amending Regulation (EU) 2018/1806, listing the third countries whose nationals must be in possession of visas when crossing the external borders and those whose nationals are exempt from that requirement (Kuwait, Qatar)

EXPLANATORY MEMORANDUM

1.CONTEXT OF THE PROPOSAL

•Reasons for and objectives of the proposal

In the context of the strengthening of overall relations between the EU and the Gulf, the EU should pursue a more strategic orientation with this region by developing a stronger, comprehensive and multi-sector partnership. Visa-free status plays a key role in promoting the partnership between both regions by facilitating people-to-people contacts and strengthening the already dense political, economic, research, educational, cultural and societal exchanges. In view of this, the EU will continue engaging with the Gulf countries that are interested in visa-free travel to the EU, in view of reaching full regional coherence in the future based on the criteria and the procedure established in Regulation (EU) 2018/1806. In light of the procedural steps taken thus far and a first assessment made, the presently proposed exemptions from the visa requirement for nationals of Kuwait and Qatar are a step towards stronger regional coherence in the Gulf region, following the visa exemption granted to the United Arab Emirates in 2014 which has facilitated contacts with this country.

Both Kuwait and Qatar have proven to be key partners for the EU in handling recent crises. Notable examples of recent cooperation include the repatriation of EU citizens and vaccination efforts in the context of the COVID-19 pandemic, the evacuation of EU nationals via Doha following the Taliban’s take-over of the government in Afghanistan, the financial support and ‘good offices’ provided by Kuwait to facilitate humanitarian assistance during the war in Syria, as well as the efforts to tackle recent hybrid threats against Europe. In addition, Kuwait and Qatar are important economic partners for the Union, in particular in the area of energy and in view of the EU’s objectives to diversify its energy supplies.

The third countries whose nationals are exempt from the visa requirement are to be determined on the basis of a case-by-case assessment of a variety of criteria laid down in Article 1 of Regulation (EU) 2018/1806. The aforementioned criteria relate inter alia to “illegal immigration, public policy and security, economic benefit, in particular in terms of tourism and foreign trade, and the Union’s external relations with the relevant third countries, including in particular, considerations of human rights and fundamental freedoms, as well as the implications of regional coherence and reciprocity”.

Kuwait and Qatar present low irregular migration risks, are increasing cooperation with the EU on security matters and issue biometric passports, which is necessary for visa-free travel to the EU. Kuwait and Qatar are important economic and trading partners for the EU, and vital partners for Europe in a post-COVID 19 context, as well as amid the Russian aggression against Ukraine and its consequences in the area of energy supplies and global mobilisation in support of the UN charter. A visa exemption for citizens from Kuwait and Qatar travelling to the EU would benefit the EU economy, in particular the tourism industry. Although challenges remain in the area of human rights and fundamental freedoms, Kuwait and Qatar have been undergoing societal transformation processes as regards women’s rights, labour rights, freedom of religion and interfaith dialogue. The prospect of sustainable visa-free travel is expected to reinforce positive trends in Kuwait and Qatar regarding progress and reforms in these areas.

As regards regional coherence, the continued engagement with the other remaining visa-required Gulf countries in the coming months, with a view to ultimately achieving visa exemption with the EU for all GCC countries, could also encourage similar positive reforms. In this regard, the Commission will shortly launch technical discussions with these partners on the fulfilment of criteria for visa exemption under the Visa Regulation. In addition, the adoption of more favourable rules concerning the issuance of multiple-entry visas with a long validity (valid for up to 5 years) with these partners will be pursued within local Schengen cooperation, in accordance with Article 24(2) of Regulation 810/2009 establishing a Community Code on Visas, as amended by Regulation 2019/1155. The proposal on digitalising the procedure for issuing Schengen visas will make the visa procedure largely paperless and contactless, and thereby more timesaving and cost-efficient for applicants.

The Commission is proposing to amend Regulation (EC) 2018/1806 to exempt nationals of Kuwait and Qatar from the requirement to be in possession of a visa when crossing the external borders of the Member States for stays of no more than 90 days in any 180-day period.

•Consistency with existing policy provisions in the policy area

Regulation (EU) 2018/1806 lists the third countries whose nationals must be in possession of a visa when crossing the external borders of the Member States and those whose nationals are exempt from that requirement. Regulation (EU) 2018/1806 is applied by all Member States – with the exception of Ireland – and also by Iceland, Liechtenstein, Norway and Switzerland. The Regulation is part of the EU’s common visa policy for short stays of 90 days in any 180-day period.

Kuwait and Qatar are currently listed in Annex I of Regulation (EU) 2018/1806 among the third countries whose nationals are required to be in possession of a visa when crossing the external borders of the Member States. Thorough checks of all travellers against relevant databases at the external borders should be carried out.

The composition of the lists of third countries in Annex I and II should be, and should remain, consistent with the criteria laid down in Article 1 of Regulation (EU) 2018/1806, which relate inter alia to ‘illegal immigration, public policy and security, economic benefit, in particular in terms of tourism and foreign trade, and the Union’s external relations with the relevant third countries, including in particular, considerations of human rights and fundamental freedoms, as well as the implications of regional coherence and reciprocity’.

Following the application of the proposed exemption from the visa requirement, the reciprocity and suspension mechanisms of Regulation (EU) 2018/1806 can be applied in case full visa reciprocity is not ensured or if the visa-free regime is abused or in case of abuse resulting from the exemption from the visa requirement. A visa waiver agreement, which will include safeguards in relation to the criteria of Regulation (EU) 2018/1806 having justified the visa exemption will have to be concluded between each of the two countries and the EU to make the exemption effective.

•Consistency with other Union policies

The proposed exemption from the visa requirement for Kuwait and Qatar is consistent with the EU efforts to pursue a stronger, more strategic, comprehensive and multi-sector partnership with the Gulf region. A Joint Communication on a strategic partnership with the Gulf is to be adopted to this aim.

The EU Entry/Exit System (EES), which is planned to enter into operation in September 2022, will contribute to ensuring a lawful use of the visa exemption by third country nationals. In addition, the European Travel Information and Authorisation System (ETIAS), which is planned to start operating in May 2023, will allow for the pre-travel screening for visa-free third country nationals, effectively contributing to maintaining and strengthening the security of the Schengen Area.

.2.LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY

•Legal basis