This is an HTML version of an attachment to the Freedom of Information request 'Compromise amendments Legal migration policy and law'.

(2020/2255 (INL))
Rapporteur: Abir Al-Sahlani
Amendments covered: 21 and 22 (Devesa & Engerer)
Fall: 1-4, 6-11, 14-18 (Weimers), 5 (Skyttedal), 12-13 (Rooken), 19-20 (Fest & al)

having regard to Article 225 of Treaty on the Functioning of the European Union,

having regard to Article 3(2) of the Treaty on European Union,

having regard to Article 79 of the Treaty on the Functioning of the European Union,

having regard to the Charter of Fundamental Rights of the European Union, in particular
Article 45 thereof,

having regard to the European Pillar of Social Rights, in particular Principles 5, 10, 12
and 16 thereof,

having  regard  to  the  European Convention  for  the  Protection  of  Human  Rights  and
Fundamental Freedoms, in particular Article 2 of Protocol 4,

having  regard  to  the  Union  legal  migration  acquis  developed  between  2003  and  2021
which  regulates  the  conditions  of  entry  and  residence  and  the  rights  of  third-country
nationals working in the Union, which includes:
Directive (EU) of the European Parliament and of the Council of ... 2021 on the
conditions of entry and residence of third-country nationals for the purposes of highly
qualified employment, and repealing Council Directive 2009/50/EC1,

Directive (EU) 2016/801 of the European Parliament and of the Council of 11 May 2016
on the conditions of entry  and residence of third-country  nationals for the purposes of
research,  studies,  training,  voluntary  service,  pupil  exchange  schemes  or  educational
projects and au pairing2,

Directive 2014/36/EU of the European Parliament and of the Council of 26 February
2014 on the conditions of entry and stay of third-country nationals for the purpose of
employment as seasonal workers3,

Directive 2014/66/EU of the European Parliament and of the Council of 15 May 2014
on the conditions of entry and residence of third-country nationals in the framework of
OJ L ..., ....2021, p. .... [2016/0176 COD]
OJ L 132, 21.5.2016, p. 21.
OJ L 94, 28.3.2014, p. 375.

an intra-corporate transfer4,

Directive 2011/98/EU of the European Parliament and of the Council of 13 December
2011 on a single application procedure for a single permit for third-country nationals to
reside and work in the territory of a Member State and on a common set of rights for
third-country workers legally residing in a Member State5,

Directive 2009/52/EC of the European Parliament and of the Council of 18 June 2009
providing for minimum standards on sanctions and measures against employers of
illegally staying third-country nationals6,

having regard to Council Directive 2003/109/EC of 25 November 2003 concerning the
status of third-country nationals who are long-term residents7,

having  regard  to  Directive  2003/86/EC  of  22  September  2003  on  the  right  to  family

having regard to Directive 2011/95/EU of the European Parliament and of the Council of
13  December  2011  on  standards  for  the  qualification  of  third-country  nationals  or
stateless  persons  as  beneficiaries  of  international  protection,  for  a  uniform  status  for
refugees  or  for  persons  eligible  for  subsidiary  protection,  and  for  the  content  of  the
protection granted9,

having  regard  to  Regulation  (EU)  2016/589  of  the  European  Parliament  and  of  the
Council  of  13  April  2016  on  a  European  network  of  employment  services  (EURES),
workers' access to mobility services  and the further integration of labour markets,  and
amending Regulations (EU) No 492/2011 and (EU) No 1296/201310,

having  regard  to  Regulation  (EU)  2019/1149  of  the  European  Parliament  and  of  the
Council  of  20  June  2019  establishing  a  European  Labour  Authority,  amending
Regulations (EC)  No  883/2004,  (EU)  No  492/2011,  and  (EU)  2016/589  and  repealing
Decision (EU) 2016/34411,

having regard to the European Council conclusions on COVID-19 and migration of 24
June 2021, in particular no. 12,

having regard to the EU Emergency Trust Fund for Africa,

having  regard  to  the  Commission  staff  working  document  of  29  March  2019  entitled
‘Fitness Check on EU Legislation on legal migration’ (the ‘Fitness Check’),

having regard to the Commission communication of 13 May 2015 entitled ‘A European
OJ L 157, 27.5.2014, p. 1.
OJ L 343, 23.12.2011, p. 1.
OJ L 168, 30.6.2009, p. 24.
OJ L 16, 23.1.2004, p. 44.
OJ L 251, 3.10.2003, p. 12.
OJ L 337, 20.12.2011, p. 9.
OJ L 107, 22.4.2016, p. 1.
OJ L 186, 11.7.2019, p. 21.

Agenda on Migration’,

having regard to the Commission communication of 24 November 2020 entitled ‘Action
plan on Integration and Inclusion 2021-2027’,

having  regard  to  the  Commission  communication  of  6  April  2016  entitled  ‘Towards  a
reform  of  the  Common  European  Asylum  System  and  enhancing  legal  avenues  to

having  regard  to  the  Commission  communication  of  12  September  2018  entitled
‘Enhancing  legal  pathways  to  Europe:  an  indispensable  part  of  a  balanced  and
comprehensive migration policy’,

having regard to the Commission communication of 23 September 2020 on a New Pact
on Migration and Asylum (COM(2020)0609),

having  regard  to  the  action  plan  and  political  declaration  adopted  at  the  EU-Africa
Summit on Migration, held in Valletta on 11 and 12 November 2015, in particular their
respective parts on legal migration and mobility,

having regard to the Press Release of the Commission of 11 June 2021 entitled ‘Talent
Partnerships:  Commission  launches  new  initiative  to  address  EU  skills  shortages and
improve migration cooperation with partner countries’,

having regard to the Commission Joint Research Centre study of 23 April 2020 entitled
‘Immigrant Key Workers: Their Contribution to Europe’s COVID-19 Response’ and its
technical report of 19 May 2020 entitled ‘A vulnerable workforce: Migrant workers in
the COVID-19 pandemic’,

having regard to its resolution of 12 April 2016 on the situation in the Mediterranean and
the need for a holistic EU approach to migration12,

having regard to its resolution of 19 June 2020 on European protection of cross-border
and seasonal workers in the context of the COVID-19 crisis13,

having regard to its resolution of 20 May 2021 on new avenues for legal labour migration,
based  on  an  initiative  report  of  the  Committee  on  Civil  Liberties,  Justice  and  Home

having  regard  to  the  study  by  the  Policy  Department  for  Citizens’  Rights  and
Constitutional Affairs of its Directorate-General for Internal Policies of September 2015
entitled  ‘Exploring  new  avenues  for legislation  for  labour  migration  to  the  European

having  regard  to  the  study  by  the  Policy  Department  for  Citizens’  Rights  and
Constitutional  Affairs  of  its  Directorate-General  for  Internal  Policies  of  October  2015
entitled ‘EU cooperation with third countries in the field of migration’,

having  regard  to  the  study  by  the  European  Parliamentary  Research  Service  of  March
OJ C 58, 15.2.2018, p. 9.
Texts adopted, P9_TA(2020)0176.
Texts adopted, P9_TA(2021)0260.

2019 entitled ‘The cost of non-Europe in the area of legal migration’,

having  regard  to  the  forthcoming  study  conducted  by  the European  Parliamentary
Research Service, referred to as European Added Value Assessment on Legal Migration
Policy and Law,

having regard to the studies by the European Migration Network,

having  regard  to  the  Universal  Declaration  of  Human  Rights,  in  particular  Article  13

having  regard  to  the  Global  Compact  for  Safe,  Orderly  and  Regular  Migration  of  19
December 2018,

having regard to the international labour standards on labour migration adopted by the
International Labour Conference of the International Labour Organization,

having  regard  to  the  International  Convention  on  the  Protection  of  the  Rights  of  All
Migrant Workers and Members of Their Families adopted by the General Assembly of
the United Nations on 18 December 1990,

having  regard to the studies on legal migration  by the  Organisation for  Economic Co-
operation and Development,

having regard to the work and reports of the UN Special Rapporteur on the human rights
of migrants,

having regard to the study by the Center for Global Development of 15 July 2019, entitle
‘Maximizing the Shared Benefits of Legal Migration Pathways: Lessons from Germany’s
Skills Partnerships’,

having regards to the Africa Migration report of 2019 by the International Organisation
for Migration,

having  regards  to  the  Horizontal  substitute  impact  assessment  on  the  European
Commission’s  New  Pact  on  Migration  and  Asylum  of  August  2021  published  by  the
European Parliamentary Research Service,

having regard to Rules 47 and 54 of its Rules of Procedure,

having regard to the opinion of the Committee on Development,

having regard to the report of the Committee on Civil Liberties, Justice and Home Affairs

(from “Whereas an adequate” until “migration with legal pathways”)
Amendments covered: 24, 28, 29, 30, 31, 32, 33, 35, 37, 38 and 40 (Rapporteur et al.)

Whereas an adequate implementation of the existing legislation on labour migration
is equally important to proposing new legislation;

Whereas Article 79(1) of the Treaty on the Functioning of the European Union states
that “The Union shall develop a common immigration policy aimed at ensuring, at all
stages, the efficient management of migration flows, fair treatment of third-country
nationals residing legally in Member States, and the prevention of, and enhanced
measures to combat, illegal immigration and trafficking in human beings

Whereas the EU is one of the main investors in developing human capital in
neighbouring countries;

Whereas the creation of additional legal pathways on an EU level could help to
provide EU Member States with a tool to properly face upcoming demographic
challenges, as well as meeting demands of the labour markets that cannot be met by
the domestic workforce and enhance the matching of skills on the labour markets;

Whereas 23 million non-EU nationals were legally resident in EU Member States in
2020, some 5, 1% of the EU total population16;

Whereas the low issuance rate of long-term resident permits indicates that there could
be a need to improve their attractiveness, which could be achieved by a revision of the
directive clarifying the advantages of holding an EU long-term residence permit and
approximating national legislative schemes

Whereas according to the European Commission Report on the Impact of
Demographic Change from 202017, the median age of the EU27 is at 44 years today,
has been increasing for several years and will continue to do so for at least the
coming two decades;

Whereas this implies that long-term, the EU will face a growing share of the
population consisting of citizens being 65+ years old in the coming decades, while the
share representing the working age population is projected to decrease during the
same time period;

Whereas the Fitness Check clearly stated that the current EU rules on legal migration
has had limited impact in relation to attracting the skills and talents needed for the
EU labour market and economy, as well as pointing out that the current legal
framework is “fragmented and presents a number of gaps, as well as implementation

15 Please note that in the Recitals appear as Citations. The changes will be made at the final stage


Whereas the main findings of the Fitness Check highlighted effective legal migration
policies being key in the management of migratory flows;

Whereas Commissioner Ylva Johansson stated on the occasion of the launch event of
the talent partnerships on June 11th 2021 that the Commission’s strategic objective is
to replace irregular migration with legal pathways18;

COMPROMISE AMENDMENT 2B on RECITALS19 Amendment covered: 47
(Rapporteur et al.)

Whereas visa measures can act as a positive incentive in the engagement with third
countries; whereas the full implementation of the recently revised Visa Code and
additional efforts on visa facilitation with third countries are part of a comprehensive
approach to migration policy outlined in the New Pact on Migration and Asylum;
Whereas more cooperation and exchange of information would help to detect visa

Amendments covered: 23, 26 (Engerer et al.), 25,34, 36, 39, 41-45, 48 Rapporteur et
al.)DEVE 4 and DEVE 14

Whereas the partnership frameworks between EU Member States and third countries
can serve as a crucial tool in the acceleration of the mutual recognition of skills and
qualifications of legal labour migrants;

Whereas several EU Member States have already entered into successful partnerships
with third countries to create a legal pathway for labour migration, as well as
matching labour market demands on a smaller scale through pilot projects; Whereas
talent partnerships should build upon positive lessons learned from these projects;

Whereas the renewed European Partnership for Integration with social and economic
partners looks into expanding the future cooperation to the area of labour migration;

Whereas the mismatch of skills on the EU Member States’ labour markets’ has
proven very costly for the European Union, causing its economy to lose over 2% of
productivity per year according to a study from the European Economic and Social
Committee from 201821; whereas the same report states that the mismatch occurs on
all skill levels -ranging from cooks and truck drivers to medical doctors and teachers;
Whereas this report asserts that the current legislative schemes are insufficient in
ensuring that the European Union remains economically competitive in both short-,

19 Please note that in the Recitals appear as Citations. The changes will be made at the final stage
20 Please note that in the Recitals appear as Citations. The changes will be made at the final stage

medium and long-term, as well as meeting the demands of the Member States’ labour

Whereas in 2017, there were around 3.1 million EU long-term resident permits;
Whereas 7.1 million long-term residence permits were issued under Member States’
national legislation22;

Whereas the Single Permit Directive23, adopted in 2011, has the facilitation of
application procedures for a combined work and residence permit and equal
treatment as its two main objectives; whereas the evaluation of the Directive under
the Fitness Check on legal migration and its implementation report identified a
number of shortcomings with regard to the achievement of those objectives; whereas
to address those shortcomings, the 2020 Commission Pact on Migration and Asylum
announced a number of new initiatives, including a revision of the Single permit

Whereas technical developments have transformed the way the world works and in
lieu has created a situation for many EU workers and self-employed persons to work
remotely; whereas remote workers are however currently stuck in a legal grey area,
as they cannot apply for a traditional work permit in a Member State24;

Whereas a number of Member States have launched new “Digital Nomad Visas”,
which aim at facilitating the residence of remote workers or remote self-employed
persons within a Member State and allowing them to work25;

Whereas the European Union is in the process of a post-pandemic economic
recovery; whereas improved legislative schemes on legal labour migration are a
decisive factor for the economic recovery of the European Union;

Whereas according to a publication from the Commission on 24 April 2020, an
average of 13 % of keyworkers for societies are immigrants in the EU; whereas this
shows that they played a crucial role in the EU's ability to handle the COVID-19

Whereas the direct link between a legally staying TCNs right of residence
(Hereinafter TCN) and his or her employer exposes them to potential labour
exploitation; whereas there has been calls to phase out these permits and instead to
allow legally staying TCNs to change employers without losing their work permits27;

Whereas Directive 2009/52/EC of the European Parliament and of the Council
provides sanctions and measures that can be used against employers exploiting
illegally staying TCNs who are working28; whereas TCNs who have entered the EU

25 Ibidem

legally can also be exploited and should benefit from the same level of protection;
SEPARATE VOTE on AM 27 (Engerer et al.) (as addition to CA 2C to be placed
between indent 7 and indent 8)
— Whereas as noted in the European Parliament report on fair working conditions,
rights and social protection for platform workers – new forms of employment linked
to digital development (2019/2186(INI)), the misclassification of some platform
workers as self-employed causes uncertainty and deprives workers of their access to
employment rights, social protection, entitlements and the application of relevant

SEPARATE VOTE on AM 46 (Rapporteur et al.) (as addition to CA 2C)

Whereas the European Labour Authority has strengthened its cross-border
operational capacity to support and strengthen national labour inspectorates and
authorities, as well as social partners, in order to promote fair labour mobility and
tackle cross-border fraud and abuse;

Amendments covered: 50 (Boeselager), 51 (Kuhnke), 55 (Dupont), 59 (Ruiz Devesa&al), 62
(Partly, Ruiz Devesa&al), 63 (Ruiz Devesa&al)
Fall: 49 (Weimers), 53 (Rooken), 54 (Uhrík), 56 (Fest&al), 57 (Skyttedal), 58 (Rooken), 60
(Skyttedal) and 61(Weimers)
Considers that, in order to face upcoming demographic challenges in Member States,
where data trends show that the share of people aged 65 years or over is projected to
be around one third of the EU´s population by 205029 which will produce significant
labour shortages of all skill-levels30
, the Union needs to present new avenues for legal
labour migration to the Union, while also taking into account that Member States'
labour markets are different and face different kinds of labour shortages and
challenges; is of the view that these new avenues 
will prove imperative to increase its
economic competitiveness and its global influence as the champion of democracy,
inclusion, human rights, free trade in goods and services and the rule of law, and as the
leader in the fight against climate change; notes that, the said proposals should ensure
29 Ageing Europe — looking at the lives of older people in the EU — 2020 edition

decent working conditions and reduce exploitation of TCN workers; Moreover, notes
that in a scenario where barriers for legal labour migration are reduced and labour
market discrimination against TCN workers is diminished, it is estimated that long-
run GDP gains of €74.0 billion per year could be made in the EU31;  Expresses
concerns that high barriers for legal labour migration entail reduced attractiveness
for the European Union in the global competition of workers of all skill levels;
highlights that the introduction of new legal channels for migrants to enter the EU
for work could generate up to €37.6 billion per year32;

Amendments covered: 52 (Barrena&al), 67 (Partly, Dupont), 69 (Guillaume&al), 70
(Kuhnke), 71 (Guillaume&al), DEVE 3
Fall: 64 (Rooken), 65 (Weimers), 66 (Uhrík), 68 (Fest & al), 72 (Weimers), 73 (Skyttedal), 74
Requests that the Commission submit, at the latest by 31 January 2022, on the basis of
Article 79(2), in particular points (a) and (b), of the Treaty on the Functioning of the
European Union, a proposal for an act that would serve as a package of proposals to
facilitate and promote entry into and mobility within the Union for legally migrating
TCNs applying for work or already holding a work permit, and that by aligning
provisions across the existing legal migration Directives, would serve 
to reduce
bureaucracy, enhance harmonisation, promote fundamental rights such as equal
treatment and prevent labour exploitation, following the recommendations set out in
the Annex hereto; notes that such a new act supporting legal labour migration from
third countries and a greater degree of mobility remains one of the main answers to
mismatches between supply and demand
Amendment covered: 109 (Partly, Boeselager), DEVE 6
Fall: 75 (Uhrík), 78 (Fest&al), 80 (Weimers), 81 (Rooken), 82 (Guillaume&al)
Considers that the creation of an EU talent pool for TCNs who wish to apply for work
with a view to migrating legally to a Member State, as well as for union-based
employers to search for potential employees in third countries, would be an essential
tool for achieving the purpose of the proposed act and calls on the Commission to
include the creation of such a talent pool in its proposal; proposes the Commission to
include, within the talent pool, an EU Talent Remote network that would allow TCNs
to work remotely in a different Member state than the one they are residing in and
would work together to better understand the benefits and challenges of hiring TCN
talent remotely, and promoting fair remote hiring of international talent; points out

32 Ibidem

that this network would be optional for Member States to use;
Amendments covered: 89 (Barrena & Daly), 90 (Devesa & Engerer), 165 (Engerer & al), 91
Fall: 84 (Rooken), 85 (Weimers), 86 (Uhrík), 87 (Engerer) and 88 (Kuhnke) (identical
amendments)92 (Ruiz Devesa & Engerer)
Supports the Commission’s statement in its communication of 23 September 2020 on a
New Pact on Migration and Asylum regarding the enhancement of bona fide short-term
mobility as a complement to legal pathways, especially for the purposes of research or
study in order to improve upstream cooperation with third countries, and requests the
Commission to explore this direction further;
4. a. Asks the Commission to take into account Article 15 (1) of the EP and the Council
partial provisional agreement on the Reception Conditions recast Directive, thus
reducing the negative impacts of forced inactivity until the finalisation of their
asylum procedure;

Amendments covered: 76 (Barrena&al), 77 (Kuhnke), 79 (Engerer&al), 83
(Kuhnke&Boeselager), 96 (Boeselager), 97 (Dupont), 100 (Barrena&Daly), 101
(Kuhnke), DEVE 1, 5, 13
Fall: 93 (Uhrík), 94 (Rooken), 95 (Fest), 98 (Engerer&al), 99 (Weimers), 102 (Skyttedal), 103
(Barrena & Daly)
Welcomes Directive (EU) 2021/...33, but considers it insufficient due to the fact that the
labour markets of the Union have different needs of low- and medium-skilled workers;
notes that the Union is already dependent on them in essential sectors such as
agriculture and healthcare34; 
calls, therefore, on the Commission to make it a priority
include in its proposal an ambitious admission scheme for low- and medium-skilled
TCN workers in consultation with social partners and civil society while reflecting the
needs of the Member States; calls the Commission to include 
the creation of a
framework for the validation and recognition of their skills and qualifications, including
vocational training, to facilitate an early integration of TCNs into the labour market,
based on objective and uniform criteria; Requests the continuous fair treatment of
TCNs during the process, enabling  efficient schemes and procedures, and facilitating
information in an efficient and easy way; Encourages the Commission to insist on the
need for national authorities to continuously share information and best practices
with one another; 
Moreover, calls the Commission to implement targeted campaigns
and promote through all possible means the revised Blue Card Directive, including in
start-up and IT sectors, where skills are recognised equivalently to qualifications
33 EUT number of 2016/0176 COD to be inserted.

according to recitals 7 and 8 of the Directive (EU) 2021/...35; Recalls, however, that
Article 79(5) of the TFEU states that this Article shall not affect the right of Member
States to determine volumes of admission of third-country nationals coming from
third countries to their territory in order to seek work, whether employed or self-

Amendments covered: 104 (Partly, Kuhnke), 106 (Engerer&al), 107 (Boeselager), 108
(Barrena&al), 111 (Ruiz Devesa et al.), 112 (Engerer&al), 159 (Kuhnke &al), DEVE 7
Fall: 105 (Rooken), 110 (Engerer &al)
Considers  that  the  Union  is  in  need  of attracting more  self-employed  people  and
entrepreneurs and  needs  to  enhance  innovation,  for  example  through  youth  mobility  and
nomad schemes. In 
order to remain relevant and competitive in the global marketincreasing
the economy’s agility, robustness, stability, and growth while creating new economic activity
and employment opportunities
, calls on the Commission to include in its proposal an EU-wide
admission scheme for entry and residence of self-employed people and entrepreneurs based on
objective and uniform criteria
, in particular for those working to establish small and medium-
sized enterprises and start-ups, and for highly mobile self-employed TCN workers, such as
artists and cultural professionals; insists that the schemes proposed should include measures
that enhance fundamental rights and promotes equal treatment for TCN workers; Considers
that the Commission should introduce a 5 year multiple-entry visa allowing this category of
TCN workers to enter the EU for up to 90 days per year;

Amendments covered 113 (Partly, Boeselager), 114 (partly, Kuhnke), 115 (Barrena & al), 116
(Rooken), 117 (Dupont), DEVE 8, 9, 12
Fall: 118 (Uhrík), 119 (Fest & al)
Separate vote: DEVE 29 A
Requests the Commission to include in its proposal a framework for talent partnerships
with third countries that Member States could opt into on a voluntary basis, tailored to
the situation and the benefit of both the sending and receiving countries in question,
which should include vocational training programmes based on skills, in particular
aptitude tests, workplace observation and simulations, and that Member States could opt
into on a voluntary basis; calls on the Commission to ensure that the framework allows
for Parliament to be able to fully exercise its scrutiny and evaluation role and that the
proposal includes adequate mechanisms to prevent labour exploitation and ensure
equal treatment; highlights that inspiration for the talent partnerships could be found
in existing skills-based agreements in Member States, and that they should be
developed in consultation with relevant organisations both in the Member States and
in the third countries;

35 EUT number of 2016/0176 COD to be inserted.

SEPARATE VOTE on DEVE 29A (First sentence until “to strive for formal agreement with
partner countries on migration mobility”, as addition to CA 9)
7.a) Retains it essential to build up a different and balanced approach of the Union-third
countries’ relationship in the field of migration; calls on the Union to strive for
formal agreements with partner countries on migration mobility;

Amendments covered: 122 (Partly, Kuhnke &al), 124 (Partly, Engerer &al), 126 (Partly,
Düpont), 127 (Barrena Arza), 128 (Al-Sahlani)
Fall: 120 (Rooken), 121 (Uhrík), 123 (Weimers), 125 (Guillaume & al)
Welcomes the European Commission’s planned review of the Directive 2011/98/EU;
Notes that one of the objectives of this Directive is to simplify and harmonise the rules
concerning permits currently applicable in the Member States and promote equal
and that these have not been fully achieved with some of the provisions
being implemented in different ways across the Union; further considers that that the
Commission should take the necessary steps to ensure that the 
Directive should first
and foremost be properly implemented by Member States, secondly that it should 
amended to require that applications for a single permit may be lodged from within
both a Member State and from a third country, and, in order to further simplify and
harmonise the rules, to clearly regulate the procedure for obtaining an entry visa so as to
avoid applicants having to submit twice the documents needed to obtain a single permit
and to reduce dependency of workers and risk of exploitation; points out that the
lodging of an application from within a Member State should only be available if the
TCN holds a residence permit at the point of the lodging of the application; 
calls on
the Commission to include such amendments in its proposal;
Amendments covered: 131 (Dupont), 132 (Kuhnke)
Fall: 129 (Rooken), 130 (Uhrík), 133 (Engerer&al), 134 (Barrena&al)
Separate vote on AM 135 (Engerer&al)
Requests that the Commission include in its proposal the establishment of a
transnational advisory service network, to be managed by the Commission, for legally
migrating third-country workers, with each Member State designating a lead authority
to process applications and to coordinate the advice and information provided to TCNs
applying for work in the Union or already holding a work permit; insists that the lead
authorities should be responsible for the sharing of information among Member States
on TCN workers and should act as contact points for workers and employers with
regard to 
the talent pool, and should provide relevant information to third country
nationals interested in migrating legally to the EU for work; points out that this
information could be transmitted either virtually or via relevant institutions present in


third countries, such as Member States embassies or established EU delegation
asks that the lead authorities be responsible also for close coordination with one
another with regard to applications lodged for a single permit to reside and work in
accordance with Directive 2011/98/EU in order to avoid double submissions and to
encourage and support employers to consider the possibility of applying for this
permit; points out the need to facilitate the gathering of data, statistics and evidence
as well as information-sharing between Member States to improve the efficiency and
effectiveness of the acquis36;

SEPARATE VOTE on AM 135 (Engerer&al) as addition to CA 11
9.a) Encourages Member States to adopt a naming and shaming approach to enterprises
which exploit third country nationals for human capital;
Amendments covered: 138 (partly/ Kuhnke & al), 140 (Partly, Dupont),
Fall: 136 (Rooken), 137 (Weimers), 139 (Barrena &al), 141 (Grapini), 142 (Uhrík)
Calls on the Commission to include in its proposal an amendment to Directive
2014/36/EU to allow holders of work permits under that Directive a period of three
months to seek new employment after having left their previous employer without
having their work permit revoked, allowing them to reside legally within the Member
State until the end of the period they are allowed to stay, however no longer than nine
months, as set out in the Directive, provided that they are applying for work at
another employer during the said time period; Furthermore, in order to avoid labour
exploitation, calls on the Commission to encourage Member States to fully apply the
above-mentioned provision, thereby delinking residence permits from employer and
calls as well on the Commission to include in its proposal an amendment to
Directive 2014/36/EU to allow for Member States to renew work permits, for the
purposes of seasonal work, which should be extended for 
a period of up to 5 years;
Amendments covered:  146 (Düpont), 145 (partly/Kuhnke), 148 (Barrena &al)
Fall: 143 (Uhrík), 144 (Skyttedal),
Separate vote: AM 149 (Engerer &al)
Requests the Commission to include in its proposal an amendment to Directive
2009/52/EC to adapt its scope to include exploited legally residing TCNs working in the
Union who are victims of conditions that affect their health, safety and offend their
human dignity, and to improve enforcement of equal treatment provisions, such as
accessible and effective complaints mechanisms and access to justice for all workers

36 European Commission Fitness Check SWD of legal migration, March 2019

in case of exploitation and other criminal offences;
SEPARATE VOTE on AM 149 (Engerer&al) as addition to CA 13
11.a) Encourages Member States to adopt a naming and shaming approach to enterprises
which exploit third country nationals for human capital;
Amendments covered: 147 (Guillaume &al) 152 (Partly, Kuhnke &al), 154 (Partly, Düpont),
Fall: 150 (Weimers), 151 (Uhrík), 153 (Fest &al), 155 (Rooken), 158 (Weimers), 160 (Fest
&al), 161 (Weimers), 162 (Düpont), 163 (Uhrík), 167 (Engerer & al)
AM withdrawn: 156 (Boeselager)
Separate vote on AM 157 (Kuhnke) and 164 (Guillaume &al)
Is of the view that Directive 2003/109/EC, which is currently under-used and does not
provide an effective right to intra-EU mobility, 
should be amended to allow third-
country nationals who are long-term residents of a Member State to reside permanently
within another Member State from the day their permit is issued on terms similar to the
terms applicable to Union citizens and to reduce the number of years of residence
required to acquire Union long-term residence status from five to three years, without
prejudice to the Commission’s upcoming revision of the Directive; Reminds however,
that continuous residence in one Member State is one of the aspects that promotes the
proper integration of a person in a community before this person decides to reside in
another Member State; 
calls on the Commission to include those amendments in its
Is of the view that sufficient funding for the proposals set out in this report is required
and considers that the financial implications of the requested proposal should be
covered by the relevant Union budgetary allocation;
Instructs its President to forward this resolution and the accompanying
recommendations to the Commission, the Council, and national parliaments.
SEPARATE VOTE on AM 164 (Guillaume &al) as addition to CA 14 before paragraph 12
Acknowledges that most Member States have national schemes to attract labour migrants;
however believes that, in the medium term, the EU must move away from a sectoral
approach and adopt an immigration code setting out broad rules governing entry and
residence for all third-country nationals seeking employment in the Union and
harmonising the rights enjoyed by such third-country nationals and their families;

SEPARATE VOTE on AM 157 (Kuhnke) as addition to CA 14 after paragraph 12
- Calls on the Commission to review the implementation of Directive 2003/86/EC on the
right to family reunification and to take any steps needed to further facilitate its


implementation and decrease the financial and practical barriers to family reunification for
TCN migrant workers;

COMPROMISE AMENDMENT 15 - Recommendation 1
Amendments  covered:  170,  175  (Partly,  Boeselager),  174  (Barrena  &  Daly),  178  (Partly,
Boeselager), 179 (Partly, Kuhnke)
Fall168 (Uhrík), 169 (Weimers), 171 (Engerer & al), 172 (Uhrík), 173 (Kuhnke), 176 (Engerer
& al), 177 (Uhrík)
Recommendation 1 (on the establishment of an EU talent pool for legally migrating third-
country nationals)

The European Parliament considers that the legislative act to be adopted should
establish an EU talent pool and matching platform for TCNs who wish to apply for
work in and migrate legally to a Member State, as well as for Union-based employers to
search in third countries for potential employees, and should facilitate the admission and
free movement of third-country workers. The job matching through the talent pool
should happen on a voluntary basis. The 
European Parliament considers that such an
talent pool should establish synergies with the existing framework and the
legislative act should therefore amend Regulation (EU) 2016/589 in order to expand the
current scope of the EURES Portal, established by that Regulation.

The talent pool, as established by the legislative act, would allow TCNs to express their
interest in and apply for work, while also enabling employers to search for potential
employees. TCNs would be able to apply for work where there is a shortage in the
Member States’ domestic labour markets, after having gone through a transparent and
application and pre-screening process, facilitated by the EU. The
talent pool would serve as an optional tool that Member States could use to meet the
demands of and shortages in the Member States’ labour markets that cannot be met by
the domestic workforce. The talent pool should be complemented by increased
coordination between participating national authorities, with the involvement of public
employment services and local authorities, 
and it should take into account national
specificities and the different demands of national labour markets. The promotion of
this tool and its usage could be enhanced if there is a targeted information
dissemination, which promotes the talent pool and matching platform in third
countries and participating Member States. 
In that spirit, the Union-wide transnational
advisory service network, as referred to in Recommendation 6, should facilitate the
running of the talent pool and serve as a contact point for the talent pool in the Member
State. Furthermore, considers that this network, based on the harmonisation of
applications, would help to reduce bureaucracy at Member-State level. Lastly, within
the talent pool, an EU Talent Remote Network should also be set up, in order to allow
TCNs to work remotely in a different Member State than the one they are residing in.
In addition, the TCN remote workers should enjoy equal treatment.


COMPROMISE AMENDMENT 16 - Recommendation 2
Amendments  covered:  184  (Partly,  Barrena  Arza  &  Daly),  185,  190  (Rephrased,  Kuhnke,
Boeselager), 186 (Partly, Düpont), 187 (Engerer & al) 192 (Engerer & al)
Fall: 180, 183, 189 (Uhrík), 181 (Weimers), 182 (Kuhnke & Boeselager), 188 (Düpont), 191
(Barrena Arza, Daly)
Recommendation  2  (on  an  admittance  scheme  for  low  and  medium-skilled  third-country

Given the demographic challenges and the global competition for talent, it is a
pressing need for many Member States within the Union to improve its attractiveness
as well as creating admission schemes for all skilled third-country workers, not only
for highly-skilled workers. With the revision of the Directive (EU) [EU BLUE CARD],
the Union has taken significant steps to achieve that goal for highly-skilled TCN
workers. However, it is imperative to also achieve that goal for TCN workers
considered to be 
low- and medium-skilled in order to fill vacancies and improve
matching of the different needs of the Member States’ labour markets, as determined
by the Member States themselves, and to be consistent in practicing EU values. This
further enhance the Union’s economic competitiveness.

To properly address that issue, the European Parliament calls on the Commission to,
within the legislative act to be adopted, include provisions setting up an admission
scheme with conditions of entry and residence for low- and medium-skilled third-
country workers. The scheme should ensure equal treatment in line with the existing
EU acquis on labour migration, and 
include the creation of a framework within which
third-country workers are able to have their skills and qualifications properly recognised
and validated for use on the Member States’ labour markets. In order to prevent any
abuse of TCN workers and to ensure their equal treatment when working or applying
for work in the EU, insists on the proper implementation of the Directive 2009/52/EC
and its monitoring mechanisms within the framework of the proposal, and calls for
the Directive to be amended to also cover legally residing TCN workers within its
legal scope, as set out in Recommendation 8. Furthermore, the European Parliament
also calls on the proper implementation by the Member States of the relevant existing
legal framework on the issue of legal labour migration.

COMPROMISE AMENDMENT 17 - Recommendation 3
Amendments covered: 195 (Kuhnke), 196 (Partly, Engerer & al), 198 (Partly, Boeselager), 199
(Partly, Kuhnke)
Fall: 193, 194, 197 (Uhrík), 200 (Engerer & al)
Recommendation 3 (on an admittance scheme for entrepreneurs and self-employed persons)

Traditionally, work permits are issued in the place where the TCN already has an
employment contract or aoffer of employment. However, the European Parliament is
of the view that the basis for issuing work permits could be improved and developed
further. Along the same lines, the Commission has stated that its objective is to
encourage more people to become entrepreneurs, thereby improving The Union’s
innovation, creativity 
and economic performance37. Third-country nationals working as
entrepreneurs or as self-employed people might experience that the environment in their
country of origin is not conducive for their start-up or for their efforts as entrepreneurs.
Through a Union-wide admittance scheme such TCNs could be given an opportunity to
migrate legally to the Union and establish themselves and their businesses. EU-level
action should promote a favourable environment for entrepreneurship, including in
this regard for TCNs, and strive for high common standards on the fundamental
rights of entrepreneurs and self-employed workers.

To that end, the European Parliament considers that the legislative act to be adopted
should include an admission scheme with conditions of entry and residence for self-
employed people and entrepreneurs, in particular for TCNs who establish small and
medium-sized enterprises and start-ups, as well as ensuring robust safeguards, equal
treatment and the protection of their fundamental rights. 
The definitions of ‘self-
employed person’ and ‘entrepreneurs’ vary across the Union, and is hence to be
defined by each Member State in accordance to their legal tradition and case law.

COMPROMISE AMENDMENT 18 - Recommendation 4
Amendments covered: 203 (Barrena Arza & Daly), 204, 207 (Kuhnke), 205 (Partly, Kuhnke),
DEVE 10, 23, 28
Fall: 201, 202, 206 (Uhrík), 208 (Kuhnke)
Recommendation  4  (on  the  preparation  of a  framework  for  talent  partnerships  between
Member States and third countries)

The European Parliament calls on the Commission to prepare a tailor-made framework
for talent partnerships in which Member States can voluntarily participate and to
include this in the legislative act to be adopted. Those partnerships would be open to
third-country workers of all skill-levels, as well as students and graduates, and would
serve as an efficient tool for Member States to match the skills of workers in third
countries with the demands of the Member States’ labour markets which the domestic
workforce cannot meet. The aim of those partnerships is to add another legal channel as
a mobility-option for TCNs who wish to migrate to the Union for work and to tackle the
issues of labour market shortages and mismatches across the Union, creating a
‘quadruple win’ for the EU, third countries, employers and migrant workers. The
practical implementation of the partnerships would rely on close cooperation with
national authorities, labour market institutions, civil society actors and social partners.
The Commission should ensure that the European Parliament is able to, on a regular
basis, scrutinise and evaluate the functioning of the partnerships, as well as propose

recommendations to improve the overall functioning of the framework.

A reinforced and more comprehensive approach would offer cooperation with partner
countries and help boost mutually beneficial international mobility. It is important that
Member States and third countries have equal opportunities to develop their
partnership and are able to create a transparent and accessible process for applicants.
Those talent partnerships should be inclusive and build strong cooperation between the
institutions concerned, for example national ministries of labour and education,
employers, social partners and education and training providers. However, it is
important that Member States strongly engage with those talent partnerships, that the
private sector, in particular European businesses, and the social partners and relevant
civil society actors 
be involved, and that partner countries have a meaningful sense of
COMPROMISE AMENDMENT 19 - Recommendation 5
Amendments covered: 210 (Engerer & al), 211, 216 (Al-Sahlani), 212 (Kuhnke), 214 (Partly,
Engerer & al), 215, 217 (Partly, Kuhnke),
Fall: 209, 213 (Uhrík), 218 (Barrena Arza & Daly)
Recommendation 5 (on the simplification and improvement of Directive 2011/98/EU)

The European Parliament is of the view that procedures with respect to Directive
2011/98/EU should be further harmonised for that Directive to be fully efficient and
properly implemented, in particular the equal treatment provisions. 
Therefore, the
European Parliament 
considers that the legislative act to be adopted should amend that
Directive in order to require that applications for a single permit may be lodged both
from within the territory of a Member State and from a third country, while engaging
both the Member States and the third countries in the exchange of information and
coordination of 
the applications lodged, in full compliance with EU data protection
standards. However, in order to be able to lodge an application for a Single Permit
from within the Union, the TCN must have a valid residence permit at the point of the
lodging of the application. 
The European Parliament moreover calls for, inter alia, the
clear regulation and streamlining of the procedure for applying for an entry visa in order
to avoid applicants having to submit the documents needed twice to obtain a single
permit. Furthermore, asks the Commission to analyse and reduce the administrative
requirements and inefficiencies in 
permit procedures, which prevents legal pathways
from responding to real labour market needs. Lastly, asks the Commission to propose
changes that would alleviate the difficulties TCNs holding work permits face when
changing employment, as they currently are forced to become too dependent on the
employer and therefore prone to labour exploitation.

COMPROMISE 20 - Recommendation 6
Amendments covered: 223, 227 (Kuhnke), 225 (Partly, Engerer & al), 228 (Engerer & al)

Fall: 219, 222, 226 (Uhrík), 220 (Engerer & al), 221 (Kuhnke), 224 (Barrena & Daly)
Recommendation  6  (on  the  establishment  of  a  Union-wide  transnational  advisory  service
network for legally migrating workers)

The European Parliament is of the view that systematic cooperation between and
engagement with the authorities of Member States and of third countries is required to
enhance legal pathways for labour migration. To achieve that goal, the European
Parliament considers that the legislative act to be adopted should establish a
transnational advisory service network, managed by the Commission, for third-country
workers, with each Member State designating a lead authority to coordinate the advice
and information provided to legally migrating third-country nationals applying for work
in the Union. The service network should build upon already existing networks and
services established, and if necessary, expand the scope of the adequate institution.
The authorities in each Member State should also be responsible for closely
coordinating with one another with regard to applications lodged for a single permit to
reside and work in the Union in accordance with Directive 2011/98/EU in order to
avoid double submissions. That network should also take into account national
specificities and different demands of national labour markets.

In addition, each Member State should be responsible for requesting from employers
information on third-country workers, in full respect of Union data protection law, in
order to enable TCNs to be connected with the relevant authorities and support services
and in order to facilitate the protection and the strengthening of the equal rights and
treatment of TCN 
workers. Moreover, it should ensure that employers provide
accurate and timely information about the rights, the relevant authorities and
available services to TCNs. 
This transnational advisory service network should
facilitate the running of the talent pool, as outlined in Recommendation 1, and relevant
civil society organisations, including diaspora communities, should be consulted in
the development of the service network.

COMPROMISE AMENDMENT 21 - Recommendation 7
Amendments covered: 231 (Kuhnke), 234 (Kuhnke & Boeselager), 235 (Engerer & al)
Fall: 229, 230, 233 (Uhrík), 232 (Engerer & al)
Recommendation  7  (on  amending  Directive  2014/36/EU  to  enable  seasonal  workers  to
change employer)

Promoting professional mobility for legally residing TCNs working in a Member State
also means protecting them from exploitation. Numerous TCNs, in particular low-
skilled ones, hesitate to leave an exploitative employer because it would mean that they
would lose their work permit and right to stay in the Union. This is currently evident in
the disparaging situation of many workers in different sectors across Europe, such as


in the catering, hotel and entertainment sectors, as well as care workers38. Holders of
a work permit issued under the Directive 2014/36/EU are, in particular, prone to
exploitation, as they often tend to work within sectors mainly employing low-skilled

Therefore, the European Parliament considers that the legislative act to be adopted
should amend Directive 2014/36/EU to allow holders of work permits under that
Directive a period of three months to seek new employment after having left their
previous employer without having their permit revoked. The holders would be allowed
reside within the Union until the end of the period they are allowed to stay, however
no longer than nine months, as set out in the Directive. 
The European Parliament
recommends that the Commission, at the same time, considers other appropriate
amendments to that Directive in order to bring it up to date and in line with other more
recent Union legal acts dealing with legal migration, including allowing the application
within the territory of the Member State, and further addressing persistent labour
exploitation of seasonal workers.

COMPROMISE AMENDMENT 22 - Recommendation 8
Amendments covered: 238, 240, 242 (Partly) (Kuhnke)
Fall: 236, 239 (Uhrík), 237, 241 (Skyttedal), 243 (Kuhnke)
Recommendation 8 (on amending the Directive 2009/52/EC to include legally residing third-
country nationals and address labour exploitation)

Directive 2009/52/EC contains several tools that can be used to support irregularly
staying third-country nationals working within the Union. The fact that it only covers
irregularly staying third-country workers is, however, a substantial flaw. While
regularly staying third-country workers enjoy a higher level of protection, mainly by
virtue of their legal right to stay within the Union, as well as through other means, they
too can be exploited and remain more vulnerable than Union citizens. Consequently, the
European Parliament sees a need to amend Directive 2009/52/EC to enforce a
horizontal provision strengthening the effective access to labour rights and remedy
through complaints mechanisms and legal procedures and 
make the Directive
applicable to all third-country nationals working in the Union.
COMPROMISE AMENDMENT 23 - Recommendation 9
Amendment covered: 166 (Engerer & al) 246 (Partly, Kuhnke & Boeselager)
Fall: 244, 245 (Uhrík)
Recommendation 9 (on the need for a revision of Directive 2003/109/EC)

Holders of Union long-term residence permits face a number of barriers in exercising
the right to move and reside in other Member States for work, study or other reasons.
This is because the conditions for mobility which Union long-term residents must fulfil
might be similar to the conditions other third-country nationals must fulfil for a first-
time application. In 2017, in the 25 Member States bound by Directive 2003/109/EC,
there were approximately 3,1 million third-country nationals holding a Union long-term
residence permit. This can be compared to about 7,1 million third-country nationals
holding a national long-term residence permit. It can therefore be concluded that third-
country nationals underuse the Union long-term residence permit, meaning that many of
them do not enjoy benefits from the rights of the Union status, despite the fact that they
would be eligible. The implementation report on that Directive points to the fact that
most Member States have not actively promoted the use of the Union long-term
residence permits and, as a result, there is no ‘level-playing field’ between the Union
legislative scheme and the national equivalent39.

Therefore, the European Parliament considers that the legislative act to be adopted
should amend Directive 2003/109/EC to allow third-country nationals who are long-
term residents of a Member State to reside permanently within another Member State
from the day their permit is issued on terms similar to the terms applicable to Union
citizens. The European Parliament recommends that the Commission, at the same time,
consider other appropriate amendments to that Directive to bring it up to date and in line
with other more recent Union legal acts dealing with third-country nationals legally
staying in the Union. The European Parliament requests the Commission to, as a
minimum, include in its proposal reducing the number of years required for acquiring a
Union long-term residence permit from five to three years particularly to enhance
mobility as well as simplifying and harmonising procedures. With this in mind, the
Directive should facilitate intra-EU mobility as well as international mobility to and
from the Union and third countries, by reducing the time required to obtain a long-
term residence status. Lastly, encourages the European Commission to conduct a
study on the issue of TCNs’ turnover rates within the European Union, in order to
better understand the reasons behind departure from a Member State within the first
three years of arrival.

the-status-of-long-term-foreign-residents 29/03/2019