Dubultā pieeja dubultpilsonībai 222

Pēc Otrā pasaules kara veidotā ideālā vīzija, ka katram cilvēkam ir jābūt vienas valsts pilsonim, nav kļuvusi par realitāti Eiropā. Latvijas Pilsonības likums ir pretrunīgs attiecībā uz dubultpilsonību un to vajadzētu precizēt.

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Arvien pieaugošā Latvijas pilsoņu izceļošana uz Īriju, kurā dzimušie bērni viegli var iegūt Īrijas pilsonību, rosina domāt, vai Latvijai nebūtu jāpārskata dubultpilsonību noliedzošā politika. Arī Eiropā vērojama tendence, ka dubultpilsonība vairs netiek uzskatīta par nevēlamu. Šī raksta mērķis ir iepazīstināt ar Eiropas valstu pieredzi un sniegt priekšlikumus Latvijas pilsonības politikas veidotājiem.


Latvijā dubultpilsonība – izņēmums, nevis likums

Attiecībā uz dubultpilsonību Latvijas politika kopš neatkarības atjaunošanas bijusi divējāda. No vienas puses, Latvija aizliedz dubultpilsonību, tādējādi nodrošinoties, ka Krievijas pilsoņi nekļūst par Latvijas pilsoņiem. No otras puses, 1994.gada Pilsonības likums pieļauj dubultpilsonību, lai pilsonību reģistrācijas kārtībā atjaunotu tiem bijušajiem pilsoņiem, kas okupācijas laikā devās bēgļu gaitās vai tika deportēti.

Patlaban Pilsonības likums ir pretrunīgs attiecībā uz dubultpilsonību. Likuma 2.pants nosaka, ka bērni, kuru abi vecāki ir Latvijas pilsoņi, neatkarīgi no dzimšanas vietas ir Latvijas pilsoņi. Savukārt 3.pants nosaka, ka, ja tikai viens no vecākiem ir Latvijas pilsonis un vecāki pastāvīgi dzīvo ārpus Latvijas, bērna pilsonību vecāki nosaka savstarpēji vienojoties. Tādējādi ārpus Latvijas dzimušie Latvijas pilsoņu bērni tiek reģistrēti kā Latvijas pilsoņi.

Problēmas rodas, ja valsts, kurā piedzimuši Latvijas pilsoņu bērni, piešķir pilsonību pēc tā sauktā jus soli (dzimšanas vai dzīves vietas) principa, jo tad viņi kļūst par dubultpilsoņiem. Taču likuma 9.pants paredz, ka personai, kura tiek uzņemta Latvijas pilsonībā, nedrīkst izveidoties dubultā pilsonība. Savukārt, šī paša panta 2.daļā noteikts, ka gadījumā, ja Latvijas pilsoni var uzskatīt arī par ārvalsts pilsoni, tad attiecībās ar Latviju viņš tiek uzskatīts par Latvijas pilsoni.

Varētu prezumēt, ka 9.panta 1.daļa attiecināma tikai uz tām personām, kas naturalizējas, bet attiecībā uz ārvalstīs dzimušiem bērniem piemērojama šī panta 2.daļa. Šādu interpretāciju pieļauj arī 24.pants, kas nosaka, ka pilsonību var atņemt ar tiesas lēmumu, ja persona ir ieguvusi citas valsts pilsonību, neiesniedzot iesniegumu par atteikšanos no Latvijas pilsonības.

Papildus iepriekš minētajam, dubultpilsonība ir atrunāta arī likuma Pārejas noteikumos. Tie nosaka, ka Latvijas pilsoņi un viņu pēcnācēji periodā no 1940.gada 17.jūnija līdz 1990.gada 4.maijam, kas atstāja Latviju kā bēgļi vai tika deportēti, varēja reģistrēties kā Latvijas pilsoņi līdz 1995.gada 1.jūlijam, neatsakoties no savas pilsonības citā valstī.

Tādējādi Pilsonības likums paredz, ka Latvijas pilsonību nevar iegūt, ja persona ir citas valsts pilsonis, izņemot Pārejas noteikumos minēto situāciju. Bet tas neizslēdz iespēju iegūt dubultpilsonību dzimšanas brīdī. Praksē tas nozīmē, ka Latvija nerada dubultpilsonību, bet atzīst, ja citas valstis to dara.


Pēckara Eiropas mērķis – samazināt dubultpilsonību

Pēc Otrā pasaules kara veidotā ideālā vīzija, ka katram cilvēkam ir jābūt vienas valsts pilsonim, nav kļuvusi par realitāti Eiropā. Valstis pakāpeniski ir apzinājušās, ka praksē veidojas situācijas, kad tās nevar strikti pieturēties pie šī principa, un tiek meklēti kompromisa varianti. Attieksmes maiņa vistiešāk ir attiecināma uz dubultpilsonību.
Pēc Otrā pasaules kara attieksme pret dubultpilsonību bija klaji negatīva, jo tā radīja grūtības valstīm īpaši diplomātiskās aizsardzības un militārā dienesta kontekstā[1].
Dubultā pilsonība visbiežāk rodas, ja vienlaicīgi tiek piemēroti jus soli un jus sanguinis (vecāku pilsonības) principi vai arī ja persona naturalizējas vēlākā dzīves laikā.
Dubulto pilsonību nevar izslēgt ne ļoti līdzīgu, ne arī fundamentāli atšķirīgu pilsonības likumu gadījumos. Piemēram, ja vecāki ir ar atšķirīgu pilsonību un abu valstu likumi paredz pilsonības iegūšanu pēc jus sanguinis principa. Līdzīgi, ja vecāki ir ar vienu pilsonību, bet bērns dzimst valstī, kas piemēro jus soli.

Tādējādi, vienīgais veids, kā izvairīties no dubultās pilsonības, bija starptautiskie līgumi vai arī “Kollisionsnormen” sistēmas akceptēšana un piemērošana, lai risinātu pilsonības konfliktus[2]. Tas vedināja valstis vienoties par pamatnoteikumiem. Viena no šādām vienošanām Eiropas mērogā bija 1963.gadā Eiropas Padomē pieņemtā Konvencija par Dubultpilsonības gadījumu samazināšanu un Militāriem pienākumiem dubultpilsonības gadījumos (ETS no.43, 1963), kuru vēlāk papildināja ar diviem protokoliem (1977.gadā un 1993.gadā). Saskaņā ar Konvenciju dubultpilsonības samazināšana tika atzīta par vienu no Eiropas Padomes mērķiem.


Mūsdienu Eiropa labvēlīgāka pret dubultpilsonību

Šī iepriekšējā politika ir pārskatīta, strādājot pie Eiropas Pilsonības konvencijas (EPK) (stājās spēkā 2000.gada 1.martā), ņemot vērā arvien pieaugošo darbaspēka migrāciju, kas rada skaitliski lielas imigrantu kopienas; jauktās laulības; cilvēktiesību attīstību, kā arī vispārējo valstu integrāciju Eiropā. Šobrīd attieksme pret dubultpilsonību kā kaut ko nevēlamu mainās. Valstis pilsonības piešķiršanu uzskata par vienu no galvenajiem integrāciju veicinošiem faktoriem.

EPK atstāj rīcības brīvību dalībvalstīm noteikt, kādā apmērā dubultpilsonība ir atļauta (15.pants). Pie tam vairākos pantos tā aicina valstīm pieņemt dubultpilsonībai labvēlīgu regulējumu, piemēram, atļaut bērniem saglabāt dažādas pilsonības, ko iegūst piedzimstot (14.pants), atļaut pilsonību saglabāt laulātajiem, kuri saskaņā ar nacionālo likumdošanu automātiski iegūst laulātā pilsonību. Valstis arī nevar prasīt, lai persona atsakās no savas iepriekšējās pilsonības, lai iegūtu valsts pilsonību, kas ir īpaši aktuāli bēgļiem, kuri bieži nevar atteikties no iepriekšējās pilsonības (16.pants).

Izmaiņas vērojamas arī citās ar pilsonību saistītās jomās. Piemēram, privāttiesiskos jautājumos valstis pakāpeniski pāriet uz lex domicilii (dzīvesvietas princips) lietošanu, atsakoties no pilsonības kā piesaistes faktora[3].

Diplomātiskās aizsardzības jomā ir vērojamas divas paralēlas tendences. Pirmkārt, līdz ar pieaugošo cilvēktiesību mehānismu skaitu diplomātiskās aizsardzības institūta nozīme mazinās[4]. Otrkārt, attiecībā uz dubultpilsoņu diplomātisko aizsardzību veidojas princips, ka aizsardzību var realizēt pat attiecībā uz dubultpilsoņa pilsonības valsti, ja dominējošā saikne ir stiprāka ar prasītājvalsti[5]. Šīs attīstības nenozīmē, ka sagaidāmas tūlītējas izmaiņas valstu pilsonības politikā, ko apliecina arī dažkārt pretējā virzienā orientēti nacionālie tiesību akti (skatīt tabulu raksta beigās).


Rekomendācijas Latvijas pilsonības politikai

Ņemot vērā demogrāfiskās tendences Eiropā, var uzskatīt, ka starp valstīm sāksies cīņa par darbaspēku un tās centīsies kļūt pievilcīgas īpaši ES pilsoņiem. Viegla pilsonības iegūšana jau šobrīd dara vairākas valstis, piemēram, Beļģiju, Zviedriju, pievilcīgas ieceļotājiem.

Latvijas pilsoņu skaits pat Eiropas mērogos ir neliels, pie tam demogrāfiskās situācijas dēļ tas arvien samazinās. Padomju okupācijas rezultātā Latvijā ir vērojams izglītotu cilvēkresursu trūkums. Tas liek Latvijai pārskatīt savu pilsonības politiku dubultpilsonības jautājumos.

Pirmkārt, būtu nepieciešams ratificēt EPK. Otrkārt, būtu jāpārdomā grozījumi Pilsonības likumā, lai nerastos pārpratumi attiecībā uz ārpus Latvijas dzimušo Latvijas pilsoņu bērnu pilsonības noteikšanu. Treškārt, būtu jāapsver iespēja atteikties no dubultpilsonības ierobežojumiem attiecībā uz ES pilsoņiem, balstoties uz abpusējības principu. Visbeidzot, no politiskā procesa viedokļa būtu svarīgi diskutēt par šiem jautājumiem un meklēt valstiskus risinājumus, nevis „iesaldēt” tos līdz vēlēšanām.


Situācija ES valstīs attiecībā uz dubultpilsonību[6]




________________________________________

[1] Skatīt, piemēram, Harvardas pilsonības pantu projektu, AJIL Vol 23, Special Number, 40.lpp. 1930.gada Hāgas konvenciju par pilsonības likumu pretrunām (Hague Convention on Conflict of Nationality laws) preambulu.

[2] Kolīziju normu sistēma darbojas, piemēram, starptautiskajās privāttiesībās. Kolīziju normas nosaka, kuras valsts likumi jāpiemēro, ja rodas pretrunas.

[3] Explanatory report. Bet vēl joprojām ir daudzas valstis Eiropā, kas dod priekšroku lex patriae (pilsonības) principam, nevis lex domicilii. Lex patriae dod priekšroku Somija, Zviedrija, Francija, Vācija, Itālija un Spānija. Kaut gan Somijā un Zviedrijā lex domicilii pakāpeniski iegūst arvien lielāku nozīmi. Detalizētu analīzi, kas attiecas uz šo principu piemērošanu ES diskriminācijas aizlieguma principa kontekstā, ir veicis Bogdan M. savā rakstā "EG-Rattsliga synpunkter pa anvandning av medborgarskapet som aknytningsmoment I den internationella familjeratten". Latviešu valodā raksts pieejams žurnālā "Likums un Tiesības", 2005.gada janvāris (nr.65).

[4] Skatīt "Discussion on Preliminary Report of the Special Rapporteur", 2520th meeting, 28 April, 1998 A/CN.4 ?483, sect. E A/CN.4/484, A/CN.4/L553, kā arī atbildīgā ziņotāja Džona Dugarda (John Dugard) ziņojumus, kas pieejami Starptautisko tiesību komisijas mājas lapā

[5] Irānas-ASV Prasību tribunāla lietas (Iran – U.S.C.T.R.) Case No. 157, Esphahanian v. Bank Tejarat, International Law Reports 72, 478, un Case No. 211 Golpira v. Islamic Republic of Iran, International Law Reports 72, 493. Līdzīgām lietām skatīt Report of the ILC of its work during 56th session 41.-42.lpp. Viena no būtiskākajām lietām ir Merge claim, ko izskatīja Itālijas-ASV Samierināšanas komisija. 22 I.L.R.(1995) 443.lpp. un ANO Kompensācijas komisijas prakse, kuru izveidoja Drošības padome, lai sniegtu kompensācijas par zaudējumiem, ko radīja Irākas okupācija Kuveitā. United Nations document S/AC.26/1991/7/Rev.1, 11.paragrāfs.

[6] Izmantoti dati no EP PA ziņojuma Nationality rights and equal opportunities, 9.02.2004. Doc.10070, EPK ratifikāciju tabulas, Network on Free Movement of Workers within the European Union. Report on 2004. Report for the European Commission on the Implementation of EU free movement law in 25 Member States, Centre for Migration Law, Nijmegen November 2005, Volumes I-II un ES projekta NATAC (The acquisition of nationality in the EU Member States: rules, practices and quantitative developments) jauno dalībvalstu ekspertu ziņojumu materiāliem.

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Inta - ēma: Dubultā pieeja dubultpilsonībai 06.12.2008 16:09
Traki ir, kad striidi ap dubulto pilsoniibu jaaizjuut uz savas aadas. Man un manaam meitaam ir dubultaa pilsoniiba, pie tam dziivojam mees Krievijaa. Kaa mums naakas shkeersot robezhu, tas ir iipashs staasts. Saakshu no taa, ka abas meitas runaa latviski, lai gan izaugushas Krievijaa. Vai visi Latvijas pilsoni,kas miit Latvijaa, runaa latviski? Pie tam varu teikt, ka no muusu puses attieksme pret Latviju ir driizaak patriotiska, nevis lojaala. Kas mani aizskar visvairaak muusu situaacijaa, tad taa ir atsevishku Vestnieciibas(Maskavaa) iereednju attieksme pret mums. Pirmkaart, ieraugot Latvijas pasi manaas rokaas, jau mainiijaas sejas izteiksme, kad pase tika apluukota tuvaak un uzdoti jautaajumi par nelegaalaa celjaa ieguutu dokumentu, sekoja zvans uz Riigu un pieprasiits tuuliit atteikties no pilsoniibas. Tikai Riiga atbildeeja, ka viss ir likumiigi, bet dusmas mazaakas gan nekljuva. Neviljus naaca praataa vaardi par valsts ienaidniekiem un gar aciim pazibeeja uusas un viltiigs smiins. Taadas nu man bija taas asociaacijas... Tas bija pirms 3 gadiem. Tagad es uz Maskavu vairs nebraucu. Vecaakaa meita izveeleejaas par studiju vietu Riigu. Shiis lietas kaartot uz Maskavu devaas viirs, tur maciibu viiza tika atteikta. tika pateikts, ka tas ir dumji suutiit latvieshu beernu maaciities Latvijaa. Bet vinja tomeer maacaas Latvija, nu jau 3.kursaa! Skolu vinja beidza tikai ar teicamaam sekmeem, arii tagad maacaas tikpat labi.Cik tas prasiija nervu, tas lai paliek. Tagad gluzhi kaa lietus maakonis mums saaks milzt draudi par Latvijas pilsoniibas liegshanu, jo shogad jaamaina pases. Pats par sevi saprotams, ka taadaa gadiijumaa mees mieraa nestaaveesim, jo tad tiks apdraudeeta studiju turpinaashna. Mums toreiz ljoti paliidzeeja Pilsoniibas departamenta darbinieces Ljuumane un Vaira Mickevicha. Paldies vinjaam par sapratni un atsauciibu.

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Janis D. 06.10.2008 20:17
Piešķirt vai nepiešķirt dubultpilsonību pats par sevi ir interesants jautājums un, protams, daudzi no šādas iespējas tikai iegūtu. Es tikai pārāk nesaprotu to cilvēku argumentāciju, kas dikti iestājas pret dubultipilsonības piešķiršanu jau esošajiem latviešiem un Latvijas pilsoņiem. Kā, piemēram, tas, ka Anglijā, ASV, Kanādā, vai Mozambikā dzīvojošs Latvijas pilsonis iegūtu arī šīs valsts pilsonību, padarītu dzīvi sliktāku tiem pilsoņiem, kas mīt Latvijā? Vai tā ir skaudība, par to, ka kāds redz pamanījies savu dzīvi veidot kaut kur citur labākos ekonomiskos apstākļos un tāpēc tā piederība Latvijai automātiksi jāzaudē, jo šis cilvēks tāpēc arī kulturāli un tautiski vairs nav latvieties? Kāds agrāk minēja par to, ka pilsoņi dodas svešumā, bet viņu bērni, piemēram, Latvijā izbauda izglītības sistēmu par velti un aizņem vietas bērnu dārziņos. Bet vai tad, ja šie cilvēki būtu palikuši Latvijā, viņu bērni neietu šajos bērnu dārzos un skolās tik un tā? Ja jautājums ir par to, ka nodokļi neejot no šiem cilvēkiem valsts kasē un tāpēc nemaksā par šiem servisiem, tad varbūt jautājums nav vis par pilsonību, bet gan par nodokļu politiku un samaksu par mācībām?



Es saprotu, ka neviens nevēlas to, lai Latvija būtu pilna cilvēku, kas nav lojāli Latvijai. Tas varētu notikt, ja pēkšņi dubultipilsonība tiktu piešķirta cittautiešiem, kam ir citas valsts pilsonība. Un to var kaut kā pamatot, jo, kam dot Latvijas pilsonību noteikti ir pilsoņu un iedzīvotāju kompetencē. Bez tam, šis process jau tagad tiek skatīts katram cilvēkam atseviski. Bet man tomēr liekas, ka atņemt kādam pilsonību, kas savu dzīvi pavadījis Latvija, bet tagad vienalga kāda iemesla dēļ atrodas citur, ir nedaudz dīvaini it sevišķi, ja dubultpilsonība šiem cilkvekiem tikai palīdzētu; respektīvi, ja šī dubultpilsonība palīdzētu Latvijas pilsoņiem. Un, it sevišķi, ja nevienam Latvijā no tā dzīve sliktāka nepaliktu. Šie aizbraukušie jau tā ir aizbraukuši un dubultpilsonība vienkārši padarītu iespēju, ka viņi ar Latviju uzturēs stiprākas saites, tikai lielāku.



Īsti nesaprotu, kāpēc daži ir tik ļoti pret tam, ka visiem latviešiem visā pasaulē būtu jādod pēc iespējas vairāk tiesības un iespējas un visu iespējamo. Ja jautājums patiešām ir par to, ka dubultpilsoņi var "baudīt divu valstu labumus" tad, kas tur ir tik slikts? Kas ir tie cilvēki, kas padara Latviju nabagāku? Vai tie ir tie, kas tagad strādā Īrijā? Vai varbūt tie ir tie, kas Saeimā sēž? Vai tie ir tie, kas laukos nodzeras neskatoties uz to, ka labas darba rokas atrast ar uguni nevar? Vai varbūt tie ir krievu biznesmeņi, kas pērk labākos īpašumus gar jūru un visās lielākajās pilsētās?



Vai patiešām visi tie, kas vēlas iegūt dubultpilsonību (un te es runāju tikai par Latvijas pilsoņiem, kas dzīvo ārvalstīs) ir nodevēji, kas aizbrauca tikai un vienīgi labākas dzīves meklējumos, jo viņiem Latvijā nepatika? Kā ir ar tiem, kas aizbrauca mācīties, kas regulāri atbrauc atpakaļ, kas ir aktīvi iesaistījušies latviešu pasākumos un organizācijās? Kā ir ar tiem, kas strādā ES institūcijās? Kā ir ar tiem, kas dzīvo visās pasaules malās, bet sevi uzskata par latviešiem un ar lepnumu katram stāsta par savu valsti, gatavo pīrāgus Ziemassvētkos un vāra olas sīpolu mizās Lieldienās, kas māca saviem bērniem latviešu valodu un sūta viņus latviešu skolās? Vai patiešām visi, kas ir aizbraukuši, to ir izdarījuši tāpēc, ka viņiem ir nospļauties par Latviju? Un, ja jā, vai tad šie ir tie cilvēki, kas cer un nepārtraukti gaida iespēju iegūt dubultpilsonību? Man tomēr šķiet, ka valsts pienākums ir rūpēties par visiem pilsoņīem – arī tiem, kas ir ārzemēs. Un tāpēc, ja var darīt, ko tādu, kas padarītu pilsoņu dzīvi vieglāku – kā piemēram dubultpilsonība – tad no tā Latvijas valsts un tās pilsoņi kopumā būtu tikai ieguvēji.



Mana galvenā doma ir tā, ka ar varu nevienam nevar piespiest būt piederīgam kādai valstij. Tie, kas nejūtas Latvijai piederīgi, to jau parāda ar savu rīcību. Zinu daudzus, kas ir aizbraukuši prom un nekad nevēlas asociēties ar Latviju. Tajā pašā laikā ir daudz to (un es domāju, ka tādu tomēr ir nospiedošais vairākums), kas Latviju nes sirdi lai kur arī tie nebūtu un kam tēvzeme vienmēr bija, ir, un būs viņu dzimtene un mājas. Tāpēc man šķiet nedaudz dīvaini, ka daudzi šo cilvēku dzīves noniecina sakot, ka to vienīgais dzinulis ir nauda un tādejādi liek tos vienā maisā ar tiem ekonomiskajiem klaidoņiem, kam Latvija ir vienaldzīga. Varbūt, ka daudzi tikai šad tad atbrauc uz Latviju, bet tajā pašā laikā, varbūt viņi katru dienu savās darba vietās, ģimenēs un draugu lokā rāda to, kādi latvieši ir. Varbūt viņi ar savu atrašanos citur dara labāku darbu Latvijas tēla nešanā pasaulē nekā to dara Latvijas Insitūts un Zatlers? Varbūt tieši pateicoties šiem cilvēkiem, daudzi visās pasaules malās tagad zin, kas ir Latvija, kāda ir tās vēsture, un cik lieliska tauta mēs esam.



Vai latvietis patiešām „īsto Latvijas pilsoņu – to, kas dzīvo Latvijā” acīs pārstāj būt latvietis ja izdomā dzīvot ārpus Latvijas?

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Jack Ripper 17.03.2006 13:57
Visnotaļ interesants raksts, arī tabula raksta beigās noderīga.

Mazliet pieskaršos diplomātiskās aizsardzības jomā novērojamām tendencēm. Vai patiešām diplomātiskās aizsardzības institūts atdod savu vietu cilvēktiesību mehānismiem? Pieļauju, ka tas ir iespējams tikai tajās valstīs, kur šie mehānismi reāli darbojas un, ja pilsonības valsts vēlas/piekrīt, lai attiecībā uz tās pilsoņu tiesību un interešu aizsardzību tiktu realizēti cilvēktiesību mehānismi. Ķīnas Tautas Republika, piemēram, pēdējos gados lielāku uzsvaru liek uz diplomātisko/konsulāro aizsardzību. Tam gan ir arī savi subjektīvie iemesli.

Runājot par principa veidošanos izvērst diplomātisko aizsardzību arī pret dubultpilsoņa pilsonības valsti, vēlētos norādīt, ka atsauce uz Iran-USCTR praksi nav īsti korekta. Tur bija pilnīgi cits vēsturiskais konteksts. Un tomēr, ja ir vēlēšanās uz šīm lietām atsaukties, tad arī vajadzētu izskaidrot dominant and effective nationality rule (ko tas sevī ietver) un kā un kur šī doktrīna radās. Lasītājiem ir jāsaprot, ka šeit uzskaitītajās Tribunāla lietās sākotnēji bija runa par procesuālas dabas jautājumu personas prasībā pret Irānas valsti.