If a foreign national indicates that he or she wants to return, but is unable to, why can't he or she just stay?
This forms the biggest bottleneck in the return policy. The DT&V may be unable to organise a forced return for some individuals, because that specific country does not cooperate in cases of forced return. However, these countries will hardly ever refuse their citizens who return voluntarily. In this case, the foreign national gets to choose. He or she must therefore make the difference; being able to return and wanting to return.