Eindrapport Inspectieonderzoek Grenscontrole in Curaçao

posted by Luceira Granviel

oktober 9th 2016

 103

Willemstad, 22 oktober 2014 – In de periode tussen september- oktober 2013 heeft de Raad voor de rechtshandhaving een inspectie verricht naar de wijze waarop de controle op het ‘personenverkeer’ in het land Curaçao is georganiseerd. Een adequate grensbewaking voor Curaçao is van groot belang. Curaçao is aantrekkelijk voor illegale immigranten uit omringende landen. Door de geografische ligging zijn deze eilanden aantrekkelijke doorgangsoorden voor reizigers en goederen tussen het Caribische gebied, Noord- en Zuid- Amerika en Europa. Daarnaast kent Curacao vele baaien waar boten kunnen aanleggen om personen of goederen aan land te brengen. Het onderzoek naar de grenscontrole ‘personenverkeer’ heeft betrekking op de periode januari 2011 tot en met juni 2013.

De Raad verstaat onder de controle op het ‘personenverkeer’: de wijze waarop de controle plaatsvindt aan de grenzen van Curaçao (zee en lucht).

De Raad heeft het geplande onderzoek toegespitst op de beantwoording van de volgende centrale vraag:

Voldoet de grenscontrole in Curaçao aan de planvorming?

Ter beantwoording van deze onderzoeksvraag zijn de volgende deelvragen geformuleerd:
1. Op welke wijze wordt de bevoegdheidsverdeling geregeld?
a) Welke wetgeving is hierop van toepassing?
b) Welke richtlijnen zijn hierop van toepassing?
c) Welke diensten zijn hierbij betrokken?

2. Op welke wijze wordt de samenwerking geregeld?
a) Welke diensten zijn hierbij betrokken?
b) Zijn er andere landen hierbij betrokken?
c) Zijn er andere entiteiten die hierbij betrokken worden?

3. Op welke wijze vindt de besluitvorming plaats?
a) Welke autoriteiten zijn er hierbij betrokken?
b) Welke ambtenaren zijn hierbij betrokken?

De bevindingen van de Raad zijn verwerkt in een rapport ‘Grenscontrole in Curaçao’ die als volgt is samengevat.

De bevoegdheidsverdeling

De regelingen met betrekking tot de grenscontrole in Curaçao zijn in de Landsverordening Toelating en Uitzetting (LTU), het Toelatingsbesluit en de HIG opgenomen. Daarnaast is er een protocol met de KMar, een onderlinge regeling op het gebied van samenwerking in de vreemdelingenketen en een onderlinge regeling betreffende verwerking politiegegevens die bepalingen bevatten die van belang zijn voor een goede uitvoering van het vreemdelingenbeleid en het grensbeheer van de landen.

De Minister van Justitie is de bevoegde autoriteit met betrekking tot de grenscontrole. De grenscontrole in Curaçao, met name controle met betrekking tot personenverkeer, wordt in Curaçao bij de havengebieden, de luchthaven en op zee verricht. De grenscontrole bij de haven en de luchthaven geschiedt door de ambtenaren grensbewaking ingedeeld binnen het KPC. Deze ambtenaren zijn buitengewone agenten van politie. Op zee geschiedt de grenscontrole door de ambtenaren van de Kustwacht. De operationele ambtenaren van de Kustwacht zijn ook buitengewone agenten van politie.
Bij de uitoefening van de werkzaamheden met betrekking tot de grenscontrole door de ambtenaren van de grensbewaking ingedeeld binnen het KPC worden een aantal bevoegdheden uitgeoefend zonder een expliciete wettelijke grondslag. Naar het oordeel van de Raad biedt de wet en regelgeving in dit aspect onvoldoende inzicht in de bevoegdheden die door ambtenaren belast met de grenscontrole kunnen worden uitgeoefend.

De besluitvorming

De Raad heeft geconstateerd dat de ambtenaren van de grensbewaking bij de haven en luchthaven opdrachten krijgen met betrekking tot grenscontrole. De Raad heeft geconstateerd dat er geen voorschriften en richtlijnen bestaan die regels bevatten over de wijze waarop uitvoering moet worden gegeven aan deze bevoegdheid.

De Raad is van oordeel dat de besluitvorming ten aanzien van grenscontrole van vreemdelingen transparant moet zijn en dat richtlijnen hiervoor moeten worden vastgesteld.

De samenwerking

Er is een samenwerkingsverband tussen verschillende entiteiten en diensten in Curaçao op het gebied van grenscontrole. Met uitzondering van de KMar bestaan er geen formele samenwerkingsverbanden met de andere diensten zoals de Toelatingsorganisatie, de Kustwacht en het Bevolkingsbureau. De Raad heeft kennis genomen dat geformaliseerde afspraken door één van de diensten als niet wenselijk werd geacht. Het is de Raad niet duidelijk waarom een formele samenwerking niet wenselijk zou zijn. De Raad juicht een effectieve samenwerking toe. Derhalve hoopt de Raad dat de samenwerking wordt voortgezet en waar nodig geïntensiveerd.

De Raad constateerde dat het samenwerkingsverband met de KMar goed verloopt. Er is echter ruimte om deze overeenkomst beter te benutten bijvoorbeeld op het gebied van kennisoverdracht.

De Raad is van oordeel dat de samenwerking tussen de Toelatingsorganisatie en de Kustwacht moet worden verbeterd. Er is geen digitale verbinding tussen de grenscontrole en de toelatingsorganisatie. Er wordt veel tijd besteed aan het telefonisch of schriftelijk opvragen van informatie.

Het aantal controle in samenwerking met de Kustwacht is beperkt. Er zijn aanwijzingen dat personen via de baaien van Curaçao vertrekken of binnenkomen zonder dat de nodige toegangscontroles worden uitgevoerd. De Raad is van oordeel dat digitale verbinding tussen de Kustwacht en het KPC nodig is.

Het is de Raad gebleken dat de onderlinge regeling op het gebied van samenwerking in de vreemdelingenketen niet is geïmplementeerd. De Raad heeft bijvoorbeeld niet kunnen vaststellen of het land Curaçao een vreemdelingenautoriteit, zoals bedoeld in artikel 4 van de onderlinge regeling samenwerking op het gebied van vreemdelingenketen, heeft aangewezen. Er wordt ook niet voldaan aan de eis om twee keer per jaar te overleggen over onder meer de werkmethode.

Conclusie

De Raad concludeert dat een aantal wetgeving betreffende grenscontrole niet volledig zijn en niet worden geïmplementeerd. De Raad concludeert voorts dat een betere controle op het vertrek en aankomst van vaartuigen via de aangewezen baaien moet plaatsvinden en dat handhavend tegen de overtreders moet worden opgetreden.

De wijze waarop de verdeling van de bevoegdheden en besluitvorming tussen de autoriteit en de ambtenaren belast met de grenscontrole bij de haven en de luchthaven plaatsvindt is niet transparant en een beslissing tot toegangsweigering wordt niet zoals voorgeschreven uitgereikt. De Raad concludeert dat de wijze waarop binnen het KPC de verdeling van de bevoegdheden en de wijze van besluitvorming plaatsvindt niet transparant is. Het aantal functionarissen dat binnen de unit vreemdelingen besluiten kan nemen met betrekking tot toegang is niet vastgesteld.

De Raad concludeert dat de samenwerking tussen de diensten sterk moet worden verbeterd.
De samenwerking met de KMar verloopt naar het oordeel van de Raad goed maar zou beter kunnen worden benut.

De Raad concludeert dat de samenwerking tussen de landen niet voldoet aan de eisen zoals vastgesteld in de onderlinge regeling op het gebied van samenwerking in de vreemdelingenketen.

Mr. G.H.E. Camelia
Raadslid namens Curaçao

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