Directive 2004/38/EC of the European Parliament and of the Council of 29 April 2004 on the right of citizens of the Union and their family members to move and reside freely within the territory of the Member States amending Regulation (EEC) No 1612/68 and repealing Directives 64/221/EEC, 68/360/EEC, 72/194/EEC, 73/148/EEC, 75/34/EEC, 75/35/EEC, 90/364/EEC, 90/365/EEC and 93/96/EEC (Text with EEA relevance)
Date: 2004-04-29
Institutions: Council of the European Union, European Parliament
Subjects: EU visa policy, European citizenship, family, foreign national, freedom of movement, residence permit

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DIRECTIVE 2004/38/EC OF THE EUROPEAN PARLIAMENT

AND OF THE COUNCIL

of 29 April 2004

on the right of citizens of the Union and their family members

to move and reside freely within the territory of the Member States

amending Regulation (EEC) No 1612/68 and repealing Directives 64/221/EEC,

68/360/EEC, 72/194/EEC, 73/148/EEC, 75/34/EEC, 75/35/EEC,

90/364/EEC, 90/365/EEC and 93/96/EEC

(Text with EEA relevance)

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION,

Having regard to the Treaty establishing the European Community, and in particular Articles 12,

18, 40, 44 and 52 thereof,

Having regard to the proposal from the Commission 1,

Having regard to the Opinion of the European Economic and Social Committee 2,

Having regard to the Opinion of the Committee of the Regions 3,

Acting in accordance with the procedure laid down in Article 251 of the Treaty 4,

1

2

3
4 

OJ C 270 E, 25.9.2001, p. 150.
OJ C 149, 21.6.2002, p. 46.
OJ C 192, 12.8.2002, p. 17.
Opinion of the European Parliament of 11 February 2003 (OJ C 43 E, 19.2.2004, p. 42),
Council Common Position of 5 December 2003 (OJ C 54 E, 2.3.2004, p. 12) and Position of
the European Parliament of 10 March 2004 (not yet published in the Official Journal).

                                                
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Whereas:

(1) Citizenship of the Union confers on every citizen of the Union a primary and individual right

to move and reside freely within the territory of the Member States, subject to the limitations

and conditions laid down in the Treaty and to the measures adopted to give it effect.

(2) The free movement of persons constitutes one of the fundamental freedoms of the

internal market, which comprises an area without internal frontiers, in which freedom is

ensured in accordance with the provisions of the Treaty.

(3) Union citizenship should be the fundamental status of nationals of the Member States when

they exercise their right of free movement and residence.  It is therefore necessary to codify

and review the existing Community instruments dealing separately with workers,

self-employed persons, as well as students and other inactive persons in order to simplify and

strengthen the right of free movement and residence of all Union citizens.

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(4) With a view to remedying this sector-by-sector, piecemeal approach to the right of

free movement and residence and facilitating the exercise of this right, there needs to be a

single legislative act to amend Council Regulation (EEC) No 1612/68 of 15 October 1968 on
freedom of movement for workers within the Community 1, and to repeal the following acts:

Council Directive 68/360/EEC of 15 October 1968 on the abolition of restrictions on

movement and residence within the Community for workers of Member States and their
families 2, Council Directive 73/148/EEC of 21 May 1973 on the abolition of restrictions on

movement and residence within the Community for nationals of Member States with regard to
establishment and the provision of services 3, Council Directive 90/364/EEC of 28 June 1990
on the right of residence 4, Council Directive 90/365/EEC of 28 June 1990 on the right of

residence for employees and self-employed persons who have ceased their occupational
activity 5 and Council Directive 93/96/EEC of 29 October 1993 on the right of residence for
students 6.

(5) The right of all Union citizens to move and reside freely within the territory of the Member

States should, if it is to be exercised under objective conditions of freedom and dignity, be

also granted to their family members, irrespective of nationality.  For the purposes of this

Directive, the definition  of "family member" should also include the registered partner if the

legislation of the host Member State treats registered partnership as equivalent to marriage.

1

2

3

4

5

6

OJ L 257, 19.10.1968, p. 2.  Regulation as last amended by Regulation (EEC) No 2434/92
(OJ L 245, 26.8.1992, p. 1).
OJ L 257, 19.10.1968, p. 13.  Directive as last amended by the 2003 Act of Accession.
OJ L 172, 28.6.1973, p. 14.
OJ L 180, 13.7.1990, p. 26.
OJ L 180, 13.7.1990, p. 28.
OJ L 317, 18.12.1993, p. 59.

                                                
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(6)

In order to maintain the unity of the family in a broader sense and without prejudice to the

prohibition of discrimination on grounds of nationality, the situation of those persons who are

not included in the definition of family members under this Directive, and who therefore do

not enjoy an automatic right of entry and residence in the host Member State, should be

examined by the host Member State on the basis of its own national legislation, in order to

decide whether entry and residence could be granted to such persons, taking into

consideration their relationship with the Union citizen or any other circumstances, such as

their financial or physical dependence on the Union citizen.

(7) The formalities connected with the free movement of Union citizens within the territory of

Member States should be clearly defined, without prejudice to the provisions applicable to

national border controls.

(8) With a view to facilitating the free movement of family members who are not nationals of a

Member State, those who have already obtained a residence card should be exempted from

the requirement to obtain an entry visa within the meaning of Council Regulation (EC)

No 539/2001 of 15 March 2001 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 1 or, where appropriate, of the applicable national legislation.

(9) Union citizens should have the right of residence in the host Member State for a period

not exceeding three months without being subject to any conditions or any formalities

other than the requirement to hold a valid identity card or passport, without prejudice to a

more favourable treatment applicable to job-seekers as recognised by the case-law of the

Court of Justice.

1 

OJ L 81, 21.3.2001, p. 1.  Regulation as last amended by Regulation (EC) No 453/2003
(OJ L 69, 13.3.2003, p. 10).

                                                
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(10) Persons exercising their right of residence should not, however, become an unreasonable

burden on the social assistance system of the host Member State during an initial period of

residence.  Therefore, the right of residence for Union citizens and their family members for

periods in excess of three months should be subject to conditions.

(11) The fundamental and personal right of residence in another Member State is conferred

directly on Union citizens by the Treaty and is not dependent upon their having fulfilled

administrative procedures.

(12) For periods of residence of longer than three months, Member States should have the

possibility to require Union citizens to register with the competent authorities in the place of

residence, attested by a registration certificate issued to that effect.

(13) The residence card requirement should be restricted to family members of Union citizens who

are not nationals of a Member State for periods of residence of longer than three months.

(14) The supporting documents required by the competent authorities for the issuing of a

registration certificate or of a residence card should be comprehensively specified in order to

avoid divergent administrative practices or interpretations constituting an undue obstacle to

the exercise of the right of residence by Union citizens and their family members.

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(15) Family members should be legally safeguarded in the event of the death of the Union citizen,

divorce, annulment of marriage or termination of a registered partnership.  With due regard

for family life and human dignity, and in certain conditions to guard against abuse, measures

should therefore be taken to ensure that in such circumstances family members already

residing within the territory of the host Member State retain their right of residence

exclusively on a personal basis.

(16) As long as the beneficiaries of the right of residence do not become an unreasonable burden

on the social assistance system of the host Member State they should not be expelled.

Therefore, an expulsion measure should not be the automatic consequence of recourse to the

social assistance system.  The host Member State should examine whether it is a case of

temporary difficulties and take into account the duration of residence, the personal

circumstances and the amount of aid granted in order to consider whether the beneficiary has

become an unreasonable burden on its social assistance system and to proceed to his

expulsion.  In no case should an expulsion measure be adopted against workers,

self-employed persons or job-seekers as defined by the Court of Justice save on grounds of

public policy or public security.

(17) Enjoyment of permanent residence by Union citizens who have chosen to settle long term in

the host Member State would strengthen the feeling of Union citizenship and is a key element

in promoting social cohesion, which is one of the fundamental objectives of the Union.  A

right of permanent residence should therefore be laid down for all Union citizens and their

family members who have resided in the host Member State in compliance with the

conditions laid down in this Directive during a continuous period of five years without

becoming subject to an expulsion measure.

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(18)

In order to be a genuine vehicle for integration into the society of the host Member State in

which the Union citizen resides, the right of permanent residence, once obtained, should not

be subject to any conditions.

(19) Certain advantages specific to Union citizens who are workers or self-employed persons and

to their family members, which may allow these persons to acquire a right of permanent

residence before they have resided five years in the host Member State, should be maintained,

as these constitute acquired rights, conferred by Commission Regulation (EEC) No 1251/70 

of 29 June 1970 on the right of workers to remain in the territory of a Member State after
having been employed in that State 1 and Council Directive 75/34/EEC of 17 December 1974

concerning the right of nationals of a Member State to remain in the territory of another
Member State after having pursued therein an activity in a self-employed capacity 2.

(20)

In accordance with the prohibition of discrimination on grounds of nationality, all Union

citizens and their family members residing in a Member State on the basis of this Directive

should enjoy, in that Member State, equal treatment with nationals in areas covered by the

Treaty, subject to such specific provisions as are expressly provided for in the Treaty and

secondary law.

1 
2 

OJ L 142, 30.6.1970, p. 24.
OJ L 14, 20.1.1975, p. 10.

                                                
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(21) However, it should be left to the host Member State to decide whether it will grant social

assistance during the first three months of residence, or for a longer period in the case of

job-seekers, to Union citizens other than those who are workers or self-employed persons or

who retain that status or their family members, or maintenance assistance for studies,

including vocational training, prior to acquisition of the right of permanent residence, to these

same persons.

(22) The Treaty allows restrictions to be placed on the right of free movement and residence on

grounds of public policy, public security or public health.  In order to ensure a tighter

definition of the circumstances and procedural safeguards subject to which Union citizens and

their family members may be denied leave to enter or may be expelled, this Directive should

replace Council Directive 64/221/EEC of 25 February 1964  on the coordination of special

measures concerning the movement and residence of foreign nationals, which are justified on
grounds of public policy, public security or public health 1.

(23) Expulsion of Union citizens and their family members on grounds of public policy or public

security is a measure that can seriously harm persons who, having availed themselves of the

rights and freedoms conferred on them by the Treaty, have become genuinely integrated into

the host Member State.  The scope for such measures should therefore be limited in

accordance with the principle of proportionality to take account of the degree of integration of

the persons concerned, the length of their residence in the host Member State, their age, state

of health, family and economic situation and the links with their country of origin.

1 

OJ 56, 4.4.1964, p. 850.  Directive as last amended by Directive 75/35/EEC
(OJ 14, 20.1.1975, p. 14).

                                                
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(24) Accordingly, the greater the degree of integration of Union citizens and their family members

in the host Member State, the greater the degree of protection against expulsion should be.

Only in exceptional circumstances, where there are imperative grounds of public security,

should an expulsion measure be taken against Union citizens who have resided for many

years in the territory of the host Member State, in particular when they were born and have

resided there throughout their life.  In addition, such exceptional circumstances should also

apply to an expulsion measure taken against minors, in order to protect their links with their

family, in accordance with the United Nations Convention on the Rights of the Child, of

20 November 1989.

(25) Procedural safeguards should also be specified in detail in order to ensure a high level of

protection of the rights of Union citizens and their family members in the event of their being

denied leave to enter or reside in another Member State, as well as to uphold the principle that

any action taken by the authorities must be properly justified.

(26)

In all events, judicial redress procedures should be available to Union citizens and their family

members who have been refused leave to enter or reside in another Member State.

(27)

In line with the case-law of the Court of Justice prohibiting Member States from issuing

orders excluding for life persons covered by this Directive from their territory, the right of

Union citizens and their family members who have been excluded from the territory of a

Member State to submit a fresh application after a reasonable period, and in any event after a

three year period from enforcement of the final exclusion order, should be confirmed.

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(28) To guard against abuse of rights or fraud, notably marriages of convenience or any other form

of relationships contracted for the sole purpose of enjoying the right of free movement and

residence, Member States should have the possibility to adopt the necessary measures.

(29) This Directive should not affect more favourable national provisions.

(30) With a view to examining how further to facilitate the exercise of the right of free movement

and residence, a report should be prepared by the Commission in order to evaluate the

opportunity to present any necessary proposals to this effect, notably on the extension of the

period of residence with no conditions.

(31) This Directive respects the fundamental rights and freedoms and observes the principles

recognised in particular by the Charter of Fundamental Rights of the European Union. In

accordance with the prohibition of discrimination contained in the Charter, Member States

should implement this Directive without discrimination between the beneficiaries of this

Directive on grounds such as sex, race, colour, ethnic or social origin, genetic characteristics,

language, religion or beliefs, political or other opinion, membership of an ethnic minority,

property, birth, disability, age or sexual orientation,

HAVE ADOPTED THIS DIRECTIVE:

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CHAPTER I

General provisions

Article 1

Subject

This Directive lays down:

(a)

the conditions governing the exercise of the right of free movement and residence within the

territory of the Member States by Union citizens and their family members;

(b)

the right of permanent residence in the  territory of the Member States for Union citizens and

their family members;

(c)

the limits placed on the rights set out in (a) and (b) on grounds of public policy, public

security or public health.

Article 2

Definitions

For the purposes of this Directive:

1)

"Union citizen" means any person having the nationality of a Member State;

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2)

"Family member" means:

(a)

the spouse;

(b)

the partner with whom the Union citizen has contracted a registered partnership, on the

basis of the legislation of a Member State, if the legislation of the host Member State

treats registered partnerships as equivalent to marriage and in accordance with the

conditions laid down in the relevant legislation of the host Member State;

(c)

the direct descendants who are under the age of 21 or are dependants and those of the

spouse or partner as defined in point (b);

(d)

the dependent direct relatives in the ascending line and those of the spouse or partner as

defined in point (b);

3)

"Host Member State" means the Member State to which a Union citizen moves in order to

exercise his/her right of free movement and residence.

Article 3

Beneficiaries

1.   This Directive shall apply to all Union citizens who move to or reside in a Member State other

than that of which they are a national, and to their family members as defined in point 2 of Article 2

who accompany or join them.

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2.   Without prejudice to any right to free movement and residence the persons concerned may have

in their own right, the host Member State shall, in accordance with its national legislation, facilitate

entry and residence for the following persons:

(a) 

any other family members, irrespective of their nationality, not falling under the definition in

point 2 of Article 2 who, in the country from which they have come, are dependants or

members of the household of the Union citizen having the primary right of residence, or

where serious health grounds strictly require the personal care of the family member by the

Union citizen;

(b)

 the partner with whom the Union citizen has a durable relationship, duly attested.

The host Member State shall undertake an extensive examination of the personal circumstances and

shall justify any denial of entry or residence to these people.

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CHAPTER II

Right of exit and entry

Article 4

Right of exit

1.   Without prejudice to the provisions on travel documents applicable to national border controls,

all Union citizens with a valid identity card or passport and their family members who are not

nationals of a Member State and who hold a valid passport shall have the right to leave the territory

of a Member State to travel to another Member State.

2.   No exit visa or equivalent formality may be imposed on the persons to whom paragraph 1

applies.

3.   Member States shall, acting in accordance with their laws, issue to their own nationals, and

renew, an identity card or passport stating their nationality.

4.   The passport shall be valid at least for all Member States and for countries through which the

holder must pass when travelling between Member States.  Where the law of a Member State does

not provide for identity cards to be issued, the period of validity of any passport on being issued or

renewed shall be not less than five years.

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Article 5

Right of entry

1.   Without prejudice to the provisions on travel documents applicable to national border controls,

Member States shall grant Union citizens leave to enter their territory with a valid identity card or

passport and shall grant family members who are not nationals of a Member State leave to enter

their territory with a valid passport.

No entry visa or equivalent formality may be imposed on Union citizens.

2.   Family members who are not nationals of a Member State shall only be required to have an

entry visa in accordance with Regulation (EC) No 539/2001 or, where appropriate, with national

law.  For the purposes of this Directive, possession of the valid residence card referred to in

Article 10 shall exempt such family members from the visa requirement.

Member States shall grant such persons every facility to obtain the necessary visas.  Such visas

shall be issued free of charge as soon as possible and on the basis of an accelerated procedure.

3.   The host Member State shall not place an entry or exit stamp in the passport of family members

who are not nationals of a Member State provided that they present the residence card provided for

in Article 10.

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4.   Where a Union citizen, or a family member who is not a national of a Member State, does not

have the necessary travel documents or, if required, the necessary visas, the Member State

concerned shall, before turning them back, give such persons every reasonable opportunity to obtain

the necessary documents or have them brought to them within a reasonable period of time or to

corroborate or prove by other means that they are covered by the right of free movement and

residence.

5.   The Member State may require the person concerned to report his/her presence within its

territory within a reasonable and non-discriminatory period of time.  Failure to comply with this

requirement may make the person concerned liable to proportionate and non-discriminatory

sanctions.

CHAPTER III

Right of residence

Article 6

Right of residence for up to three months

1.   Union citizens shall have the right of residence on the territory of another Member State for a

period of up to three months without any conditions or any formalities other than the requirement to

hold a valid identity card or passport.

2.   The provisions of paragraph 1 shall also apply to family members in possession of a valid

passport who are not nationals of a Member State, accompanying or joining the Union citizen.

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Article 7

Right of residence for more than three months

1.   All Union citizens shall have the right of residence on the territory of another Member State for

a period of longer than three months if they:

(a)

are workers or self-employed persons in the host Member State; or

(b)

have sufficient resources for themselves and their family members not to become a burden on

the social assistance system of the host Member State during their period of residence and

have comprehensive sickness insurance cover in the host Member State; or

(c)

–

are enrolled at a private or public establishment, accredited or financed by the host

Member State on the basis of its legislation or administrative practice, for the principal

purpose of following a course of study, including vocational training; and

–

have comprehensive sickness insurance cover in the host Member State and assure the

relevant national authority, by means of a declaration or by such equivalent means as

they may choose, that they have sufficient resources for themselves and their family

members not to become a burden on the social assistance system of the host Member

State during their period of residence; or

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(d) 

are family members accompanying or joining a Union citizen who satisfies the conditions

referred to in points (a), (b) or (c).

2.   The right of residence provided for in paragraph 1 shall extend to family members who are not

nationals of a Member State, accompanying or joining the Union citizen in the host Member State,

provided that such Union citizen satisfies the conditions referred to in paragraph 1(a), (b) or (c).

3.   For the purposes of paragraph 1(a), a Union citizen who is no longer a worker or self-employed

person shall retain the status of worker or self-employed person in the following circumstances:

(a)

he/she is temporarily unable to work as the result of an illness or accident;

(b)

he/she is in duly recorded involuntary unemployment after having been employed for more

than one year and has registered as a job-seeker with the relevant employment office;

(c)

he/she is in duly recorded involuntary unemployment after completing a fixed-term

employment contract of less than a year or after having become involuntarily unemployed

during the first twelve months and has registered as a job-seeker with the relevant

employment office.  In this case, the status of worker shall be retained for no less than six

months;

(d)

he/she embarks on vocational training.  Unless he/she is involuntarily unemployed, the

retention of the status of worker shall require the training to be related to the previous

employment.

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4.   By way of derogation from paragraphs 1(d) and 2 above, only the spouse, the registered partner

provided for in Article 2(2)(b) and dependent children shall have the right of residence as family

members of a Union citizen meeting the conditions under 1(c) above.  Article 3(2) shall apply to

his/her dependent direct relatives in the ascending lines and those of his/her spouse or registered

partner.

Article 8

Administrative formalities for Union citizens

1.   Without prejudice to Article 5(5), for periods of residence longer than three months, the host

Member State may require Union citizens to register with the relevant authorities.

2.   The deadline for registration may not be less than three months from the date of arrival.  A
registration certificate shall be issued immediately, stating the name and address of the person

registering and the date of the registration.  Failure to comply with the registration requirement may

render  the person concerned liable to proportionate and non-discriminatory sanctions.

3.   For the registration certificate to be issued, Member States may only require that

–

Union citizens to whom point (a) of Article 7(1) applies present a valid identity card or

passport, a confirmation of engagement from the employer or a certificate of employment, or

proof that they are self-employed persons;

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–

Union citizens to whom point (b) of Article 7(1) applies present a valid identity card or

passport and provide proof that they satisfy the conditions laid down therein;

–

Union citizens to whom point (c) of Article 7(1) applies present a valid identity card or

passport, provide proof of enrolment at an accredited establishment and of comprehensive

sickness insurance cover and the declaration or equivalent means referred to in point (c) of

Article 7(1).  Member States may not require this declaration to refer to any specific amount

of resources.

4.   Member States may not lay down a fixed amount which they regard as "sufficient resources",

but they must take into account the personal situation of the person concerned.  In all cases this

amount shall not be higher than the threshold below which nationals of the host Member State

become eligible for social assistance, or, where this criterion is not applicable, higher than the

minimum social security pension paid by the host Member State.

5.   For the registration certificate to be issued to family members of Union citizens, who are

themselves Union citizens, Member States may require the following documents to be presented:

(a)

a valid identity card or passport;

(b)

a document attesting to the existence of a family relationship or of a registered partnership;

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(c) where appropriate, the registration certificate of the Union citizen whom they are

accompanying or joining;

(d) 

in cases falling under points (c) and (d) of Article 2(2), documentary evidence that the

conditions laid down therein are met;

(e)

in cases falling under Article 3(2)(a), a document issued by the relevant authority in the

country of origin or country from which they are arriving certifying that they are dependants

or members of the household of the Union citizen, or proof of the existence of serious health

grounds which strictly require the personal care of the family member by the Union citizen;

(f)

in cases falling under Article 3(2)(b), proof of the existence of a durable relationship with the

Union citizen.

Article 9

Administrative formalities for family members

who are not nationals of a Member State

1.   Member States shall issue a residence card to family members of a Union citizen who are not

nationals of a Member State, where the planned period of residence is for more than three months.

2.   The deadline for submitting the residence card application may not be less than three months

from the date of arrival.

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3.   Failure to comply with the requirement to apply for a residence card may make the person

concerned liable to proportionate and non-discriminatory sanctions.

Article 10

Issue of residence cards

1.   The right of residence of family members of a Union citizen who are not nationals of a Member

State shall be evidenced by the issuing of a document called "Residence card of a family member of

a Union citizen" no later than six months from the date on which they submit the application.  A

certificate of application for the residence card shall be issued immediately.

2.   For the residence card to be issued, Member States shall require presentation of the following

documents:

(a)

a valid passport;

(b)

a document attesting to the existence of a family relationship or of a registered partnership;

(c)

the registration certificate or, in the absence of a registration system, any other proof of

residence in the host Member State of the Union citizen whom they are accompanying or

joining;

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(d) 

in cases falling under points (c) and (d) of Article 2(2), documentary evidence that the

conditions laid down therein are met;

(e)

in cases falling under Article 3(2)(a), a document issued by the relevant authority in the

country of origin or country from which they are arriving certifying that they are dependants

or members of the household of the Union citizen, or proof of the existence of serious health

grounds which strictly require the personal care of the family member by the Union citizen;

(f)

in cases falling under Article 3(2)(b), proof of the existence of a durable relationship with the

Union citizen.

Article 11

Validity of the residence card

1.   The residence card provided for by Article 10(1) shall be valid for five years from the date of

issue or for the envisaged period of residence of the Union citizen, if this period is less than five

years.

2.   The validity of the residence card shall not be affected by temporary absences not exceeding six

months a year, or by absences of a longer duration for compulsory military service or by one

absence of a maximum of twelve consecutive months for important reasons such as pregnancy and

childbirth, serious illness, study or vocational training, or a posting in another Member State or a

third country.

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Article 12

Retention of the right of residence by family members

in the event of death or departure of the Union citizen

1.   Without prejudice to the second subparagraph, the Union citizen's death or departure from the

host Member State shall not affect the right of residence of his/her family members who are

nationals of a Member State.

Before acquiring the right of permanent residence, the persons concerned must meet the conditions

laid down in points (a), (b), (c) or (d) of Article 7(1).

2.   Without prejudice to the second subparagraph, the Union citizen's death shall not entail loss of

the right of residence of his/her family members who are not nationals of a Member State and who

have been residing in the host Member State as family members for at least one year before the

Union citizen's death.

Before acquiring the right of permanent residence, the right of residence of the persons concerned

shall remain subject to the requirement that they are able to show that they are workers or

self-employed persons or that they have sufficient resources for themselves and their family

members not to become a burden on the social assistance system of the host Member State during

their period of residence and have comprehensive sickness insurance cover in the host Member

State, or that they are members of the family, already constituted in the host Member State, of a

person satisfying these requirements.   "Sufficient resources" shall be as defined in Article 8(4).

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Such family members shall retain their right of residence exclusively on a personal basis.

3.   The Union citizen's departure from the host Member State or his/her death shall not entail loss

of the right of residence of his/her children or of the parent who has actual custody of the children,

irrespective of nationality, if the children reside in the host Member State and are enrolled at an

educational establishment, for the purpose of studying there, until the completion of their studies.

Article 13

Retention of the right of residence by family members in the event

of divorce, annulment of marriage or termination of registered partnership 

1.   Without prejudice to the second subparagraph, divorce, annulment of  the Union citizen's

marriage or termination of his/her registered partnership, as referred to in point 2(b) of Article 2

shall not affect the right of residence of his/her family members who are nationals of a Member

State.

Before acquiring the right of permanent residence, the persons concerned must meet the conditions

laid down in points (a), (b), (c) or (d) of Article 7(1).

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2.   Without prejudice to the second subparagraph, divorce, annulment of marriage or termination of

the registered partnership  referred to in point 2(b) of Article 2 shall not entail loss of the right of

residence of a Union citizen's family members who are not nationals of a Member State where:

(a)

prior to initiation of the divorce or annulment proceedings or termination of the registered

partnership referred to in point 2(b) of Article 2, the marriage or registered partnership has

lasted at least three years, including one year in the host Member State; or

(b)

by agreement between the spouses or the partners referred to in point 2(b) of Article 2 or by

court order, the spouse or partner who is not a national of a Member State has custody of the

Union citizen's children; or

(c)

this is warranted by particularly difficult circumstances, such as having been a victim of

domestic violence while the marriage or registered partnership was subsisting; or

(d)

by agreement between the spouses or partners referred to in point 2(b) of Article 2 or by court

order, the spouse or partner who is not a national of a Member State has the right of access to

a minor child, provided that the court has ruled that such access must be in the host Member

State, and for as long as is required.

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Before acquiring the right of permanent residence, the right of residence of the persons concerned

shall remain subject to the requirement that they are able to show that they are workers or

self-employed persons or that they have sufficient resources for themselves and their family

members not to become a burden on the social assistance system of the host Member State during

their period of residence and have comprehensive sickness insurance cover in the host

Member State, or that they are members of the family, already constituted in the host Member State,

of a person satisfying these requirements.  "Sufficient resources" shall be as defined in Article 8(4).

Such family members shall retain their right of residence exclusively on personal basis.

Article 14

Retention of the right of residence

1.   Union citizens and their family members shall have the right of residence provided for in

Article 6, as long as they do not become an unreasonable burden on the social assistance system of

the host Member State.

2.   Union citizens and their family members shall have the right of residence provided for in

Articles 7, 12 and 13 as long as they meet the conditions set out therein.

In specific cases where there is a reasonable doubt as to whether a Union citizen or his/her family

members satisfies the conditions set out in Articles 7, 12 and 13, Member States may verify if these

conditions are fulfilled.  This verification shall not be carried out systematically.

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3.   An expulsion measure shall not be the automatic consequence of a Union citizen's or his or her

family member's recourse to the social assistance system of the host Member State.

4.   By way of derogation from paragraphs 1 and 2 and without prejudice to the provisions of

Chapter VI, an expulsion measure may in no case be adopted against Union citizens or their family

members if:

(a)

the Union citizens are workers or self-employed persons, or

(b)

the Union citizens entered the territory of the host Member State in order to seek employment.

In this case, the Union citizens and their family members  may not be expelled for as long as

the Union citizens can provide evidence that they are continuing to seek employment and that

they have a genuine chance of being engaged.

Article 15

Procedural safeguards

1.   The procedures provided for by Articles 30 and 31 shall apply by analogy to all decisions

restricting free movement of Union citizens and their family members on grounds other than public

policy, public security or public health.

2.   Expiry of the identity card or passport on the basis of which the person concerned entered the

host Member State and was issued with a registration certificate or residence card shall not

constitute a ground for expulsion from the host Member State.

3.   The host Member State may not impose a ban on entry in the context of an expulsion decision to

which paragraph 1 applies.

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CHAPTER IV

Right of permanent residence

Section I

Eligibility

Article 16

General rule for Union citizens and their family members

1.   Union citizens who have resided legally for a continuous period of five years in the host

Member State shall have the right of permanent residence there.  This right shall not be subject to

the conditions provided for in Chapter III. 

2.   Paragraph 1 shall apply also to family members who are not nationals of a Member State and

have legally resided with the Union citizen in the host Member State for a continuous period of

five years.

3.   Continuity of residence shall not be affected by temporary absences not exceeding a total of six

months a year, or by absences of a longer duration for compulsory military service, or by one

absence of a maximum of twelve consecutive months for important reasons such as pregnancy and

childbirth, serious illness, study or vocational training, or a posting in another Member State or a

third country.

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4.   Once acquired, the right of permanent residence shall be lost only through absence from the host

Member State for a period exceeding two consecutive years.

Article 17

Exemptions for persons no longer working in the host Member State

and their family members

1.   By way of derogation from Article 16, the right of permanent residence in the host Member

State shall be enjoyed before completion of a continuous period of five years of residence by:

(a) workers or self-employed persons who, at the time they stop working, have reached the age

laid down by the law of that Member State for entitlement to an old age pension or workers

who cease paid employment to take early retirement, provided that they have been working in

that Member State for at least the preceding twelve months and have resided there

continuously for more than three years.

If the law of the host Member State does not grant the right to an old age pension to certain

categories of self-employed persons, the age condition shall be deemed to have been met once

the person concerned has reached the age of 60;

(b) workers or self-employed persons who have resided continuously in the host Member State

for more than two years and stop working there as a result of permanent incapacity to work.

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If such incapacity is the result of an accident at work or an occupational disease entitling the

person concerned to a benefit payable in full or in part by an institution in the host Member

State, no condition shall be imposed as to length of residence;

(c) workers or self-employed persons who, after three years of continuous employment and

residence in the host Member State, work in an employed or self-employed capacity in

another Member State, while retaining their place of residence in the host Member State, to

which they return, as a rule, each day or at least once a week.

For the purposes of entitlement to the rights referred to in points (a) and (b), periods of

employment spent in the Member State in which the person concerned is working shall be

regarded as having been spent in the host Member State.

Periods of involuntary unemployment duly recorded by the relevant employment office, periods not

worked for reasons not of the person's own making and absences from work or cessation of work

due to illness or accident shall be regarded as periods of employment.

2.   The conditions as to length of residence and employment laid down in point (a) of paragraph 1

and the condition as to length of residence laid down in point (b) of paragraph 1 shall not apply if

the worker's or the self-employed person's spouse or partner as referred to in point 2(b) of Article 2

is a national of the host Member State or has lost the nationality of that  Member State by marriage

to that worker or self-employed person.

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3.   Irrespective of nationality, the family members of a worker or a self-employed person who are

residing with him in the territory of the host Member State shall have the right of permanent

residence in that Member State, if the worker or self-employed person has acquired himself the

right of permanent residence in that Member State on the basis of paragraph 1.

4.   If, however, the worker or self-employed person dies while still working but before acquiring

permanent residence status in the host Member State on the basis of paragraph 1, his family

members who are residing with him in the host Member State shall acquire the right of permanent

residence there, on condition that:

(a)

the worker or self-employed person had, at the time of death, resided continuously on the

territory of that Member State for two years; or 

(b)

the death resulted from an accident at work or an occupational disease; or

(c)

the surviving spouse lost the nationality of that Member State following marriage to

the worker or self-employed person.

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Article 18

Acquisition of the right of permanent residence by certain family members

who are not nationals of a Member State

Without prejudice to Article 17, the family members of a Union citizen to whom Articles 12(2)

and 13(2) apply, who satisfy the conditions laid down therein, shall acquire the right of permanent

residence after residing legally for a period of five consecutive years in the host Member State.

Section II

Administrative formalities

Article 19

Document certifying permanent residence for Union citizens

1.   Upon application Member States shall issue Union citizens entitled to permanent residence,

after having verified duration of residence, with a document certifying permanent residence.

2.   The document certifying permanent residence shall be issued as soon as possible.

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Article 20

Permanent residence card for family members

who are not nationals of a Member State

1.   Member States shall issue family members who are not nationals of a Member State entitled to

permanent residence with a permanent residence card within six months of the submission of the

application.  The permanent residence card shall be renewable automatically every ten years.

2.   The application for a permanent residence card shall be submitted before the residence card

expires.  Failure to comply with the requirement to apply for a permanent residence card may

render the person concerned liable to proportionate and non-discriminatory sanctions.

3.   Interruption in residence not exceeding two consecutive years shall not affect the validity of the

permanent residence card.

Article 21

Continuity of residence

For the purposes of this Directive, continuity of residence may be attested by any means of proof in

use in the host Member State.  Continuity of residence is broken by any expulsion decision duly

enforced against the person concerned.

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CHAPTER V

Provisions common to the right of residence

and the right of permanent residence

Article 22

Territorial scope

The right of residence and the right of permanent residence shall cover the whole territory of the

host Member State.  Member States may impose territorial restrictions on the right of residence

and the right of permanent residence only where the same restrictions apply to their

own nationals.

Article 23

Related rights

Irrespective of nationality, the family members of a Union citizen who have the right of

residence or the right of permanent residence in a Member State shall be entitled to take up

employment or self-employment there.

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Article 24

Equal treatment

1.   Subject to such specific provisions as are expressly provided for in the Treaty and secondary

law, all Union citizens residing on the basis of this Directive in the territory of the host Member

State shall enjoy equal treatment with the nationals of that Member State within the scope of the

Treaty.  The benefit of this right shall be extended to family members who are not nationals of a

Member State and who have the right of residence or permanent residence.

2.   By way of derogation from paragraph 1, the host Member State shall not be obliged to confer

entitlement to social assistance during the first three months of residence or, where appropriate, the

longer period provided for in Article 14(4)(b), nor shall it be obliged, prior to acquisition of the

right of permanent residence, to grant maintenance aid for studies, including vocational training,

consisting in student grants or student loans to persons other than workers, self-employed persons,

persons who retain such status and members of their families.

Article 25

General provisions concerning residence documents

1.   Possession of a registration certificate as referred to in Article 8, of a document certifying

permanent residence, of a certificate attesting submission of an application for a family member

residence card, of a residence card or of a permanent residence card, may under no circumstances

be made a precondition for the exercise of a right or the completion of an administrative formality,

as entitlement to rights may be attested by any other means of proof. 

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2.   All documents mentioned in paragraph 1 shall be issued free of charge or for a charge not

exceeding that imposed on nationals for the issuing of similar documents.

Article 26

Checks

Member States may carry out checks on compliance with any requirement deriving from their

national legislation for non-nationals always to carry their registration certificate or residence card,

provided that the same requirement applies to their own nationals as regards their identity card.

In the event of failure to comply with this requirement, Member States may impose the same

sanctions as those imposed on their own nationals for failure to carry their identity card.

CHAPTER VI

Restrictions on the right of entry and the right of residence on grounds

of public policy, public security or public health

Article 27

General principles

1.   Subject to the provisions of this Chapter, Member States may restrict the freedom of movement

and residence of Union citizens and their family members, irrespective of nationality, on grounds of

public policy, public security or public health.  These grounds shall not be invoked to serve

economic ends.

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2.   Measures taken on grounds of public policy or public security shall comply with the principle of

proportionality and shall be based exclusively on the personal conduct of the individual concerned.

Previous criminal convictions shall not in themselves constitute grounds for taking such measures.

The personal conduct of the individual concerned must represent a genuine, present and sufficiently

serious threat affecting one of the fundamental interests of society.  Justifications that are isolated

from the particulars of the case or that rely on considerations of general prevention shall not be

accepted.

3.   In order to ascertain whether the person concerned represents a danger for public policy or

public security, when issuing the registration certificate or, in the absence of a registration system,

not later than three months from the date of arrival of the person concerned on its territory or from

the date of reporting his/her presence within the territory, as provided for in Article 5(5), or when

issuing the residence card, the host Member State may, should it consider this essential, request the

Member State of origin and, if need be, other Member States to provide information concerning any

previous police record the person concerned may have.  Such enquiries shall not be made as a

matter of routine.  The Member State consulted shall give its reply within two months.

4.   The Member State which issued the passport or identity card shall allow the holder of the

document who has been expelled on grounds of public policy, public security, or public health from

another Member State to re-enter its territory without any formality even if the document is no

longer valid or the nationality of the holder is in dispute.

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Article 28

Protection against expulsion

1.   Before taking an expulsion decision on grounds of public policy or public security, the host

Member State shall take account of considerations such as how long the individual concerned has

resided on its territory, his/her age, state of health, family and economic situation, social and

cultural integration into the host Member State and the extent of his/her links with the country of

origin.

2.   The host Member State may not take an expulsion decision against Union citizens or their

family members, irrespective of nationality, who have the right of permanent residence on its

territory, except on serious grounds of public policy or public security.

3.   An expulsion decision may not be taken against Union citizens, except if the decision is based

on imperative grounds of public security, as defined by Member States, if they:

(a)

have resided in the host Member State for the previous ten years; or

(b)

are a minor, except if the expulsion is necessary for the best interests of the child, as provided

for in the United Nations Convention on the Rights of the Child of 20 November 1989.

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Article 29

Public health

1.   The only diseases justifying measures restricting freedom of movement shall be the diseases

with epidemic potential as defined by the relevant instruments of the World Health Organisation

and other infectious diseases or contagious parasitic diseases if they are the subject of protection

provisions applying to nationals of the host Member State.

2.   Diseases occurring after a three-month period from the date of arrival shall not constitute

grounds for expulsion from the territory.

3.   Where there are serious indications that it is necessary, Member States may, within three

months of the date of arrival, require persons entitled to the right of residence to undergo, free of

charge, a medical examination to certify that they are not suffering from any of the conditions

referred to in paragraph 1.  Such medical examinations may not be required as a matter of routine.

Article 30

Notification of decisions

1.   The persons concerned shall be notified in writing of any decision taken under Article 27(1), in

such a way that they are able to comprehend its content and the implications for them.

2.   The persons concerned shall be informed, precisely and in full, of the public policy, public

security or public health grounds on which the decision taken in their case is based, unless this is

contrary to the interests of State security.

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3.   The notification shall specify the court or administrative authority with which the person

concerned may lodge an appeal, the time limit for the appeal and, where applicable, the time

allowed for the person to leave the territory of the Member State. Save in duly substantiated cases

of urgency, the time allowed to leave the territory shall be not less than one month from the date of

notification.

Article 31

Procedural safeguards

1.   The persons concerned shall have access to judicial and, where appropriate, administrative

redress procedures in the host Member State to appeal against or seek review of any decision taken

against them on the grounds of public policy, public security or public health.

2.   Where the application for appeal against or judicial review of the expulsion decision is

accompanied by an application for an interim order to suspend enforcement of that decision, actual

removal from the territory may not take place until such time as the decision on the interim order

has been taken, except:

–

where the expulsion decision is based on a previous judicial decision; or

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–

–

where the persons concerned have had previous access to judicial review; or

where the expulsion decision is based on imperative grounds of public security under

Article 28(3).

3.   The redress procedures shall allow for an examination of the legality of the decision, as well as

of the facts and circumstances on which the proposed measure is based.  They shall ensure that the

decision is not disproportionate, particularly in view of the requirements laid down in Article 28.

4.   Member States may exclude the individual concerned from their territory pending the redress

procedure, but they may not prevent the individual from submitting his/her defence in person,

except when his/her appearance may cause serious troubles to public policy or public security or

when the appeal or judicial review concerns a denial of entry to the territory.

Article 32

Duration of exclusion orders

1.   Persons excluded on grounds of public policy or public security may submit an application for

lifting of the exclusion order after a reasonable period, depending on the circumstances, and in any

event after three years from enforcement of the final exclusion order which has been validly

adopted in accordance with Community law, by putting forward arguments to establish that there

has been a material change in the circumstances which justified the decision ordering their

exclusion.

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The Member State concerned shall reach a decision on this application within six months of its

submission.

2.   The persons referred to in paragraph 1 shall have no right of entry to the territory of the Member

State concerned while their application is being considered.

Article 33

Expulsion as a penalty or legal consequence

1.   Expulsion orders may not be issued by the host Member State as a penalty or legal consequence

of a custodial penalty, unless they conform to the requirements of Articles 27, 28 and 29.

2.   If an expulsion order, as provided for in paragraph 1, is enforced more than two years after it

was issued, the Member State shall check that the individual concerned is currently and genuinely a

threat to public policy or public security and shall assess whether there has been any material

change in the circumstances since the expulsion order was issued.

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CHAPTER VII

Final provisions

Article 34

Publicity

Member States shall disseminate information concerning the rights and obligations of Union

citizens and their family members on the subjects covered by this Directive, particularly by means

of awareness-raising campaigns conducted through national and local media and other means of

communication.

Article 35

Abuse of rights

Member States may adopt the necessary measures to refuse, terminate or withdraw any right

conferred by this Directive in the case of abuse of rights or fraud, such as marriages of convenience.

Any such measure shall be proportionate and subject to the procedural safeguards provided for in

Articles 30 and 31.

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Article 36

Sanctions

Member States shall lay down provisions on the sanctions applicable to breaches of national rules

adopted for the implementation of this Directive and shall take the measures required for their

application.  The sanctions laid down shall be effective and proportionate.  Member States shall

notify the Commission of these provisions not later than ......* and as promptly as possible in the

case of any subsequent changes.

Article 37

More favourable national provisions

The provisions of this Directive shall not affect any laws, regulations or administrative provisions

laid down by a Member State which would be more favourable to the persons covered by this

Directive.

Article 38

Repeals

1.   Articles 10 and 11 of Regulation (EEC) No 1612/68 shall be repealed with effect from … *.

2.   Directives 64/221/EEC, 68/360/EEC, 72/194/EEC, 73/148/EEC, 75/34/EEC, 75/35/EEC,

90/364/EEC, 90/365/EEC and 93/96/EEC shall be repealed with effect from …. *.

* 

Two years from the date of entry into force of this Directive.

                                                
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3.   References made to the repealed provisions and Directives  shall be construed as being made to

this Directive.

Article 39

Report

No later than.....*  the Commission shall submit a report on the application of this Directive to the

European Parliament and the Council, together with any necessary proposals, notably on the

opportunity to extend the period of time during which Union citizens and their family members may

reside in the territory of the host Member State without any conditions.  The Member States shall

provide the Commission with the information needed to produce the report.

Article 40

Transposition

1.   Member States shall bring into force the laws, regulations and administrative provisions
necessary to comply with this Directive by ……**.

When Member States adopt those measures, they shall contain a reference to this Directive or shall

be accompanied by such a reference on the occasion of their official publication.  The methods of

making such reference shall be laid down by the Member States.

* 
** 

Four years from the date of entry into force of this Directive
Two years from the date of entry into force of this Directive.

                                                
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2.   Member States shall communicate to the Commission the text of the provisions of national law

which they adopt in the field covered by this Directive together with a table showing how the

provisions of this Directive correspond to the national provisions adopted.

Article 41

Entry into force

This Directive shall enter into force on the day of its publication in the Official Journal of the

European Union.

Article 42

Addressees

This Directive is addressed to the Member States.

Done at Strasbourg, 29 April 2004.

For the European Parliament

     The President

    P. COX

For the Council

 The President

M. McDOWELL