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8/8/2019 Models for Immigration Management Schemes
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Models for ImmigrationManagement Schemes
Comparison and analysis of existing approachesand a perspective for future reforms
Kay Hailbronner
Director
Konstanz Center for International and European Law
on Immigration and Asylum
Rey Koslowski
Fellow
Transatlantic Academy
Associate Professor
University at Albany
IMMIGRATION PAPER SERIE S
8/8/2019 Models for Immigration Management Schemes
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2008 Te German Marshall Fund o the United States. All rights reserved.
No part o this publication may be reproduced or transmitted in any orm or by any means without permission
in writing rom the German Marshall Fund o the United States (GMF). Please direct inquiries to:
Te German Marshall Fund o the United States
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Washington, DC 20009
1 202 683 2650
F 1 202 265 1662
Tis publication can be downloaded or ree at http://www.gmus.org/publications/index.cm. Limited print
copies are also available. o request a copy, send an e-mail to [email protected].
GMF Paper Series
Te GMF Paper Series presents research on a variety o transatlantic topics by sta, ellows, and partners o theGerman Marshall Fund o the United States. Te views expressed here are those o the author and do not neces-
sarily represent the view o GMF. Comments rom readers are welcome; reply to the mailing address above or by
e-mail to [email protected].
About GMF
Te German Marshall Fund o the United States (GMF) is a non-partisan American public policy and grant-
making institution dedicated to promoting greater cooperation and understanding between North America
and Europe.
GMF does this by supporting individuals and institutions working on transatlantic issues, by convening leaders
to discuss the most pressing transatlantic themes, and by examining ways in which transatlantic cooperation can
address a variety o global policy challenges. In addition, GMF supports a number o initiatives to strengthendemocracies.
Founded in 1972 through a gi rom Germany as a permanent memorial to Marshall Plan assistance, GMF
maintains a strong presence on both sides o the Atlantic. In addition to its headquarters in Washington, DC,
GMF has seven ofces in Europe: Berlin, Bratislava, Paris, Brussels, Belgrade, Ankara, and Bucharest.
8/8/2019 Models for Immigration Management Schemes
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Models or Immigration Management Schemes
Comparison and analysis of existing approaches and aperspective for future reforms
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Models or Immigration Management Schemes:
Comparison and Analysis o Existing Approaches and a Perspective or Future Reorms
3
Introduction
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8/8/2019 Models for Immigration Management Schemes
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he German Marshall Fund o the United States4
2.1. Immigration and immigration policy
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Selective immigration policies:Different approaches
Rank 1990 2005
1 U S A 23.3 U S A 38.4
2 R F 11.5 R F 12.1
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4 Uk 7.1 Uk 6.8
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6 G 5.9 S Ab 6.4
7 F 5.9 C 6.1
8 S Ab 4.7 I 5.7
9 C 4.3 U K 5.4
10 A 4.0 S 4.8
Table 1: The ten countries with the highest number of international migrants (in millions)
S: M Sk: 2005 R, U N D E S A, PD, POP/DB/MIG/R.2005/D, Fb 2006.
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Ever since the
development of
the international
system of states,
states have, to
varying degrees,
attempted to
shape the size
and composition
of migration
across their
borders.
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Models or Immigration Management Schemes:
Comparison and Analysis o Existing Approaches and a Perspective or Future Reorms
5
Selective
migration
policies are
proliferating
among migrant
destination
countries of
the developed
world.
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2 Q b N V, Outlook on Migration PolicyReform in Russia, : IOM, M PEE C A, 2006, . 78.
8/8/2019 Models for Immigration Management Schemes
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he German Marshall Fund o the United States6
k . C
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2.2. Planned immigration: Admissionfollowing economic forecasts
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7 H O, -b , R M 4,2008 : ://www.b...k/b//b/.
8 Q b K B, F k -, International Herald ribune, Fb 10, 2006.
Canada and
Australia were
pioneers of
immigration
policies based
on point
systems.
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Models or Immigration Management Schemes:
Comparison and Analysis o Existing Approaches and a Perspective or Future Reorms
7
Point systems
may take
fundamentally
different
approaches to
migrant selection
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2.3. Demand-driven immigration:
Admission following employers needs
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11 L Hw, Labour Market Outcomes for MigrantProfessionals: Canada and Australia Compared(Ow: SC 2006).
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he German Marshall Fund o the United States8
The German
concept of
economic
immigration
is mostly
demand-driven
and hence
employment-
based.
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q. I ,
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2008, w w 115,000
2009 2011
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30,000 (U.S. S 2008). I k
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12 L B. Lw, H-1B Wk: E P, Wk P N. 12, M 12-13, 2000, C C I S, U C, SD, 2000.
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jb -, - wb, w
j
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q -
H1-B w
b 1990.
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Models or Immigration Management Schemes:
Comparison and Analysis o Existing Approaches and a Perspective or Future Reorms
9
An attempt to
resurrect some
version of the
proposal by
the new U.S.
administration
and Congress
is likely.
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U.S.
F Y 1998 1999 2000 2001 2002 2003 2004 2005 2006
V C 65,000 115,000 115,000 195,000 195,000 195,000 65,000 65,000 65,000
V H 240,947 302,326 355,605 384,191 370,490 360,498 386,821 407,418 431,853
Table 2: H1-B visas
S: 2006 Yearbook of Immigration Statistics, D H S, b 26.
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he German Marshall Fund o the United States10
2011, 2014 B R). W
b k
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EU b w j w E
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13 S A, D S Ab D, F-Eb-S, B 2008, . 13.
In 2000,
the German
government made
a first attempt
at recruiting a
specified category
of qualified
foreigners.
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Models or Immigration Management Schemes:
Comparison and Analysis o Existing Approaches and a Perspective or Future Reorms
11
The new
provisions of
the Residence
Act have not yet
had a significant
impact upon
the desired
immigration
of qualified
foreigners.
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w 2006 17,612 2005. M
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17 A P G J 16, 2008,B-D. (P D) 16/10288.
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2004/2007. R A
k k
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w. , k bw
w b
( 3.2.).
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q . O 1,123
-q
w w
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G.16 F -
b , 3,973 w . U
S 18 R A,
15 I C, R S, . 7.
16 F 1.1.2005 1.1.2007, . Mb 2006, . 82.
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he German Marshall Fund o the United States12
w -
b CDU S D
P (SPD) w
G,
w
. z w
EU b ,
b, w j
b 2011 2014 ( B
R)
b k.
5. F
q
( G
kw q).
w
q
G w
j . Lb P (FDP)
w C D U
(CDU) z
w k ,
Table 3:Newly Arriving Immigrants in Germany, Sorted by Purpose of Residence (2006)
E(), 18AG
Hq, 19AG
S, 21AG
SWk*, 18, 19BV
CWk*, 39BV
A, 60AG
19,466 80 642 303,492 20,001 21,029
FR, 27-36AG
S, 16AG
OEP, 16, 17AG
S, 4BVFG
JwI, 23AG
50,300 53,554 9,080 7,747 1,079
S: Mb 2006
* N 18 AG q EU N.
The opinions
on the potential
effect of these
new measures
to meet the
demand for
highly qualified
foreigners in the
German economy
are split within
the major
political parties.
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Models or Immigration Management Schemes:
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13
w b.18
w -k U S,
w EU b A
C,
w
b k b
w -k -
b
w
b b k
b .
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w
jb . M,
w
w b
wk
wk
-
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b
-k q , ,
. k .
I ,
bj k
w b k
wk jb. I ,
w b b -b
, ,
18 Hz W, T C G C I F I S G, I Mb H Sk (P: OECD 2001), . 323.
3.1. Advantages and drawbacks of planned
and demand-driven approaches
( ) b k
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b, b b
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wk
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w .
w I wk G
k z,
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w
U S ( H1-B j b
) w
j
3Comparing approaches toselective immigration policies
Despite
destination
countries best
efforts, skilled
migrants may
not necessarily
respond to the
selective migratio
strategies of the
receiving country
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he German Marshall Fund o the United States14
wk, , wk
195,000 w
w w. I 2000,
w k k w w w
- w
, w k
k bbb.
D . W
b -k
b w
k wk , -k wk b
w b k
q k -k
wk b wk
z. M
b
q k
wk b b
b jb
wk. M,
G q
b wk , w, w wk
H1-B q
b wk.
b w
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b k,
q b
w w k
wk b j
k . I , b
b b
. , k
w
w
b .
k k.19
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k
k wk
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q
.
b
w P.D.
b q ,
,
.
A k
k b k
, k (
w b) b
b k b
w ,
w z. F , -k
Nw Z
A b jb,
q Nw Z z.20 S,
-k b C bq k jb
b U.S. k.
- b
. F,
w b
;
, kw w w
.
b . F , U.S.
b bb H1-B 195,000 -k
19 Bb B, L Hw S R,E G Sk M C, D- I M A, M 2006.
20 R Kwk w w Nw Z D Lb O, Db 2006.
Demand
is also a
function
of price.
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Models or Immigration Management Schemes:
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15
Therefore, labor
markets are
potentially global
with prices that,
if there were no
government barrie
to international
labor mobility,
would reflect glob
competition for an
given position.
$26/ wk b $110/, wk b q.22 H,
-
b
q b. Ow,
-k wk b b
w b . I
bw k w ,
b,
b
-k wk w
b b , .
3.2. Planning demand: Most models combine
elements of both approaches
P-
b b. F ,
A
1996 b
E N S O
L
w A
. M, b C
A w b k
w b
k jb
; k H1-B
j .
E C A
b
w- U S wb
b
j .
22 G C W F. R J., I S H- , Te Baltimore Sun, Fb 21, 2000.
I k -k
b wk.
E jb
w. F jb k
jb b
.
b jb. ., w
b
. , b k
b w , w
b b b, w
b .
-k
U S
w w
wb, b
, jb
b . C
jb b w
, w
.
I , w
b b
w (
U.S. z
b). S H-1B wk
U
S,
b wk.21 S
w H1-B wk
j w
wk bw w b. S
wk b q. O
H1-B wk
21 N M , H- C Lb, Te WashingtonPost, Sb 12, 2000.
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he German Marshall Fund o the United States16
R, G w b k
b -, -, - b
k . I b
, ,
(L).
b b .
w b b
b w j -
- b k . A
,
. S
, w, b k w
E U. R ,
,
.
b w b
w . M,
k . R
b q
k q
. Hw,
w b b EU
z .
I w, b k C b
w
, U S b
b k
w w
. S, C
q
b ,
, z w U
S b
jb, b ,
w z . G
A
,
bw C U S b
C U S. G
G
b b
b k b
, bw U
S C b U
S. U K F bw A G.
Germany is
between the
ideal types
of the United
States and
Canada but
very close to
the United
States.
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Models or Immigration Management Schemes:
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17
b. W k w z , b,
, ,
- ;
b
w
. H, b
, b
w w b
b
z .
4.1. Economic elements in family reunification
and humanitarian immigration
H-k
w b
w b k k -k
, ,
w
b -k .
I w
j b ; w,
-q w, q
, jb q
k.
R w
k. W
,
b ,
j , b , q
k.
A w
, E,
A clear distinctio
between differen
immigration
streams is not
always possible
and it may well
be asked if it is
always necessary
or desirable.
-
: ,
(), (b)
b. I, w, w b
, ,
. ,
b
. I ,
b k
j E . I G,
1973,
. I ,
b
1990. I 1992,
G k w 438,000
k 400,000
G
S U. Hw,
bw
w b w b k
w b.
Nw
b
z w
.
bw
EU b
q .
M, b w
w
k
w
. I
,
w q j .
Hw,
4Crosscurrents in differentimmigration streams
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he German Marshall Fund o the United States18
b k w
. A
b b w
E Ub
w
j b
, b
. W
w j E
U ,
,
U S C b . I
2007, 75,300 w b
14 , U
S (48,300), C (11,200), A (9,600),
Sw (1,800), Nw (1,100), Nw Z
(740).23 I E ,
w k wk,
U S, k
wk z w
b 150
b
.R U S
wk b
wk
k .
A E
, Sw Nw,
b, kw k
b. I , U
S b kw
w b
k.
E w
. A b -
23 U N H C R,2007 Gb: R, A-k, R, I D- S P, G: 2008, .11.
, , b
w w
b b EU-. ,
EU b (w
U K, I, Dk
E C
) . F
, b k .
b
k- , b
kw q G, N, F,
b EU b
. S b
b
de facto . I
, w,
EU- w j
.
4.2. Circular migration
G w EU b
Swz w
()
. I w wk
(- -wk) 1950
1960 w ,
wk w k
. I, b
- w
w q k wk
b
wk, w w
b b . A,
wk G. F
b
G
.
w
What was
thought to
be temporary
migration
eventually
became
permanent
migration.
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b. b k b
b
.
wk w w
w
b w,
.26 A
w
w w
b
, w,
. C b
b
b
. N w
b b
, b
b.27 ,
wk w q,
,
. A
b b
(w EU
b )
.28 O b
wk
/
k
26 A M. M B Q
E E S U ,. M R. E E FS U, W Bk 2007, . 110.
27 C. D , Ewk M: G-b M, ://www.-b./wb//47_1037. .
28 S M/Q, . 107.
The assumption
that migrant
workers will
always prefer
to move
permanently
to a country of
immigration may
well be wrong.
b.
E
wk.
, w,
b
. I bz
k wk b ,
, ,
. U ,
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wk bw K
M w
P wk
.24
b k
b F
G, E P
I A.25 C ,
w
, . W
kw k q b
wk,
b . A ,
w wk
24
Gb C I M, M w: Nw , 2005, . 17.; D R A/K Nw, C- M D: , P R W Fw, M P I, A 2007, . 3.
25 J 2008, . 5 (Ab ://www.2008./PFUE////PFUE-10_2008/PFUE-15.10.2008/C_-); C E C, D-b 14, 2007.
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he German Marshall Fund o the United States20
2006-2007. W E k b
wk E U
b
, U.S. k
w
. I , B
w
U S w wk
b wk
de facto z.
W w k
b
. P w
wk w
U S. C U.S.
D H S (DHS)
U.S.-VISI b -
( b
w ), w
kw wk
j 40
12 U
S w . A,
w
w w
. F
,
k
. w ,
j ,
( ).
Pk
b k
b . I , w
b 62
U S 64
U.S. policymakers
primarily viewed
temporary
migration as an
alternative to
illegal migration.
wk . I ,
w b
w b
.
F ,
b b
w
. Fq, w b
q b. EU R
D 2005/7129
, w w.
, w b
b EU b
w z ,
w w E U
j. S
j w
w
. C b j
w
wk .
A
, U.S.
w
wk ,
H1-B 1990. M , U.S.
k k b
U.S. C
wk k k
k b
29 C D 2005/71 12 Ob 2005, Of J EU L 289/15, Nb 3, 2005.
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Adjusted status
indicates the
extent to which
high-skilled
labor migration
to the United
States yields
large number
of permanent
migrants.
EU b (F,G, I, N, P, U
K)
,
b
b
. O 26
E 27
U S
b b q
.30
4.3. Adjustment of status
,
wk b
b w
j
30 ransatlantic rends: Immigration 2008, .13. ( Nb 17, 2008 : ://www..//.?=183
. U S b wk
b
1990, b
, H1-B , j
w -k
b U S
b . G
H1-B
b
b H1-B wk ,
w
b w
. A U S
w-
-k wk b 4 ,
wk
U S C A.
F E
A 25 33
C 23 11
U K .. 20
U S A 52 89
Table 4: Changes in status from temporary to permanent 2005
percent of immigrants in group having changed status
S: International Migration Outlook: SOPEMI 2007 Edition (P: O E C- D, 2007).
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he German Marshall Fund o the United States22
jb w .
N, ,
k
w b
. Hw,
b . A
(- )
S 19 R A
( q ). A q
k q kw G
.
O
bj
w
. I
b k w b
w b
, q w k,
, . I w b
b
.
Germany as well
as other European
countries uphold
a strict separation
between a
residence title
granted for a
specific purpose
and a residence
title for taking up
employment.
b
w
b
. G E
bw
k . I ,
j
.
,
G 2005
k
b.
b jb
b k. b
w . F
w q q
G w
. I w
b k q b w
q G
. , j
w
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b . I z b .
E C, w
C
, b
, w . A
C w
, w
.
D C
, ,
z . I P P L M 2005,34
C kw
b
.35 ,
.36
- wk ,
Ob 2007,
- . A
, - w
, w
w
b k. -
b
q
EU b . b-
- ,
wk ,
, .
34 COM (2005) 669 .
35 b b w 2001, . COM(2001) 386 . A b M- S, D Ewkz EU, B-B2006, . 333-343.
36 F C , .Eb E, Bw Kz Ab, Z A A-k (ZAR) 2008, . 81-86.
I domaine rserv .
Hw,
wk E U
b
. I
k G
EU b
b EU b. W
,
b E ,
b
b EU b b
E C
w b .
5.1. Immigration policy at the
European Union level
R EU b
bb
E . q w
b
- b
b . A
E
, F R
D31 D C
N w EU b
- b,32 b
w -
k b k.33
E C, w b
,
31 D 2003/86/EC, O.J. 2003 L 251/12.
32 D 2003/109/EC, O.J. 2003 L 16/44.
33 F , . S P, EU JHA Lw, O 2006, .213-231.
5International context of immigrationmanagement policymaking
Regulation of
legal migration
to EU member
states is
probably
the most
controversial
aspect of
European
migration policy.
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he German Marshall Fund o the United States24
w w , U S.38
W ,
, w,
bw w .
C wk ,
-k wk
EU b . w b
. Hw,
w w
wk w w b .
b b
b .
A q
, b
w
. B q
q
w w b b
b k EU b .
Hw, k b
, q
b
. ,
wk
b jb .
E
conditio sine qua non . M,
b b .
E U b
w b
38 C. COM (2007) 637 , . 3.
wk b
w w w
b , w
, w
b b . I
b w wk
w b b b
E .
R b EU b
. M k b, w
,
C w E U
b -
- b .
K
q C,
w
b b . O
, F
b
. , b w b w .
B wk , C
-k wk, wk,
, -
.37 M ,
-k wk, w w
b Ob 2007, q U.S.
b EU b .
j b. I C
-q w
37 T wk -k wk w b b C Ob 2007; wk . T w wb b 2009. C. C R , COM (2005) 669, . 14 .
The initial
decision whether
and to what
extent there is a
need for workers
from third
countries will
remain with the
member states.
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w D 2003/109 b -
w b b
.41 F, b
bj
b b
b b . ,
b bw EU
b U.S.
j .
5.2. Competition for high-skilled immigration:
U.S.-EU and intra-EU
A w z
ww -
q , q
b w .
I 50 k
Mb U
S C, w 5.5
EU b .42 I
w b b
z, -
b
b k.43
Hw,
b w E U
w U S
b
b . G
, E
U b .
41
D b 18 b .
42 E.. Ew K, MEP, - EP D H k 5 Nb 2008.
43 C. Jkb Wzk, W E, B PB, I 2006/3.
It must be
said that the
differences
between the EU
blue card and
the U.S. green
card amount to
far more than
just a difference
in color.
b . Hw, , EU b
w w
w b b
. B
wk jb
q .
D
-q wk
b- wk ,
b b .
w z j b
b C E P
I A.39 Hw,
C
. I ,
z b w
w b
w b
w b . E
, w
k b 1.5 b . W F
b ,
b b
2008.
S EU b w
w
-EU
- . I ,
bj b b
b D
L- R (2003/109/EC), w b z w w
.40 B C-D
39 C. P , . 5. Ab ://www.2008./PFUE////PFUE-10_2008/PFUE-15.10.2008/C_.
40 C. Sj B-S, CML R. 2005, 1011.
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b
k, w,
b
k
.
bw
w
b . b
;
.
b
-k w
EU b k
b .
EU b w
w b
b k -
.
A w
.
w
: w
. - .
C
k
; U S
-,
.
w
b. D-, jb
wk .
I E, U K F
;
G -
.
I ,
G U S w
; w k
.
6Conclusions
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Off i c e s
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