds of jurisdiction set out in the Regulation in conjunction with the
absence of harmonised conflict-of-law rules in the entire Union may induce a
spouse to "rush to court", that is, to apply for divorce before the
other spouse does to ensure that the law applied in the divorce proceedings
will safeguard his or her own interests[21].
The Rome III Regulation has reduced the possibility of a spouse rushing to
court as it lays down harmonised rules to determine the law applicable to
matrimonial disputes in the participating Member States. However, as the
Regulation does not yet apply in all Member States, the law applicable to a
matrimonial dispute may differ depending on the conflict-of-law rules (the Rome
III Regulation or national rules) applicable in the Member State of proceedings. The "rush to court" may result in the application of a law with
which the defendant does not feel closely connected or which fails to take into
account his or her interests. It may further complicate efforts of
reconciliation and leave little time for mediation.

Secondly, the Regulation does not lay down the
possibility for spouses to designate the competent court by common agreement.
The trend in recent Union instruments in civil matters is to allow for some
party autonomy (see, for instance, the 2008 Maintenance Regulation[22] or
the 2012 Successions Regulation[23]).
The introduction of a limited party autonomy in the Regulation allowing
spouses to agree on the competent court could be particularly useful in cases
of divorce by mutual consent, especially as spouses have the possibility under
the Rome III Regulation to agree on the law applicable to their matrimonial
dispute.

Responses received in connection with the 2006
Commission proposal to amend the Regulation already pointed to the need to
enhance legal certainty and predictability by introducing a limited party
autonomy and preventing a "rush to court"[24]. They
also revealed that Article 6 confirming the exclusive nature of the
jurisdiction determined under Articles 3, 4 and 5 of the Regulation could
create confusion and was superfluous as Articles 3, 4 and 5 describe in which
circumstances a court has exclusive jurisdiction[25].

The jurisdiction rules proposed in the 2006
Commission proposal to amend the Regulation, the 2011 Commission proposal in
matters of matrimonial property regime and the jurisdiction rules contained in
recent Regulations in civil matters[26]
could be considered as a possible model to improve current jurisdiction rules
in matrimonial matters.

1.2.      Matters of parental responsibility

The Regulation covers all decisions on parental
responsibility independently of any link with matrimonial proceedings in order
to ensure equality for all children. This reflects the significant increase of
the share of extra-marital births over the last two decades in almost all
Member States, which indicates a change in the pattern of traditional family
formation[27].
Matters of parental responsibility include rights of custody and rights of
access to children.

The
Regulation establishes a general jurisdiction rule based on the habitual
residence of the child (Article 8) to ensure a real link between the child and
the Member State exercising jurisdiction[28].
This principle is reinforced by the jurisdiction provisions applicable in cases
of cross-border child abduction (Article 10). In these cases, the courts of the
Member State of the habitual residence of the child immediately before the
child’s abduction (hereafter the "court of origin") retain
jurisdiction until the child has acquired a habitual residence in another
Member State and certain additional conditions have been met, particularly
until a judgment on custody that does not entail the return of the child has
been issued by the court of origin[29].

While found useful by experts, the rules on
prorogation of jurisdiction favouring a consensual solution and, in particular,
avoiding that divorce and parental responsibility proceedings be dealt with by
courts in different Member States (Article 12), have raised questions on the
interpretation of the conditions that must be met[30]. For
their part, the provisions on the transfer of jurisdiction to a court better
placed to hear the case if it is in the best interests of the child (Article
15) have raised difficulties in some instances with regard to their
functioning, in particular as a result of the fact that the requested court
often fails to inform the requesting court in a timely manner that it accepts
jurisdiction.

In urgent cases, provisional measures may need to be
adopted by the courts of a Member State over a child present in their territory
even if those courts do not have jurisdiction as to the substance of the matter
(Article 20). The CJEU has given guidance on how to apply provisional measures
in cases of child abduction. It has clarified that the court of the Member
State to which the child was abducted is not allowed to take a provisional
measure granting custody to one parent over a child who is in its territory if
a court having jurisdiction had provisionally granted custody to one parent
before the abduction and that judgment had been declared enforceable in that
Member State[31].

The lis pendens rule, whereby the court
second seised must stay proceedings until the jurisdiction of the court first
seised is established so as to avoid parallel proceedings in different Member States and contradictory rulings, has given rise to questions of interpretation[32]. The
CJEU has clarified that this rule is not applicable where the court first
seised in matters of parental responsibility is seised only for the adoption of
provisional measures and the court second seised of an action aiming at the
same measures is the court of another Member State having jurisdiction on the
substance of the matter[33].

The extent to which the interpretation given by the
CJEU could be incorporated in the Regulation should be explored, as well as how
the practical applicability of certain provisions could be improved.

1.3.      Jurisdiction
issues common to matrimonial matters and matters of parental responsibility

In matrimonial matters, a Member State court will have jurisdiction if (i) at least one of the spouses has been habitually
resident in that Member State for a minimum time, or (ii) both spouses share
the nationality of that Member State regardless of whether they live in the Union or in a third State (Article 3). Pursuant to the residual jurisdiction provisions of
the Regulation (Article 7), the access of spouses to a Member State court when they are of different Union nationalities and live in a third State depends on
the law of each Member State[34].

In matters of parental responsibility over a child,
a Member State court will as a rule have jurisdiction if the child is
habitually resident in that Member State at the time the court is seised
(Article 8). If the child has his/her habitual residence in a third State,
jurisdiction can still be established in a Member State provided the parents
have accepted expressly the jurisdiction and this is in the best interests of
the child (Article 12). If parents do not agree, the possibility of starting
proceedings before a Member State court over a child habitually resident
outside the Union depends, pursuant to the residual jurisdiction provisions, on
the law of each Member State (Article 14)[35].

The absence, in respect of both matrimonial and
parental responsibility matters, of a uniform and exhaustive rule on residual
jurisdiction results in Union citizens having unequal access to justice.
Indeed, Member State rules on jurisdiction are based on different criteria and
do not always ensure effective access to court despite a close connection of
the applicant or the respondent with a Member State. This may lead to
situations where neither a Member State nor a third State have jurisdiction
over a matter[36]
and to practical difficulties stemming from the absence of common rules on the
effects of third State judgments in the Union[37].

Also, unlike recent legislative instruments such as
the Maintenance Regulation or the Successions Regulation, the Regulation does
not contain a forum necessitatis[38].
Such jurisdiction ground was demanded by the European Parliament in its
legislative resolution of 15 December 2010 on the proposal for the Rome III
Regulation[39].

Finally, the absence of provisions determining in
which cases Member State courts can decline their jurisdiction in favour of a
court in a third State generates a great deal of uncertainty[40]. The
Brussels I Regulation[41]
has been recently amended by the Brussels I recast Regulation[42] so as
to introduce, amongst other amendments, a provision addressing this issue.

Commission
proposals and recent legislative developments in civil law matters[43] could
assist in reviewing the Regulation on the above issues taking into account
that, in parental responsibiliy matters, the best interests of the child should
be the overriding principle.

2.           Recognition and
Enforceability

The
protection of the child’s best interests is one of the main objectives of Union
action in the context of recognition and enforceability provisions, in
particular by giving concrete expression to the child’s fundamental right to
maintain contact with both parents, as laid down in Article 24 of the Charter
of Fundamental Rights of the European Union (hereafter "the
Charter"). In addition, the Regulation aims to achieve the free
circulation of judgments in all matrimonial and parental responsibility matters[44]. The
abolition of exequatur in the area of civil law and the possible
introduction of common minimum standards with regard to the recognition and
enforceability of parental responsibility decisions were identified in the
Stockholm Programme[45]
and the Stockholm Action Plan[46]
as key for the Commission’s future work in civil matters.

The
Regulation is the first Union instrument to have abolished exequatur in
civil matters in respect of certain decisions, namely certified
judgments on access rights to children and certified return orders in child
abduction cases. It also extended the principle of mutual recognition of
judgments to all decisions on parental responsibility (protecting the child
regardless of the existence of matrimonial links between the parents) thereby
completing, in accordance with the Stockholm Programme, the first stage of the
programme of mutual recognition, the ultimate objective remaining the abolition
of exequatur for all decisions.

The
fact that certain categories of judgments do not benefit from the abolition of exequatur
leads to complex, lengthy and costly procedures, in particular with regard to
judgments on parental responsibility matters. It may also lead to contradictory
situations where a Member State must recognise access rights under the
Regulation (and maintenance claims for the child under the Maintenance
Regulation) while, at the same time, could refuse the recognition of custody
rights granted in the same judgment. This is because, in areas other than
access rights and the return of the child in certain abduction cases,
recognition may still be opposed on the grounds laid down in the Regulation and
a declaration of enforceability must be obtained before the judgment can be
enforced in another Member State[47].

Regarding
the recognition of judgments in both matrimonial and parental responsibility
matters, the use of the "public policy" ground of non-recognition has
been rare. However, in matters of parental responsibility, significant
divergences have arisen in practice with regard to a broader or narrower
application of this ground[48].
In addition, in matters of parental responsibility, a frequently raised ground
of opposition has been the fact that the judgment was given without the child
having been given an opportunity to be heard[49].
In this connection, particular difficulties arise due to the fact that Member
States have diverging rules governing the hearing of the child.

Complications
also stem from the fact that Member States do not interpret the term
"enforcement" in a uniform manner, which has resulted in the adoption
of inconsistent Member State policies as to which judgments on parental
responsibility require a declaration of enforceability. This has important
consequences where, for example, a person is appointed as the guardian of a
child by a Member State court and this guardian requests the delivery of a
passport in another Member State. In these cases, some Member States only
require the recognition of the judgment attributing the guardianship whilst,
others, considering that the issuing of a passport is an enforcement act,
require a declaration of enforceability of the judgment attributing the
guardianship before the passport can be issued.

Consideration
should be given to the pertinence of extending the abolition of exequatur
to other categories of decisions in line with recent Union legislation[50]. In
this connection, the functioning of the current grounds of refusal for the
recognition and enforceability of a judgment should be taken into account so as
to establish the necessary safeguards. In addition, the introduction of common
minimum procedural standards, in particular regarding the hearing of the child[51],
could enhance mutual trust between Member States and, thus, the application of
the provisions concerning recognition and enforceability.

3.           Cooperation between
Central Authorities

The
Regulation lays down provisions on cooperation between Central Authorities in
matters of parental responsibility. This cooperation is essential for the
effective application of the Regulation. Central Authorities must, for example,
collect and exchange information on the situation of the child (for instance in
connection with custody or child return proceedings), assist holders of
parental responsibility to have their judgments recognised and enforced (in particular
concerning access rights and the return of the child) and facilitate
mediation.  Central Authorities also meet regularly within the framework of the
EJN to exchange views on their practices as well as bilaterally to discuss
on-going cases[52].

Cooperation
between Central Authorities, in particular in bilateral discussions, has proved
very useful in connection with cross-border child abduction cases. As regards
these cases, the Stockholm Programme mentions expressly that, apart from
effectively implementing existing legal instruments in this area, the
possibility to use family mediation at international level should be explored
taking account of good practices in Member States. Accordingly, a working group
created in the framework of the EJN has been mandated with proposing efficient
means to improve the use of family mediation in cases of international parental
child abduction[53].

Despite
their overall positive functioning, the provisions on cooperation have been
considered as not sufficiently specific. In particular, experts have reported
difficulties in connection with the obligation to collect and exchange
information on the situation of the child[54].
The main concerns relate to the interpretation of this provision, the fact that
applications for information have not always been handled in a timely manner as
well as to the translation of the information exchanged. Also, significant
differences exist between Member States with regard to the assistance provided
by Central Authorities to holders of parental responsibility that seek enforcement
of access rights judgments.

The
efficiency of the provisions on cooperation could be improved by drawing
inspiration from other family law instruments (in particular, the Maintenance
Regulation) or by developing guides to good practices in line with the EJN
guide for cases of child abduction[55].
Moreover, the Commission will further contribute to building trust between
Member States including with Member State child protection bodies to enhance
understanding of the cross-border context and the acceptance of decisions taken
in another Member State.

4.           Cross-border parental
child abduction: Issuance of the return order

When parents live together they usually exercise
parental responsibility over their children jointly. In case of separation or
divorce, parents must decide, by mutual agreement or by going to court, how
they will exercise their responsibility in the future. However, one of the
major risks to which a child is exposed in cases of separation or divorce is
being taken out of his/her country of habitual residence by one of the parents.
The harmful impact of parental child abduction on the child and the left-behind
parent are significant enough that measures at both international and Union
level have been taken.

One
of the main objectives of the Regulation is to deter child abductions between
Member States and to protect the child from their harmful effects by
establishing procedures to ensure the child's prompt return to the Member State
of habitual residence immediately before his/her abduction[56]. In
this respect, the Regulation complements the 1980 Hague Convention by
clarifying some of its aspects, in particular the hearing of the child, the
time period to render a decision after an application for return has been
lodged and the grounds for not returning the child. It also introduces
provisions governing conflicting return and non-return orders issued in
different Member States.

The
CJEU and the European Court of Human Rights (hereafter "the ECtHR")
have laid down a number of principles in their case law on international child
abduction with the child’s best interests as the primary consideration. The
CJEU has upheld the principle that the Regulation seeks to deter child
abduction between Member States and to obtain the child's return without delay
once an abduction has taken place[57].
For its part, the ECtHR has ruled[58]
that, once it has been found that a child has been wrongfully removed, Member
States have a duty to make adequate and effective efforts to secure the return
of the child and that failure to make such efforts constitutes a violation of
the right to a family life as set out in Article 8 of the Convention for the
Protection of Human Rights and Fundamental Freedoms (hereafter "the
ECHR")[59].

The
Regulation provides that the court to which an application for the return of a
child has been made must issue its judgment no later than six weeks after the
application is lodged. Member State courts have not always been able to meet
this deadline[60].
However, it is clear, as experts have confirmed, that a six-week deadline
within which a decision must be rendered is crucial to signal the importance of
securing the rapid return of the child.

In
cases of conflict between a non-return order issued by the court of the Member
State to which the child was abducted and a subsequent return order adopted by
the court of origin, the Regulation resolves in favour of the latter in order
to secure the return of the child[61]:
where it is certified by the court of origin, the return order benefits from
the abolition of exequatur, that is, it is immediately recognised and
enforceable in the Member State to which the child was abducted without the
need for a declaration of enforceability and without the possibility of its
recognition being opposed[62].
Such a return order does not need to be preceded by a final judgment on the
custody of the child, as the purpose of the return order is also to contribute
to resolving the issue of custody of the child[63].

The
court of origin will only issue the certificate accompanying the return order
if certain procedural safeguards have been applied during the procedure before
it, in particular if the parties and the child were given an opportunity to be
heard[64].
As a result of divergences between Member States on the application of these
safeguards, in particular with regard to the hearing of the child, difficulties
could  arise at the enforcement stage.

In light of the foregoing, it could be examined
whether the incorporation in the Regulation of relevant case law of the CJEU
would facilitate the application of the provisions concerning the issuance of
return orders. The adoption of minimum common standards concerning the hearing
of the child should also be considered to enhance the effectiveness of return
orders.

5.           General enforcement
issues

A
number of enforcement issues apply in a cross-cutting manner to parental
responsibility matters and return orders in cases of parental child abduction.

The
Regulation provides that a judgment delivered by a court of another Member State and declared enforceable in the Member State of enforcement must be enforced under
the same conditions as if it had been delivered there[65].

As
the enforcement procedure is governed by the law of the Member State of enforcement and differences exist between national laws, difficulties arise with
regard to the enforcement of parental responsibility decisions. Some national
systems do not contain special rules for the enforcement of family law
decisions and parties must resort to procedures available for ordinary civil or
commercial decisions, which do not take into account the fact that, in the area
of parental responsibility, the passing of time is irreversible[66]. The
application of different Member State procedures (for example, concerning the
right of appeal, which suspends the effects of the judgment) may not therefore
guarantee an effective and expeditious enforcement of judgments.

With
regard, in particular, to the enforcement of return orders in cases of parental
child abduction, the Regulation provides that a certified return order issued
by the court of origin must be enforced in the Member State of enforcement in
the same conditions as if it had been delivered there and that the order cannot
be enforced if it is irreconcilable with a subsequent enforceable judgment[67].

The
CJEU has strengthened the position of the courts of origin in its case law.
Pursuant thereto, no plea in law can be raised before the courts of the Member State of enforcement challenging the enforcement of the certified return order and
the subsequent enforceable judgment can only refer to a judgment handed down by
the court of origin. In addition, the courts of origin are the only ones
entitled to examine challenges to their jurisdiction, an application to suspend
the enforcement of a certified return order and a change of circumstances
subsequent to the certified return order that might be seriously detrimental to
the best interests of the child[68].
Likewise, the court in the Member State of enforcement cannot oppose the
enforcement of a certified return order on the ground that the court of origin
may have infringed the provisions governing the certificate interpreted in
accordance with Article 24 on the rights of the child of the Charter, since the
assessment of whether there is such an infringement falls exclusively within
the jurisdiction of the court of origin[69].
The ECtHR has used a similar reasoning in its case law[70].

In
practice hurdles remain in connection with the actual enforcement of return
orders[71],
whether it is the enforcement in the territory of the Member State to which the
child was abducted of a return order issued by a court of that Member State[72], or
the enforcement in that Member State of a certified return order issued by the
court of origin. As enforcement procedures are subject to the law of the Member State of enforcement, means of enforcement differ from one Member State to another. In
some Member States, enforcement procedures can in fact last for over a year as
enforcement courts re-examine the substance of the case[73],
while return orders should be enforced immediately. In this respect, the CJEU
has stated that, even if the object of the Regulation is not to unify the
substantive and procedural rules of Member States, it is nevertheless important
that the application of national rules does not prejudice the useful effect of
the Regulation[74].
The ECtHR has in the same vein emphasised that proceedings relating to the
return of the child and the enforcement of a final decision involving the
return of the child require urgent handling as the passage of time can have
irremediable consequences for the relations between the child and the parent
with whom he/she does not live. The adequacy of a measure must therefore be
judged by the swiftness of its implementation[75].

The
 Union's main policy objective in the area of civil procedural law is that
borders between Member States should not constitute an obstacle to the
enforcement of decisions in civil matters. To render the application of the
Regulation more effective, especially in the critical area of the return of the
child, the Commission will review the enforcement of decisions in this area,
including the appropriateness of introducing common minimum enforcement
standards.

6.         Placement of a child in another Member State

The
Regulation contains in Article 56 specific provisions on the placement of a
child in institutional care or with a foster family in another Member State. Where the court of a Member State contemplates the placement of a child in
another Member State and public authority intervention is required in the host
State for domestic cases of child placement, the court must consult the Central
Authority or other competent authority in the host State and obtain the consent
of the competent authority in that State prior to the adoption of the placement
decision. Currently, the procedures for consultation and consent are governed
by the national law of the host Member State, which means that diverging
internal Member State procedures apply. Central Authorities must cooperate,
where requested, in providing information and assistance[76].

The
CJEU has confirmed that a placement judgment must be, before it can be enforced
in the host Member State, declared enforceable in that Member State. One of the grounds that can be opposed against a declaration of enforceability of a
decision placing a child in another Member State is the failure to respect the
procedure laid down in Article 56 of the Regulation[77] so as
to avoid the imposition of the placement measure on the host State. In order
not to deprive the Regulation of its effectiveness, the CJEU added that the
decision on the application for a declaration of enforceability must be made
with particular expedition and that appeals brought against that decision will
not have a suspensive effect[78].
Notwithstanding these observations, the application of the exequatur
procedure to placement decisions has been reported by experts to be very
cumbersome in view of the child’s needs.

The
application of a common, uniform procedure that enables a swifter and more
efficient application of the provisions on the placement of a child in another Member State could thus be explored as a means to overcome the reported problems.

Conclusion

The Regulation is a well-functioning instrument that
has brought important benefits to citizens. It has facilitated the settlement
of increasing cross-border litigation in matrimonial and parental
responsibility matters through a comprehensive system of jurisdiction rules, an
efficient system of cooperation between Member State Central Authorities, the
prevention of parallel proceedings and the free circulation of judgments,
authentic instruments and agreements. The provisions on the return of the child
complementing the 1980 Hague Convention aimed at deterring parental child
abduction between Member States are regarded as particularly useful.

However,
there are indications on the basis of data and preliminary feedback from
experts that existing rules could be improved. In order to explore
comprehensively the concerns identified in this report, the Commission intends
to launch a further policy evaluation of the existing rules and their impact on
citizens. To this end, the Commission will also launch a public consultation.
On the basis of the evaluation and the replies to the public consultation, the
Commission will take action as appropriate.

Annex

2012
Study on the European framework for private international law: Current gaps and
future perspectives, prepared by Prof. Dr. Xandra Kramer (scientific director),
Mr Michiel de Rooij, LL.M. (project leader), Dr. Vesna Lazić, Dr. Richard
Blauwhoff and Ms Lisette Frohn, LL.M., available at:

http://www.europarl.europa.eu/document/activities/cont/201212/20121219ATT58300/20121219ATT58300EN.pdf

2010
Study on the parental responsibility, child custody and visitation rights in
cross-border separations, prepared by Institut Suisse de droit comparé (ISDC),
available at:

http://www.europarl.europa.eu/RegData/etudes/etudes/join/2010/425615/IPOL-PETI_ET(2010)425615_EN.pdf

2010
Study on the cross-border exercise of visiting rights, prepared by Dr Gabriela
Thoma-Twaroch, President of Josefstadt District Court, Vienna, available at:

http://www.europarl.europa.eu/RegData/etudes/note/join/2010/432735/IPOL-JURI_NT(2010)432735_EN.pdf

2010
Study on the Interpretation of the Public Policy Exception as referred to in EU
Instruments of Private International and Procedural Law, prepared by Prof.
Burkhard Hess and Prof. Thomas Pfeiffer, Heidelberg University, available at:

http://www.europarl.europa.eu/RegData/etudes/etudes/join/2011/453189/IPOL-JURI_ET(2011)453189_EN.pdf

2007
Report Study on Residual Jurisdiction prepared by Prof. A. Nuyts, available at:

http://ec.europa.eu/justice_home/doc_centre/civil/studies/doc_civil_studies_en.htm

2007
Comparative study on enforcement procedures of family rights, prepared by
T.M.C. ASSER Institut, available at:

http://ec.europa.eu/justice_home/doc_centre/civil/studies/doc_civil_studies_en.htm

2006
Study to inform a subsequent Impact Assessment on the Commission proposal on
jurisdiction and applicable law in divorce matters, drawn up by the European
Policy Evaluation Consortium (EPEC) - Commission Staff Working Document -
Impact assessment SEC(2006) 949.

2002
Evaluation on practical problems resulting from the non-harmonisation of choice
of Law rules in Divorce Matters, prepared by T.M.C. ASSER Institut, available
at:

http://ec.europa.eu/justice_home/doc_centre/civil/studies/doc_civil_studies_en.htm

[1]               In 2011 there were 33.3 million foreign citizens
resident in the Union-27, 6.6% of the total population. The majority, 20.5
million, were citizens of non-Union countries, while the remaining 12.8 million
were citizens of other Union Member States. Since citizenship can change over
time, it is also useful to present information by country of birth. There were
48.9 million foreign-born residents in the Union in 2011, 9.7% of the total
population. Of these, 32.4 million were born outside the Union and 16.5 million
were born in another Union Member State (Statistics in Focus, 31/2012: "Nearly
two-thirds of the foreigners living in EU Member States are citizens of
countries outside the EU-27", Eurostat).

[2]               Council Regulation (EC) No 1347/2000 of 29 May 2000
on jurisdiction and the recognition and enforcement of judgments in matrimonial
matters and in matters of parental responsibility for children of both spouses,
OJ L 160, 30.6.2000, amended by Council Regulation (EC) No 2116/2004 of 2
December 2004, OJ L 367, 14.12.2004.

[3]               Council Regulation (EC) No 2201/2003 concerning
jurisdiction and the recognition and enforcement of judgments in matrimonial
matters and the matters of parental responsibility, repealing Regulation (EC)
No 1347/2000, OJ L 338, 23.12.2003, p. 1.

[4]               Denmark, in accordance with Articles 1 and 2 of the
Protocol on the position of Denmark annexed to the Treaty on European Union and
the Treaty on the Functioning of the European Union, does not participate in
the Regulation and is therefore neither bound by it nor subject to its
application. For the purpose of this report, the term "Member States"
does not include Denmark.

[5]               The Convention applies in all Member States.

[6]               Council Decision of 19 December 2002 authorising the
Member States, in the interest of the Community, to sign the 1996 Hague
Convention on Jurisdiction, Applicable Law, Recognition, Enforcement and
Cooperation in respect of Parental Responsibility and Measures for the
Protection of Children, OJ L 48, 21.2.2003, p. 1. The Convention applies in all
Member States except Belgium and Italy, which have signed the Convention but
not yet ratified it.

[7]               The Regulation applies: (i) where the child has his
or her habitual residence in a Member State and (ii) with regard to the
recognition and enforcement of a judgment given in a Member State, even if the child has his or her habitual residence in a third State which is Party to
the Convention; Article 61.

[8]               The Hague Programme: strengthening freedom, security
and justice in the European Union, adopted by the European Council on 4-5
November 2004.

[9]               Proposal for a Council Regulation amending Regulation
(EC) No 2201/2003 as regards jurisdiction and introducing rules concerning
applicable law in matrimonial matters (COM (2006) 399 final).

[10]             OJ C 109, 16.4.2013, p. 7.

[11]             Proposal for a Council decision No .../2010/EU authorising
enhanced cooperation in the area of the law applicable to divorce and legal separation
(COM(2010) 104 final - 2010/0066 (APP)); Proposal for a Council Regulation
implementing enhanced cooperation in the area of the law applicable to divorce
and legal separation (COM(2010) 105 final-2010/0067 (CNS)).

[12]             Council decision of 12 July 2010 authorising enhanced
cooperation in the area of the law applicable to divorce and legal separation
(2010/405/EU), OJ L 189, 22.7.2010, p. 12. The 14 Member States that
established enhanced cooperation among themselves are Belgium, Bulgaria, Germany, Spain, France, Italy, Latvia, Luxembourg, Hungary, Malta, Austria, Portugal, Romania and Slovenia.

[13]             Council Regulation (EU) No 1259/2010 of 20 December
2010 implementing enhanced cooperation in the area of the law applicable to
divorce and legal separation, OJ L 343, 29.12.2010, p. 10. The Rome III
Regulation applies in the 14 original Member States since 21 June 2012.

[14]             The Rome III Regulation will apply in Lithuania as from 22 May 2014 (OJ L 323, 22.11.2012, p. 18) and in Greece as from 29 July 2015 (OJ L
23, 28.1.2014, p. 41).

[15]             Article 65 provides that, by 1 January 2012, the
Commission shall present to the European Parliament, the Council and the
European Economic and Social Committee a report on the application of the
Regulation on the basis of information supplied by Member States.

[16]             In particular, discussions in the framework of EJN
meetings and replies of the EJN to a 2013 Commission questionnaire. See also
the EJN Guide to best practices and common minimum standards, available at:
https://e-justice.europa.eu/content_parental_responsibility-46-en.do.

[17]             See the Annex to this report.

[18]             COM(2005)82 final.

[19]             Of the approximately 122 million marriages in the Union, around 16 million (13%) have a cross-border dimension. Of 2.4 million marriages
celebrated in the Union in 2007, about 300 000 fell into this category. So did
140 000 (13%) of the 1 040 000 divorces that took place in the Union in the
same year (see Communication from the Commission to the European
Parliament, the Council, the European Economic and Social Committee and the
Committee of the Regions - Bringing legal clarity to property rights for
international couples, COM(2011) 125 final). According to 2010 Eurostat
data, each year in the Union more than 2.2 million new marriages are contracted
and approximately 1 million divorces take place.

[20]             For instance, difficulties on the interpretation of the
jurisdiction ground based on "the nationality of both spouses"
(Article 3(1)(b)) where both spouses hold the nationality of the same two
Member States have arisen. The CJEU, recalling the individuals’ choice of the
court having jurisdiction, particularly in cases where the right to freedom of
movement for persons has been exercised, stated that this provision
cannot be interpreted as meaning that only an 'effective' nationality can be
taken into consideration. The courts of the Member States of which the spouses
hold the nationality have jurisdiction and the spouses may seise the court of
the Member State of their choice; Case C-168/08 Hadadi [2009] ECR
I-06871, paragraphs 52, 53, 58.

[21]             One of the objectives of the 2006 Commission proposal
to amend the Regulation was to prevent such "rush to court" through
the establishment of harmonised conflict-of-law rules in all Member States. The
introduction of harmonised conflict-of-law rules would have reduced the risk of
"rush to court" as any court seised within the EU would have had to
apply the law determined by common rules. As the Rome III Regulation on the law
applicable to divorce and legal separation does not apply to all Member States,
the "rush to court" concern remains.

[22]             Council Regulation (EC) No 4/2009 of 18 December 2008
on jurisdiction, applicable law, recognition and enforcement of decisions and
cooperation in matters relating to maintenance obligations, OJ L 7, 10.1.2009,
p.1 (hereafter "the Maintenance Regulation").

[23]             Council Regulation (EU) No 650/2012 of the European
Parliament and of the Council of 4 July 2012 on jurisdiction, applicable law,
recognition and enforcement of decisions and acceptance and enforcement of
authentic instruments in matters of succession and on the creation of a
European Certificate of Succession, OJ L 201, 27.7.2012, p. 107 (hereafter
"the Successions Regulation").

[24]             2006 Commission proposal to amend the Regulation, p. 5.

[25]             2006 Commission proposal to amend the Regulation, p. 8.
See also Case C-68/7 Sundelind Lopez, [2007] ECR I-10403.

[26]             Commission proposal on jurisdiction, applicable law and
the recognition and enforcement in matrimonial property regimes, COM(2011) 126
final (hereafter "the Commission proposal in matters of matrimonial
property regimes"); Maintenance Regulation; Successions Regulation.

[27]             Each year, more than 5 million children are born in the
Union-28 (2004-2011 Eurostat Statistics). In 2010, some 38.3 % of children
were born outside marriage, while the corresponding figure in 1990 was
17.4 % (Eurostat).

[28]             The CJEU gave guidance for the interpretation of the
concept of habitual residence in Case C-523/07 A., [2009] ECR I-02805
and Case C-497/10 PPU Mercredi, [2010] ECR I-14309. In relation to
Articles 8 and 10, the CJEU held in particular that the habitual residence of
the child corresponds to the place which reflects some degree of integration by
the child in a social and family environment and that it is for the national
court to establish the habitual residence of the child, taking account of all
the circumstances of fact specific to each individual case.

[29]             The interpretation of the latter condition was
clarified by the CJEU in Case C-211/10 PPU Povse [2010] ECR I-06673. The CJEU ruled
that a provisional measure issued by the court of origin does not constitute a
"judgment on custody that does not entail the return of the child"
and, therefore, cannot be the basis of a transfer of jurisdiction to the courts
of the Member State to which the child was unlawfully removed. Indeed, if the
effect of a provisional measure were a loss of jurisdiction over the issue of
custody of the child, the competent court in the Member State where the child
was habitually resident might be deterred from adopting a provisional measure
even if it were in the interests of the child (paragraphs 47 and 50).

[30]             In particular under Article 12(3).

[31]             Case C-403/09 PPU Detiček, [2009] ECR
I-12193.

[32]             With regard to this rule, the CJEU stated in Case
C-497/10 PPU Mercredi [2010] ECR I-14309 that judgments of a court of a
Member State which refuse to order the prompt return of a child under the 1980
Hague Convention to the jurisdiction of a court of another Member State and
which concern parental responsibility for that child have no effect on
judgments to be delivered in that other Member State in proceedings relating to
parental responsibility which were brought earlier and are still pending in
that other Member State.

[33]             Case C-296/10 Purrucker II, [2010] ECR I-11163.

[34]             See the 2006 Commission proposal to amend the
Regulation, the Commission Staff Working Document SEC(2006) 949 - Impact
assessment and the Study on Residual Jurisdiction referred to in the Annex to
this report.

[35]             The Study on Residual Jurisdiction referred to in the
Annex to this report shows that there is a great divergence between the
jurisdiction rules of Member States. The most important difference is that, in
about half the Member States, the citizenship of the child (or of either
parent, which will often coincide with the citizenship of the child) is
sufficient to establish jurisdiction in the Member State of such citizenship,
while this is not the case in the other half. Although in some of these latter States
other grounds of residual jurisdiction may in some circumstances allow an
action to be brought in the Union, there is no guarantee to that effect.

[36]             This could be the case, for instance, in matrimonial
matters if the spouses live in a third State where the rules on jurisdiction
are based exclusively on the citizenship of the spouses, or if the spouses live
in different third States and the residence of only one spouse is not enough to
establish jurisdiction and jurisdiction is not available at the last habitual
residence of the spouse. See, for a practical example, the actual case reported
in the Study on the European framework for private international law referred
to in the Annex to this report, of an Italian citizen and his Dutch wife who
married in an African state and lived there for a number of years. The wife, a
diplomat, moved for professional reasons to an Asian state with her husband. At
one point the couple wished to divorce but this turned out not to be possible
in the Asian state of their residence. Jurisdiction was also not available
under the Dutch or Italian residual rules on jurisdiction in divorce cases. In
these circumstances, a Member State court would have had jurisdiction under the
Regulation only if both spouses had shared the nationality of the same Member State.

[37]             See the Study on Residual Jurisdiction referred to in
the Annex to this report.

[38]             Ground of jurisdiction that allows, on an exceptional
basis, a court of a Member State to have jurisdiction over a case which is
connected with a third State, in order to remedy, in particular, situations of
denial of justice, for instance where the proceedings prove impossible in the
third State in question (for example, because of civil war); see Recital 16 of
the Maintenance Regulation. It is traditionally considered, and has even been
pointed out during parliamentary discussions in some Member States, that this
jurisdiction “of necessity” is based on, or is even imposed by, the right to a
fair trial under Article 6(1) of the European Convention on Human Rights –Study
on Residual Jurisdiction, p. 64.

[39]             Resolution P7_TA(2010)0477, point 3.

[40]             In particular, for parental responsibility matters in
third States which are not Contracting Parties to the 1996 Hague Convention. See the Study on
Residual Jurisdiction referred to in the Annex to this report.

[41]             Council Regulation (EC) No 44/2001 of 22 December 2000
on jurisdiction and the recognition and enforcement of judgments in civil and
commercial matters, OJ L12, 16.1.2001, p.1.

[42]             Council Regulation (EU) No 1215/2012 of the European
Parliament and of the Council of 12 December 2012 on jurisdiction and the
recognition and enforcement of judgments in civil and commercial matters
(recast), OJ L 351, 20.12.2012, p. 1 (hereafter "the Brussels I recast
Regulation").

[43]             Maintenance Regulation; 2006 Commission proposal to
amend the Regulation; Commission proposal in matters of matrimonial property
regimes; Commission proposal on jurisdiction, applicable law and the
recognition and enforcement regarding the property consequences of registered
partnerships (COM(2010)127 final); Successions Regulation; Brussels I recast
Regulation.

[44]             The Regulation provides that authentic instruments and
agreements must be declared enforceable under the same conditions as judgments
if they are enforceable in their Member State of origin. The fact that
certificates used in the exequatur procedure refer only to
"judgments" has caused difficulties.

[45]             Stockholm Programme (Council document No 17024/09
JAI 896), paragraphs 3.1.2 and 3.3.2.

[46]             Communication from the Commission to the European
Parliament, the Council and the Economic and Social Committee, Delivering an
Area of Freedom, Security and Justice for Europe’s Citizens – Action Plan
Implementing the Stockholm Programme of 20 April 2010, COM(2010) 171
final, pp. 10, 12, 23.

[47]             In Case C-195/08 PPU Rinau, [2008] ECR I-05271,
the CJEU clarified that, except for certified judgments benefiting from the
abolition of exequatur, any interested party can apply for the
non-recognition of a judgment even if no application for the recognition of the
judgment has been submitted beforehand. In Case C-256/09 Purrucker I,
[2010] ECR I-07353, the CJEU confirmed that the provisions on recognition and
enforcement do not apply to provisional measures relating to rights of custody
falling within the scope of Article 20.

[48]             Study on the Interpretation of the Public Policy
Exception referred to in the Annex to this report.

[49]             Other frequently raised grounds for the non-recognition
of judgments have been the service of documents where the judgment was given in
default of appearance, the failure to comply with the procedure laid down in
the Regulation for the placement of a child in another Member State and the
fact that the judgement was given without the parent concerned having been
given an opportunity to be heard. These are important considerations referring
to the right to an effective remedy and to a fair trial guaranteed by Article
47 of the Charter.

[50]             Regulation No 805/2004 establishing a European
enforcement order for uncontested claims; Regulation No 1896/2006 creating a
European Order for Payment Procedure; Regulation No 861/2007 creating a
European Small Claims Procedure; Maintenance Regulation; Brussels I recast
Regulation.

[51]             See also, for example, the consideration of future
minimum standards on service of documents - Report from the Commission to the
European Parliament, the Council and the Economic and Social Committee on the
application of Regulation (EC) No 1393/2007 of the European Parliament and the
Council on the service in the Member States of judicial and extrajudicial
documents in civil and commercial matters.

[52]             Since 2010, 155 cases have been discussed in bilateral
meetings.

[53]             See Council document 16121/10, JUSTCIV 194, of 12
November 2010, Conclusions of the ministerial seminar organised by the Belgian
Presidency concerning international family mediation in cases of international
child abduction, available at http://register.consilium.europa.eu.

[54]             Article 55(a).

[55]             EJN Guide to best practices and common minimum
standards:

https://e-justice.europa.eu/content_parental_responsibility-46-en.do.

[56]             In 2008, 706 return applications were made between
Member States. Statistics show that the overall return rate between Member
States was 52% in 2008 while it was 39% when the requesting State was a third
State: Statistical analysis of applications made in 2008 under the Hague
Convention of 25 October 1980 on the Civil Aspects of International Child
Abduction — Part II ― Regional Report, Prel. Doc. No 8 B ―
update of November 2011 for the attention of the Special Commission of June
2011, available at http://www.hcch.net.

[57]             Case C-195/08 PPU Rinau, [2008] ECR I-05271,
paragraph 52,

[58]             See, for example, Cases Šneersone and Kampanella v
Italy (application no. 14737/09), paragraph 85(iv); Iglesias Gil and A.U.I. v
Spain (application no. 56673/00); Ignaccolo-Zenide
v Romania (application no. 31679/96), Maire v Portugal (application
no. 48206/99); PP v Poland (application no. 8677/03) and Raw v France (application no.
10131/11).

[59]             The ECtHR has also held in some cases that it may be a
breach of Article 8 of the ECHR to return a child, in particular where it found
that the requested court had not sufficiently appreciated the seriousness of
the difficulties which the child was likely to encounter on return to his/her
State of origin, that the requested court could not have determined in an
informed manner whether a risk within the meaning of Article 13(b) of the 1980
Hague Convention existed or the requested court failed to carry out an
effective examination of the applicant’s allegations under Article 13(b) of the
1980 Hague Convention. See, for example, Cases Šneersone and Kampanella v Italy (application no. 14737/09), paragraph 95; B v Belgium (application no. 4320/11),
paragraph 76; X v Latvia (application no. 27853/09), paragraph
119.

[60]             In 2008, 15% of applications between Member States were
resolved within 6 weeks: see statistical analysis referred to in footnote 56.

[61]             Articles 11(8) and 42.

[62]             As the Regulation intends to secure the rapid return of
the child, the issuing of a certificate by the court of origin in relation to
its return order cannot be subject to appeal, and the only pleas in law which
can be relied on in relation to the certificate are those seeking its
rectification or raising doubts on its authenticity under the law of the Member
State of origin; Article 43(2) and Case C- 211/10 PPU Povse, [2010] ECR
I-06673, paragraph 73.

[63]             Case C-211/10 PPU Povse, [2010] ECR I-06673,
paragraph 53. Pursuant to Case C-195/08 PPU Rinau, [2008] ECR I-05271, once
a non‑return order has been taken and brought to the attention of the court
of origin, it is irrelevant, for the purposes of the court of origin issuing a
certified return order, that the non-return order has not become final or has
been overturned in so far as the return of the child has not actually taken
place.

[64]             Similar safeguards apply to certified decisions
concerning rights of access to children.

[65]             Article 47.

[66]             See the Comparative study on enforcement procedures of
family rights referred to in the Annex to this report.

[67]             The same enforcement provisions apply in respect of
certified judgments concerning rights of access to children; Article 47.

[68]             Case C- 211/10 PPU Povse, [2010] ECR I-06673,
paragraphs 74-83.

[69]             Case C-491/10 Zarraga, [2010] ECR I-14247.

[70]             Case Povse v Austria (application no. 3890/11),
paragraphs 81-82.

[71]             Citizens’complaints refer mostly to burdensome
enforcement procedures, lengthy proceedings and diverging practices of national
authorities.

[72]             See, for example, ECtHR Cases PP v Poland (application no. 8677/03); Shaw v. Hungary (application no. 6457/09); Raw and
Others v. France (application no. 10131/11).

[73]             For example, enforcement provisions in some Member
States allow for appeals to be filed against enforcement orders.

[74]             Case C-195/08 PPU Rinau, [2008] ECR I-05271,
paragraph 82.

[75]             See, for example, Shaw v Hungary (application
no. 6457/09) and Raw v France (application no. 10131/11).

[76]             Article 55(d).

[77]             Articles 31(2) and 23(g).

[78]             Case C-92/12 PPU Health Service Executive.